HomeMy WebLinkAbout2022-04-12 PacketPage 1 of 2
City Council and Planning Commission
Special Meeting
AGENDA
(to be held both at the physical and virtual locations below)
Civic Center Council Chamber ♦ 300 Seminary Avenue ♦ Ukiah, CA 95482
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April 12, 2022 - 5:30 PM
1.ROLL CALL AND PLEDGE OF ALLEGIANCE
2.AUDIENCE COMMENTS ON NON-AGENDA ITEMS
The City Council welcomes input from the audience. If there is a matter of business on the agenda that you are interested in,
you may address the Council when this matter is considered. If you wish to speak on a matter that is not on this agenda, you
may do so at this time. In order for everyone to be heard, please limit your comments to three (3) minutes per person and not
more than ten (10) minutes per subject. The Brown Act regulations do not allow action to be taken on audience comments in
which the subject is not listed on the agenda.
3.UNFINISHED BUSINESS
3.a.Receive Presentation and Provide Direction to Staff Regarding the Preferred Land Use
Alternative for the Ukiah 2040 General Plan.
Recommended Action: Receive presentation; and provide direction to Staff to proceed with the
preferred land use alternative for the 2040 General Plan.
Attachments:
1.2040_UKGP_Land Use Alts Memo_February 2022
2.2040_UKGP_Joint Study Session_2022_Presentation
4.NEW BUSINESS
5.ADJOURNMENT
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Please be advised that the City needs to be notified 72 hours in advance of a meeting if any specific accommodations or
interpreter services are needed in order for you to attend. The City complies with ADA requirements and will attempt to
reasonably accommodate individuals with disabilities upon request. Materials related to an item on this Agenda submitted
to the City Council after distribution of the agenda packet are available for public inspection at the front counter at the
Ukiah Civic Center, 300 Seminary Avenue, Ukiah, CA 95482, during normal business hours, Monday through Friday,
8:00 am to 5:00 pm.
I hereby certify under penalty of perjury under the laws of the State of California that the foregoing agenda was posted on
the bulletin board at the main entrance of the City of Ukiah City Hall, located at 300 Seminary Avenue, Ukiah, California,
not less than 24 hours prior to the meeting set forth on this agenda.
Kristine Lawler, CMC/City Clerk
Dated: 4/7/22
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Agenda Item No: 3.a.
MEETING DATE/TIME: 4/12/2022
ITEM NO: 2022-1548
AGENDA SUMMARY REPORT
SUBJECT: Receive Presentation and Provide Direction to Staff Regarding the Preferred Land Use Alternative
for the Ukiah 2040 General Plan.
DEPARTMENT:Community
Development PREPARED BY:Craig Schlatter, Community Development Director
PRESENTER:City Planning Team; Brent Gibbons, Rick Rust,
and Jim Harnish, Mintier-Harnish
ATTACHMENTS:
1.2040_UKGP_Land Use Alts Memo_February 2022
2.2040_UKGP_Joint Study Session_2022_Presentation
Summary: Council and Planning Commission will receive a presentation on the 2040 General Plan Update
and provide direction to Staff regarding a preferred land use alternative for the Land Use Element of the 2040
General Plan.
Background: The City initiated the update to its General Plan through a joint workshop of the City Council
and Planning Commission on May 14, 2019. Since that time, Staff and the City's General Plan consultants
(Mintier-Harnish) have collected a significant amount of input and feedback from the public via community
engagement events, workshops, comments emailed to Staff, and from comments submitted on the City's
General Plan website http://ukiah2040.com. In February 2021, the City Council adopted a Vision Statement for
the 2040 General Plan.
The 2040 General Plan is currently in Phase 3 of development. This phase explores different land use
alternative scenarios for how the city may grow over the next 20 years given current population projections
and patterns. Ultimately, this Phase will result in an updated land use map for the City's 2040 General Plan
that will guide where certain land uses can be located, as well as what density/intensity of development will be
allowed.
Discussion: In February 2022, the Ukiah 2040 General Plan Land Use Alternatives Memorandum (Attachment 1)
was released online on the City's General Plan website. The Land Use Alternatives Memorandum was prepared
by Staff and the City's General Plan consultants based on community input from Community Workshops 1-3,
PumpkinFest (2019), and technical analysis. Over the past approximately 60 days, the public has been given
the opportunity to comment on the Memorandum. As of the preparation of this staff report, no comments had
been received.
In summary, Alternative 1, the Base Case, analyzes a buildout of existing vacant and underutilized parcels
based on the existing General Plan land use designations. Alternative 1 can be thought of as a “no change” or
“business as usual” approach. Alternative 2 maintains the land use designations of the existing General Plan
but increases the allowed densities of the residential land uses. Alternative 3 introduces new, expanded land
use designations that provide greater distinction between residential and commercial land use types and to
align existing land uses with corresponding designations. Alternative 3 also includes increased residential
densities and building intensities compared to Alternatives 1 and 2.
Staff would like to note that the preparation of the Alternatives Memorandum was initiated approximately one
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year ago, and information on proposed annexations within the Memorandum is reflective of the time period in
which the document was prepared. Within the last three months, there has been significant discussion
between the City of Ukiah and Ukiah Valley Sanitation District, as well as between the City and water districts.
These discussions will likely lead to a revised plan for annexation. Provided discussions continue in this
direction, the preferred land use alternative would be applied to the revised annexation plan.
Staff recommends the City Council and Planning Commission receive the presentation (Attachment 2) and
provide direction to Staff regarding the preferred land use alternative for the Ukiah 2040 General Plan. Given
population projections, housing needs, and future development potential, Staff recommends either Alternative
2 or 3.
Recommended Action: Receive presentation; and provide direction to Staff to proceed with the preferred
land use alternative for the 2040 General Plan.
BUDGET AMENDMENT REQUIRED: N/A
CURRENT BUDGET AMOUNT: N/A
PROPOSED BUDGET AMOUNT: N/A
FINANCING SOURCE: N/A
PREVIOUS CONTRACT/PURCHASE ORDER NO.: N/A
COORDINATED WITH: N/A
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FEBRUARY 2022
CITY OF UKIAH GENERAL PLAN UPDATELAND USE ALTERNATIVESMEMORANDUM
Attachment 1
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UKIAH 2040 GENERAL PLAN
LAND USE ALTERNATIVES MEMORANDUM
FEBRUARY 2022
1
Introduction
As part of the General Plan Update project, Phase 3 is dedicated to the analysis of land use alternatives.
Given our current population projections and patterns, this phase will explore different land use alternative
scenarios for how the City of Ukiah may grow over the next 20 years. This phase provides an opportunity to
facilitate discussions with community members, stakeholders, and decision-makers about these land use
alternatives and how to address major policy issues. It also provides the community with an opportunity to
discuss “pros and cons” of different scenarios, and aid in deciding the best way to achieve the General Plan
Vision Statement and Guiding Principles adopted by City Council over the next 20 years.1
The land use alternatives phase of the City’s General Plan Update process will ultimately develop an updated
land use map for the City’s 2040 General Plan that will guide where certain land uses can locate, as well as
what density/intensity of development will be allowed (as further identified within the zoning code). The
alternatives phase will also aid in shaping the City’s Sphere of Influence (SOI), which is generally defined as
the “ultimate probable boundaries” of the City, as determined by the City and adopted by the Mendocino
Local Agency Formation Commission (LAFCo). More specifically, the City's current SOI, which is coterminous
with the 2011 UVAP boundary (as depicted in Figure 1) was adopted in 1984 and reflects the City's intention
to apply to annex territories into the City limits within that SOI. As directed by the City Council in January
2020, and as a part of the General Plan Update, the City intends to update its SOI to the proposed SOI shown
on Figure 1.
Planning areas represent geographical areas, sometimes similar to or the same as SOIs and at other times
greater than SOIs, representing any land outside a city’s boundaries which in the planning agency’s judgment
bears relation to its planning (Gov. Code 65300). The Planning Area is coterminous with the City’s current SOI
whereas the City's Area of Interest (also depicted on Figure 1) reflects the territory between the City’s
current SOI and proposed SOI where the City has an interest in ensuring orderly development and the
efficient provision of municipal services. The City’s Area of Interest may also be updated as a part of the
General Plan Update process.
Development of the land use alternatives discussed in this memo were developed with public input received
as a part of preliminary General Plan Update outreach efforts in 2019 and 2020. Specifically, City staff and the
advanced planning specialists prepared the three alternatives based on community input from PumpkinFest
2019, Community Workshop #1 (May 2019), Community Workshop #2 (September 2019), Community
Workshop #3 (December 2020), and through technical analysis, as further described in this memo.
In summary, Alternative 1, the Base Case, analyzes a buildout of existing vacant and underutilized parcels
based on the existing General Plan land use designations. Think of Alternative 1 as a “no change” or “business
as usual” approach. Alternative 2 maintains the land use designations of the existing General Plan but
increases the allowed densities of the residential land uses. Alternative 3 introduces new, expanded land use
designations that provide greater distinction between residential and commercial land use types and to align
existing land uses with corresponding designations. Alternative 3 also includes increased residential densities
and building intensities (FARs) compared to Alternatives 1 and 2.
1 2040 General Plan Vision Statement and Guiding Principles, May, 2021
https://ukiah2040.com/images/docs/ukgp_final_vision_statement_gp_2021_05_27.pdf
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These land use alternatives are discussed further in the Alternatives section of this memo. All alternatives
include the addition of annexation areas being pursued by the City (see Methodology section below for more
information). The purpose of this document is to present the findings from the buildout analysis comparing
the three land use alternatives. It is organized into the following sections:
1. Methodology
2. Hazard Constraints
3. Development Assumptions
4. Alternatives
5. Buildout Outcomes
6. Next Steps
The land use alternatives summarized in this memo will be further analyzed through the Draft Environmental
Impact Report (EIR), in accordance with the California Environmental Quality Act (CEQA). CEQA requires that
local government agencies consider the environmental consequences before acting on projects over which
they have discretionary approval authority. Specifically, the purpose of an EIR is to analyze potential
environmental consequences to inform the public and support informed decisions by local and state
governmental agency decision makers. An EIR is the most comprehensive form of environmental analysis and
documentation within CEQA; it is intended to provide an objective, factually supported analysis and full
disclosure of the environmental consequences of a proposed project (in this case, the City’s General Plan
Update) with the potential to result in significant, adverse environmental impacts. The EIR is also required to
provide and analyze different land use alternatives and buildout scenarios, as different land use alternatives
will result in different environmental impacts.
The preferred land use alternative will guide the land use patterns for future development within the City of
Ukiah through the General Plan. Specifically, the chosen land use alternative will frame the land use
designations within the City, and will assist in the development of the General Plan goals, policies and
implementing measures, as well as the development the General Plan Elements. The buildout analysis
summarized within this memo is the first step in this process.
Methodology
For the purposes of this memo, an initial build out analysis of the three alternatives was completed by
analyzing the development of vacant and underutilized parcels with the buildout capacity determined for the
City’s 6th Cycle Housing Element Update, adopted in October 2019, the incorporation of annexation areas
being pursued by the City of Ukiah, and the development of mixed-use designated areas in Alternative 3. The
analysis includes two sets of development assumptions (one for residential development and one for non-
residential development) used to calculate the buildout of the three land use alternatives. These assumptions
also incorporate standards reflecting development restrictions based on Airport Land Use Compatibility
Zones outlined in the Ukiah Municipal Airport Land Use Compatibility Plan (UKIALUCP), adopted by the City in
May 2021. An overview of the methodology used is summarized below.
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Residential Density
Residential developments are categorized by allowed density range (minimum and maximum) measured in
dwelling units per acre (du/ac). Residential density is calculated by dividing the number of dwelling units on
the site (excluding accessory dwelling units) by the gross acreage of the site. The image below shows
prototypical examples of different residential densities for one-acre properties.
State planning law requires general plans
to include standards for measuring
population density. Population density is
determined by multiplying the maximum
number of dwelling units allowed in a
given land use designation by the average
number of persons per household (as
determined by the California Department
of Finance).
Non-Residential Building
Intensity/FAR
The intensity of non-residential development,
which can be regulated by total building size, is
measured by Floor Area Ratio (FAR). FAR means
the gross floor area of a building or buildings on
a parcel divided by the area of the parcel. Floor
area means the entire enclosed area of all floors
that are more than four (4) feet above the
existing or proposed grade, measured from the
outer face of exterior walls or in the case of
shared walls from the centerline. The maximum
FAR standard limits the overall size of
development on a parcel. As an example, a
maximum FAR of 0.75 would allow 75,000
square feet of building floor area on a 100,000-
square foot lot. The 75,000 square feet could
be developed in one building, or more buildings,
and include one of more stories.
Housing Element Sites
Ukiah’s 6th Cycle Housing Element was adopted in 2019. Through this process the City completed a new
vacant and underutilized list and associated analysis as part of the Housing Element Update. The analysis
identified vacant and underutilized sites within the current city limits, and then evaluated each site based on
current zoning designations, documented constraints, and State requirements. The housing sites include
vacant and underutilized sites identified in the 2019-2027 Housing Element, as outlined in blue in Figure 2,
and were analyzed by using the total capacity of the sites identified in the certified Housing Element.
Annexation Efforts
Annexation efforts for the City of Ukiah have been discussed over the last three decades and addressed in
multiple planning documents produced over the past 35 years, including the 1984 Ukiah General Plan, the
1995 Ukiah General Plan, the 2009-14, 2014-19, and 2019-27 Ukiah Housing Elements, Mendocino County’s
2019-2027 Housing Element, and the 2011 Ukiah Valley Area Plan. Themes within these documents related
to annexation include supporting future housing needs through annexation efforts that lead to the orderly
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expansion of growth to avoid sprawl; collaboration between the cities within the County on regional
housing by supporting annexation applications to the Mendocino LAFCo from incorporated cities for
annexations of contiguous lands; and the need for preservation of open space and agricultural lands.
Additionally, at City Council meetings held in 2019 and 2020 Council provided direction to Staff regarding
pursuing annexation efforts. Key directives from Council as a result of these meetings are summarized
below.2
• August 27, 2019: Council approved the following Policy Directives: 1) update the Ukiah General
Plan; 2) update the City of Ukiah’s Sphere of Influence, as proposed in Figure 1; 3) prepare and
adopt annexation policies as part of the City' s long- term land use planning and City Council
Strategic Plan; and 4) evaluate and amend the city zoning code to improve efficiencies/public
service and protect natural resources.
• January 16, 2020: Council adopted an Annexation Policy (Resolution No. 2020-06) that states that
the City will pursue, apply for, and support the annexation of unincorporated areas to the City to
avoid the negative consequences of continued urban sprawl and to ensure the efficient provision
of municipal services to unincorporated areas without placing an undue financial burden on the
City or its residents.
• On August 5, 2020: Council directed Staff to move forward with preparing applications for the
Brush Street Triangle, Masonite Area properties, and property around the City's Water Treatment
Plant.
• November 4, 2020 Regular Meeting: Council directed Staff to move forward with preparation of
the annexation application for certain City-Owned Properties.
Consistent with direction received from Council, the adopted Annexation policy, and relevant City and
County planning documents, the City of Ukiah intends to pursue annexation of approximately 910 acres of
land, currently located in the County of Mendocino’s jurisdictional boundaries, into the City limits. The 910
acres proposed for annexation are categorized as the following Annexation Areas: City-Owned Properties;
the Brush Street/Masonite Annexation Area; and the Western Hills Annexation Area. All of the land the City
is pursing for annexation is located within the City’s current SOI, and with the exception of the Western Hills
annexation, a portion of the landfill site along Vichy Road, and the open space area west of the terminus of
Standley Street, all of the land the City is pursuing for annexation is also located within the City’s proposed
SOI. The Annexation Areas being pursued by the City are summarized below and shown on Figure 1.
Annexation requests and jurisdictional changes must be reviewed and approved first by City Council, then
by the Mendocino County Local Agency Formation Commission (LAFCo). As of December 2021, the City has
submitted annexation pre-applications to LAFCo for annexation of the City Owned Properties and the
Northern Annexation Area. The City anticipates submitting pre-applications and full applications to LAFCo
for all areas within the Proposed SOI shown within Figure 1 over the next one to three years.
A: City-Owned Properties. Includes 16 City-owned properties, totaling approximately 437 acres, that the City
of Ukiah has acquired within the City’s Sphere of Influence (SOI) for public purposes, but has not completed
the necessary annexation application for those properties to officially become incorporated lands of the
City that are within the City’s jurisdiction. City-owned lands proposed for annexation include the following:
the landfill site on Vichy Springs Road; properties within the Ukiah Municipal Airport area along South State
Street; properties within the vicinity of the City’s Wastewater Treatment Plant along Norgard Lane, Taylor
Drive and Plant Road; property adjacent to the City’s Solid Waste Transfer Station; and open space areas
west of the terminus of Standley Street.
2 Please see the corresponding Staff Reports for each meeting for more information; these can be found online at the City’s
meeting page by navigating to the Council meetings identified within this memo. http://www.cityofukiah.com/meetings/
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As mentioned above, the majority of these properties host City operations such as the wastewater
treatment plant, recycled water system, agricultural land, and a portion of the Ukiah Municipal Airport.
Others are currently undeveloped and preserved as open space. Once annexed, the City-Owned Property
Annexation Areas would continue to be used for agriculture, open space, or municipal uses. As such, these
lands are proposed to be designated as Public and Open Space, and the buildout analysis did not assume
any new development (aside from potential new or expansion of public facilities) on these sites for the
next 20 years.
B: Brush Street/Masonite Area Properties Annexation Area. The City proposes to annex 63 properties
totaling approximately 473 acres north of the City limits, within areas locally known as the “Masonite” and
“Brush Street Triangle” areas along Kunzler Ranch Road, Ford Road, Masonite Road, Brush Street, Brunner
Street, and Orchard Avenue. Development in this area includes some commercial, industrial and
manufacturing uses (both existing and decommissioned), as well as areas containing vacant and agricultural
land. For the Brush Street Triangle, development assumptions were analyzed by using the current Ukiah
Valley Area Plan Mixed-Use: Brush Street Triangle designation. For the Masonite area, the existing
Industrial designation was used. For the remaining area south of the Masonite site and north of Ford Road
that is currently vacant and/or developed with agriculture uses, the Agriculture designation will remain.
C: Western Hills Annexation Area. The City’s annexation efforts include annexation of the “Western Hills
Annexation” Area associated with the Ukiah Western Hills Open Land Acquisition and Limited Development
Agreement Project, approved by City Council on September 15, 2021. The project includes acquisition and
annexation of approximately 707 acres total within the Ukiah Western Hills; all of the land is currently located
within the City’s adopted Sphere of Influence (SOI), with the exception of approximately 296 acres. 640 acres
of land is preserved as open space conservation; this land is prezoned as Public Facilities and would not be
developed with commercial or residential development. In addition, the project includes a Development
Agreement with the current property owner to restrict residential development on the 54 easternmost acres
(beginning at the terminus of Redwood Avenue). Although these parcels are prezoned Single-Family
Residential-Hillside Overlay (with a Rural Residential designation), which may allow more units, development is
restricted to a maximum number of 14 units total (seven-single family homes and seven accessory dwelling
units).
Ukiah Municipal Airport Land Use Compatibility Plan
Ukiah is a unique community with a complex development pattern that is affected by the Ukiah Municipal
Airport Compatibility Zones, as described within the Ukiah Municipal Airport Land Use Compatibility Plan
(UKIALUCP 2021).The operation of the Ukiah Municipal Airport affects development in a significant portion of
the city through the enforcement of the six Airport Land Use Compatibility Zones (see Figure 2), with the
addition of an overlay zone to two of the zones, which functionally creates restrictions on development within
the vicinity of the airport based on proximity to the airport and flight path. Specifically, Chapter 3 of the
UKIALUCP lists restrictions for each land use within each Compatibility Zone related to height, density (both
residential and non-residential), land use, noise, and open land (see UKIALUCP Table 3A for a summary of
restrictions and development standards).3 These standards are intended to promote compatibility between
the Ukiah Municipal Airport and surrounding land uses and were applied to each of the land use designations
in all three alternatives (see section on Development Assumptions for additional information).
3 http://www.cityofukiah.com/NewWeb/wp-content/uploads/2021/06/Ukiah-Municipal-Airport-Land-Use-Compatibility-Plan-
2021.pdf
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Hazard Constraints
Mendocino County has adopted plans related to hazard management and mitigation. The most recent plan,
the Mendocino County Multi-Jurisdictional Hazard Mitigation Plan (MJHMP) was adopted by the County in
December 2020. The MJHMP provides an explanation of prevalent hazards within the County, identifies risks
to vulnerable assets, both people and property, and provides a mitigation strategy to achieve the greatest
risk reduction based upon available resources. The City of Ukiah adopted its jurisdictional annex chapter of
the MJHMP on November 18, 2020. MJHMP for Ukiah notes earthquakes, wildfire, dam failure, flood and
pandemic. However, mitigation strategies are focused on long-term emergency planning, rather than impacts
on current development.
Natural hazards related to development that will be analyzed in the buildout scenarios include Geologic
hazards (specifically within western Ukiah where steep slopes exist), wildfires (specifically within High or Very
High Fire Hazard Areas, as identified by the California Department of Forestry and Fire Protection), and
flooding (specifically along local creeks and streams, and the Russian River, east of the city). New
development in areas containing these natural hazard constraints is possible but will be held to building
standards within the California Building Code, Fire Code, City Code, and Federal Emergency Management
Agency (FEMA) guidelines intended to address and mitigate these potential hazards.
Development Assumptions
Buildout analysis calculations are based on several assumptions. Specifically, the development assumptions
are based on a sliding scale of densities and intensities depending on the specific alternative. When
calculating potential development, best practice is to assume a typical development percentage, since it is
uncommon for developments to build out at maximum density or intensity. In addition to defining assumed
typical densities and intensities, the buildout analysis also estimates the likely distribution of uses, including
single family, multifamily, local retail, regional commercial, office, industrial, and institutional. The overall
buildout relies on a variety of parcels sizes that include varying public facilities, right of ways, and utilities,
thus base on the complexity of these multitude of factors, the overall analysis focuses on gross development.
The buildout analysis also assumed minimum and maximum residential density and maximum FAR based on
the Airport Land Use Compatibility Zones. Specifically, the buildout analysis accounted for decreased capacity
on non-residential areas by reducing assumed developable FAR for the more restrictive zones. As noted in
the Methodology Section, the Airport Compatibility Zones used in this buildout analysis were defined in the
2021 UKIALUCP by the Mendocino Airport Land Use Commission, which is intended to promote compatibility
between the Ukiah Municipal Airport and surrounding land uses. Figure 3 shows the Airport Compatibility
Zones in relation to the buildout sites.
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The Alternatives
This buildout analyzes three alternatives which are summarized below and discussed qualitatively. Each
alternative includes differing assumptions about land uses, densities, intensities, annexation areas, and
redevelopment. Each alternative will be further analyzed through the EIR process quantitatively using the
methodology described above. It is important to note that the analysis includes preliminary projections and is
intended to compare likely differences between development outcome under each alternative. This
comparison is intended to help the community and decision-makers understand likely differences between
choosing one alternative over another. Market trends and the economic health of the country, region, and
City will drive overall future change in Ukiah, regardless of the alternative selected for the 2040 General Plan.
Alternative 1: Base Case
Alternative 1 (see Figure 5) is the “base case” alternative. This alternative analyzes the existing General Plan
land use designations and exiting densities for vacant land within the City. Alternative 1 also includes
identified sites for annexation, as well as the housing sites identified as part of the 2019-2027 Housing
Element. Since the Alternative 1 focuses on existing designations, annexation areas will be analyzed using
their existing County UVAP Land Use designations, unlike Alternatives 2 and 3, where these areas were
applied with a corresponding City Designation. County designations in Table 1 are noted with a (C).
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Alternative 2: Increased Residential Density
Alternative 2 (see Figure 6) assumes increases in the residential densities allowed by each land use
designation. For instance, High Density Residential in the existing General Plan allows housing development
up to 28 du/ac. In Alternative 2, High Density Residential assumes densities up to 40 du/ac. Another key
difference between Alternative 1 and 2 is the resignation of three parcels currently designated Rural
Residential that are developed with recreation uses including a portion of the Ukiah Municipal Golf Course,
Low Gap Park, and the City View Trail in the far northwestern corner of the community. Alternative 2
assumes re-designating these parcels to Recreation to align with existing land uses and the proposed Upper
City View Trail Project. This change in designation will not result in any new residential or commercial
development potential. County General Plan Land Use Designations as part of the Alternative 1 (Base Case)
were applied with a corresponding new and/or existing City General Plan Land Use Designations.
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Alternative 3: Increased Residential Density and New Land Use Designations
Like Alternative 2, Alternative 3 (see Figure 7) assumes increased residential densities and building intensities
and includes new designations that provide additional refinement of the types of uses allowed in the City.
Alternative 3 divides the Commercial land use designation into more detailed designations: Downtown Core,
Highway Commercial, Community Commercial, and Neighborhood Commercial. In addition, Alternative 3
introduces four new designations to the City’s Land Use Map: Hillside Residential, Agriculture, Mixed Use:
Brush Street Triangle, and Mixed Use: AIP-PD.
• Downtown Core designates areas that fall within the Downtown Zoning District.
• Highway Commercial designates the commercial areas adjacent to Highway 101. The purpose of this
designation is to focus development of more auto-oriented uses, visitor-serving uses, and large
format retail that are typically associated with highway users adjacent to Highway 101.
• Community Commercial designates major corridors for small and large format retail, shopping
centers, chain restaurants, and personal services that provide for the community as well as
consumers outside the city.
• Neighborhood Commercial designates areas adjacent to existing lower density neighborhoods for
small format retail and personal services that serve the everyday needs of the immediate
neighborhood.
• Hillside Residential replaces existing Rural Residential areas in the hillsides west of Highland Avenue
and Park Boulevard. This designation decreases residential density from two to one dwelling unit per
acre in the Alternative. This density reduction does not conflict with Housing Element sites, does not
preclude accessory dwelling units (in areas with less than 50 percent slope), and aligns with the goal
of reducing residential construction in High Fire Hazard Areas.
• Agriculture designation includes potential annexation lands north of Ukiah and land south of Ukiah.
The Agriculture designation assumes the same development and density standards as stated in the
Mendocino County General Plan (one dwelling unit per legal parcel at a minimum 40 acres).
• Mixed Use: Brush Street Triangle encompasses lands with the area known as the Brush Street
triangle that the City is seeking to annex. This is a current County designation that will be adopted by
the City. This designation assumes the same development and density standards as stated in the
Mendocino County General Plan (up to 20 units per acre for multifamily and up to 1.0 FAR for
nonresidential uses).
• Mixed Use: AIP-PD designation replaces the Master Plan Area designation for the Airport Industrial
Park Planned Development (AIP-PD) area in southern Ukiah along Highway 101. The AIP-PD was
adopted in 2013 and lands within this area are governed by AIP-PD Ordinance No. 1213.4 Since
adoption of the 1995 General Plan this area is almost completely built out with a variety of
commercial, industrial, and mixed use development. Land Use within this area is further broken
down into seven land use categories: Highway Commercial; Industrial; Industrial Auto; Commercial;
Light Manufacturing Mixed Use; Open Space; Professional Office; and Retail Commercial (as shown
on the AIP-PD land use designation map). Each designation contains a set of development standards
(setbacks, height, design, land use, landscaping, etc.). While the AIP-PD notes that residential density
is limited to 60 people per acre, and commercial development is subject to 40% maximum lot
coverage, due to its proximity to the airport, the AIP-PD relies on density restrictions noted within
UKIALUCP. Renaming the designation of this area would not change the land uses or development
standards contained within the AIP-PD Ordinance.
4 Airport Industrial Park-Planned Development Ordinance No. 1213 http://www.cityofukiah.com/NewWeb/wp-
content/uploads/2021/07/1213-Amending-the-Airport-Park-Planned-Industrial-Development.pdf
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Buildout Outcomes
The initial buildout analysis shows that Alternative 1 (Base Case) has a buildout of 1,692 housing units and
3,831,300 square feet of non-residential space. Preliminary build out projections under Alternative 2 would
increase housing units by 176, and does not include an increase in non-residential space. The reason for no
change in non-residential square footage in Alternative 2 is because the existing non-residential land use
designations were maintained (same as the existing General Plan) and only densities were altered for
residential. Because Alterative 3 proposes to increase density and add new land use designations, preliminary
build out projects show that it would result in the largest increase of both residential (658 units) and non-
residential (683,520 sf) development.
Next Steps
The purpose of a buildout analysis is to identify land available for development and determine the capacity
for housing and non-residential uses. The City Council, Planning Commission, and City staff will use this
information to determine whether the land uses and associated development standards are in line with the
community’s broad long-range goals. The results of analysis are used to help determine the preferred
combination of land uses and begin the updating of the 2040 Land Use Element.
Page 20 of 60
Ukiah General Plan UpdateJoint Study Session | Preferred AlternativeApril 12, 2022Attachment 2Page 21 of 60
Joint Workshop ObjectivesOverview of the Process | Where have we been? Where are we going?•Engagement •Existing Conditions and Trends Workbook•Vision and Guiding Principles Land Use Alternatives ProcessCity Council and Planning Commission Deliberation on a Preferred AlternativeVote on the Preferred Alternative for inclusion in the General PlanNext Steps2Page 22 of 60
Overview of the ProcessPage 23 of 60
General Plan ProcessProjectInitiationExisting Conditions and TrendsAlternative ChoicesPreparing the PlanEnvironmental ReviewCertification and AdoptionCommunity Outreach ‐ Ongoing4Page 24 of 60
Website (ukiah2040.com)Newsletter #1: General Plan Overview Newsletter #2:Overview of the Existing Conditions and Trends Workbook5Page 25 of 60
NewslettersNewsletter #1: General Plan Overview Newsletter #2:Overview of the Existing Conditions and Trends Workbook6Page 26 of 60
Community Workshop #1Date: September 24, 2019Attendance: 75Informational: General Plan Overview, Highlights from the Existing Conditions and TrendsExercises: Identification of Issues and Opportunities, and a Visioning activity 7Page 27 of 60
Community Workshop #18Page 28 of 60
Community Workshop #19Page 29 of 60
PumpkinFest 2019 (Community Workshop 2)Date: October 19, 2019Attendance: 200Informational: General Plan Overview, Highlights from the Existing Conditions and Trends workExercises:Identification of Issues and Opportunities, and a Visioning activity 10Page 30 of 60
Pop‐Up Booth – PumpkinFest 2019 (CW 2)POTO 11Page 31 of 60
Community Workshop #3 (Online)Date: December 7‐8, 2020Attendance: 40Informational: General Plan Overview, Land Use AlternativesExercises:Mapping exercise for areas of change, group discussion in breakout rooms12Page 32 of 60
Online EngagementDate: Spring 2019 to Present DayParticipation: 100+Exercises: •What I Love in Ukiah•Identification of Issues and Opportunities•Visioning activity 13Page 33 of 60
Existing Conditions and Trend WorkbookProvides a snapshot in time of current (2019) conditions and trends in UkiahProvides decision‐makers and the public with background and context for developing the General PlanSupports development of the environmental setting in the Environmental Impact ReportReleased March 202014Page 34 of 60
General Plan VisionThe City of Ukiah is a diverse, family‐oriented, and friendly community connected to the beautiful, surrounding natural open space areas that give the community its unique sense of place. Ukiah is a safe and resilient community that is fiscally responsible, environmentally conscious, and inclusive. The city offers a great place for people of all ages, incomes, and ethnicities to live, work, and visit.City Council approved in Spring 202115Page 35 of 60
Guiding PrinciplesGuide land uses and development that meet the needs of the community, are environmentally conscious, and maintain Ukiah as a diverse, family‐oriented, and friendly community, where people from all racial, ethnic and cultural backgrounds thrive socially, economically, academically, and physically.Ensure development in all neighborhoods is compatible with the unique characteristics and land use patterns and fosters a sense of place. Promote resilient and sustainable facilities and infrastructure to ensure delivery of high‐quality services. 16City Council approved in Spring 2021Page 36 of 60
Guiding PrinciplesPromote a diverse, local, business‐friendly economy that fosters new job growth and is adaptable to changes in consumer habits and market trends. Maintain and advance a well interconnected circulation network that accommodates and encourages alternative modes of transportation that reduce congestion and encourage walkable and bikeable neighborhoods.Preserve existing open space resources while enhancing accessibility to parks and recreational amenities. Manage, conserve, and preserve the existing natural environment to ensure sustainable longevity for present and future generations. 17City Council approved in Spring 2021Page 37 of 60
Guiding PrinciplesProvide for a safe community through resilient infrastructure, community‐wide education and preparation, and hazard planning that is responsive to potential climate‐related, natural, and human‐caused disasters. Preserve Ukiah Regional Airport as a vital economic driver and transportation system and maintain consistency with the criteria and policies of the Ukiah Municipal Airport Master Plan. Foster an inclusive community through conditions that allow for and stimulate a diversity of housing options for community members of all ages, incomes, and ethnicities. 18City Council approved in Spring 2021Page 38 of 60
Land Use Alternatives ProcessPage 39 of 60
Purpose of the Land Use AlternativesThe Land Use Alternatives Memorandum is designed to look at big picture ideas land use changes.This memorandum is meant to support the selection of a Preferred Land Use Alternative.Will ultimately be used to develop an updated land use diagram for the City’s 2040 General Plan.20Page 40 of 60
Scope of AnalysisThe land use alternatives focus on expanded housing and commercial opportunities for the future.The Land Use Alternatives Memorandum analyzes three different land use alternatives.Alternative 1 as a “no change” or “business as usual” approach1Alternative 2 maintains the land use designations of the existing General Plan but increases the allowed densities of the residential land uses. 2Alternative 3 introduces new, expanded land use designations that provide greater distinction between residential and commercial land use types and to align existing land uses with corresponding designations. Alternative 3 also includes increased residential densities and building intensities (FARs) compared to Alternatives 1 and 2.321Page 41 of 60
Scope of AnalysisEach alternative includes differing assumptions about land uses, densities, intensities, and redevelopment potential. The intent is to compare likely differences between development outcome under each alternative.Market and economic trends will impact the development potential under each alternative. 22Page 42 of 60
Planning Boundaries23Page 43 of 60
MethodologyAnalyzing development of vacant and underutilized parcels;Inclusion of the proposed Sphere of Influence (SOI);Buildout of the City’s 6th Cycle Housing Element Update (adopted in October 2019);Inclusion of annexation areas pursued by the City; and Recognition of the Ukiah Municipal Airport Land Use Compatibility Plan.24Page 44 of 60
Methodology ‐ DensityResidential density is categorized by allowed density range (minimum and maximum) measured in dwelling units per acre (du/ac). Residential density is calculated by dividing the number of dwelling units on the site (excluding accessory dwelling units).25Page 45 of 60
Methodology – Floor Area Ratio (FAR)The intensity of non‐residential development, which can be regulated by total building size, is measured by Floor Area Ratio (FAR). The maximum FAR standard limits the overall size of development on a parcel.As an example, a maximum FAR of 0.75 would allow 75,000 square feet of building floor area on a 100,000‐square foot lot.26Page 46 of 60
Methodology ‐ AnnexationAnnexation AreasA. City‐owned properties totaling approximately 437 acres.B. Brush Street/Masonite Area Properties Annexation Area totaling approximately 473 acres over 63 properties.C. Ukiah Western Hills Open Land Acquisition and Limited Development Agreement Project totaling approximately 707 acres.27Page 47 of 60
Council Directives on AnnexationsAugust 27, 2019: Council approved the following Policy Directives: 1) update the Ukiah General Plan; 2) update the City of Ukiah’s Sphere of Influence, as proposed in Figure 1; 3) prepare and adopt annexation policies as part of the City' s long‐term land use planning and City Council Strategic Plan; and 4) evaluate and amend the city zoning code to improve efficiencies/public service and protect natural resources. January 16, 2020: Council adopted an Annexation Policy (Resolution No. 2020‐06) that states that the City will pursue, apply for, and support the annexation of unincorporated areas to the City to avoid the negative consequences of continued urban sprawl and to ensure the efficient provision of municipal services to unincorporated areas without placing an undue financial burden on the City or its residents. 28Page 48 of 60
Council Directives on AnnexationsNote: The previous directives above do not include Council direction related to the Ukiah Valley Fire Protection District’s annexation of the City of Ukiah, which was approved by LAFCo in 2021.29August 5, 2020: Council directed Staff to move forward with preparing applications for the Brush Street Triangle, Masonite Area properties, and property around the City's Water Treatment Plant.November 4, 2020 (regular meeting): Council directed Staff to move forward with preparation of the annexation application for certain City‐Owned Properties.January 19, 2022 (regular meeting): Council directed Staff to submit a revised annexation application to LAFCo to annex City‐owned properties in unincorporated Mendocino County.Page 49 of 60
Alternative 1“Base Case” Alternative.Analyzes the existing General Plan land use designations and exiting densities for vacant land within the City.Alternative 1 focuses on existing designations, with annexation areas analyzed using their existing County UVAP Land Use designations.30Page 50 of 60
Alternative 2Assumes increases in the residential densities allowed by each land use designation.Redesignation of three parcels currently designated Rural Residential that are developed with recreation uses including a portion of the Ukiah Municipal Golf Course, Low Gap Park, and the City View Trail.Applies City designations in annexation areas.31Page 51 of 60
Alternative 3Assumes increased residential densities and building intensities. Includes new designations that provide additional refinement of the types of uses allowed in the City.Divides the Commercial land use designation into more detailed designations: Downtown Core, Highway Commercial, Community Commercial, and Neighborhood Commercial. 32Page 52 of 60
Buildout Outcomes – Residential DensityDesignationAlternative 1 Alternative 2 Alternative 3Max Density Max Density Max DensityHillside Residential‐‐1Rural Residential142Low Density Residential610 15Medium Density Residential1422 28High Density Residential284040Downtown Core‐‐40Mixed‐Use Brush Street20 20 20Commercial2840‐Highway Commercial‐‐40Community Commercial‐‐28Neighborhood Commercial‐‐1533Page 53 of 60
Buildout Outcomes – Nonresidential FAR DesignationAlternative 1 Alternative 2 Alternative 3Max FAR Max FAR Max FARDowntown Core‐‐2.5Mixed‐Use Brush Street111Commercial11‐Highway Commercial‐‐1Community Commercial‐‐1.5Neighborhood Commercial‐‐1Industrial‐‐1Recreational‐‐‐Public111Master Planned Areas11134Page 54 of 60
Buildout OutcomesThe total buildout based on potential land use changes for each alternative are as follows:35Housing Unit Capacity: + 1,692Non‐Residential Sq Ft:+ 3,831,300 sq ft1Housing Unit Capacity: + 1,868Non‐Residential Sq Ft:+ 3,831,300 sq ft2Housing Unit Capacity:+ 2,350Non‐Residential Sq Ft:+ 4,514,820 sq ft3Page 55 of 60
City Council and Planning Commission Deliberation on a Preferred AlternativePage 56 of 60
Vote on the Alternative for inclusion in the General PlanPage 57 of 60
Next StepsPage 58 of 60
Upcoming TimelinePreferred AlternativeScoping MeetingRelease of Public Review Draft General PlanEnvironmental ReviewStudy SessionsAdoption39April 2022Spring 2022Summer 2022Summer – Winter 2022Fall – Winter 2022Early 2023Page 59 of 60
Thank YouPage 60 of 60