Valley Blueprint Integration Program
City of Fowler General Plan Audit
1.
Overview
This document is a “white paper” providing a General Plan Audit for the City of
Fowler, California, as part of the San Joaquin Valley Blueprint Integration Program
(BPI). The BPI is a Valley-wide program funded through a State Proposition 84
grant to support 46 smaller Valley cities (populations under 50,000) in the eightcounty area extending from Stockton to Bakersfield.
The Fresno Council of Governments (COG), managing the San Joaquin Valley
Blueprint on behalf of the eight Valley counties – also called Regional Planning
Agencies (RPA) - has contracted with local circuit planners to work with individual
cities within each RPA. The purpose of the project is to identify strategies to
integrate Blueprint Principles into local planning practices and assist with strategies
for implementation. Working specifically with Fowler, a General Plan Audit has
been selected as the BPI task to be developed for the City.
2.
Tool Overview/Understanding of Request
General Plan audits are one of the more commonly requested Blueprint tools among
cities in the BPI Program. Seven communities requested some variation of a General
Plan audit or assistance with a General Plan update. Some cities also requested
specific land use or circulation policies that could be incorporated into a General
Plan.
The City of Fowler wishes to review its General Plan to determine whether it is
consistent with the Blueprint principles, and if not, to identify ways the Plan could
be amended to be more “Blueprint-friendly”. It should be noted that there is no
requirement that the General Plan be amended under this program – suggestions
are simply offered as a service for the City to pursue – should they choose to do so.
The purpose of this request as expressed by the City is as follows:
The City of Fowler has requested an audit of the General Plan to highlight areas
where policies do not meet those set in the Valley Blueprint. Based on the analysis
and recommendations, the City hopes to eventually update its General Plan to
include incorporating principles of the Blueprint.
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Blueprint Integration White Paper
City of Fowler General Plan Audit
Relevance to Blueprint Principles
As part of the Blueprint effort, the Fresno COG adopted 12 principles to guide future
growth and development in the County as listed in the following table. For Fowler’s
General Plan audit, each principle is evaluated with a finding of “supports,”
“indirectly related,” or “limited or no support”.
Applicability of the Fowler General Plan Audit to the 12 Blueprint Principles
Blueprint Principle
Create a range of housing opportunities and choices
Create walkable neighborhoods
Encourage community and stakeholder collaboration
Foster distinctive, attractive communities with a strong
sense of place
Make development decisions predictable, fair, and costeffective
Mix land uses
Preserve open space, farmland, natural beauty, critical
environmental areas
Provide a variety of transportation choices
Strengthen and direct development towards existing
communities
Take advantage of compact building design
Enhance the economic vitality of the region
Support actions that encourage environmental
resource management
Indirectly
Supports Related
Limited
or No
Support
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The General Plan audit tool is very supportive of the Blueprint Principles adopted by
the Fresno COG. This establishes a strong foundation should the City choose to
pursue updates to its planning policies and standards to become more Blueprint
compliant.
4.
Issues/Challenges
When a city chooses to update or amend a General Plan, it can present a variety of
challenges, including:
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Requiring the community and decision maker’s acceptance of new/updated
development policies and standards;
The development industry must also embrace new “smart growth” policies
and standards to be consistent with the updated plan;
Additional funding is required for staff time, consultants, and expertise;
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A General Plan update can take significant time and commitment, and must
include citizen involvement and input.
5.
Evaluation of the Fowler General Plan
Setting. Fowler is situated in the central San Joaquin Valley in Fresno County. It
has a strong agricultural background, with lush grape vineyards and expansive
farmland. Fowler is located on Highway 99 about 10 miles southeast of downtown
Fresno at an elevation of 308 feet. The population was 5,750 as of January 1, 2012.
The racial makeup of Fowler was 66% Hispanic; 20% White; 10% Asian/Pacific
Islander; 2% African American; and 2% from other races.
Fowler is a general law city, incorporated June 15, 1908. The City has 1,842 housing
units of which 6.5% are vacant. The average household population is 3.2. The
median family income is $61,400 per year and an estimated 20% of the population
lives below the poverty level.
With its distinct “Americana” atmosphere and friendly citizens, Fowler is known for
its well kept neighborhoods, attractive downtown, and highly acclaimed school
district. While it offers small town charm, the City is also a successful business
location with proximity to the Southern Pacific railroad, major highways and
business routes such as Highway 99, Golden State Boulevard, and Manning Avenue.
The Fowler General Plan. During update of the General Plan in 2004, several broad
goals were identified. A primary focus of the General Plan is to foster expanded and
diversified economic development, including the provision of a variety of additional
and better paying jobs, a mix of housing opportunities to meet the City’s current and
future needs, expanded retail shopping choices, and continued emphasis on the
downtown as the center of the community.
Cities are required by State Planning and Zoning Law to adopt and administer a
General Plan to establish policies and maps controlling the use of land and its
development. Mandated general plan elements are:
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Land Use
Circulation
Housing
Open Space
Conservation
Noise
Safety
In addition, cities may adopt other non-mandated elements important to the local
jurisdiction. Fowler’s General Plan update was adopted in 2004 but was limited to
the land use and circulation elements as well as an economic development element.
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The old general plan adopted in 1976 contains additional policies on open space,
conservation, noise, and safety, many of which are still considered relevant. The
Housing Element was last updated in 2003 and is currently being updated. A
general plan amendment adopted in 2009 provides air quality goals and policies in
keeping with the requirements of AB 170. The air quality policies cover a range of
issues including land use, circulation, open space and conservation.
The documents that constitute the Fowler General Plan are somewhat disjointed
and five of the seven mandated elements are clearly out of date. The land use and
circulation elements, along with a comprehensive zoning ordinance update adopted
in 2009, provide the primary direction to the City on growth and development
issues. The land use and circulation elements, however, are also in need of review
to stay current with changes in City policy, allow public input, and incorporate
smart growth policies such as the Blueprint principles.
5.1
Evaluation of the Fowler General Plan Land Use Map
A key component of the General Plan is the Land Use Map (shown on the following
page) which designates existing and future land uses within the city limits, and
within the Sphere of Influence (SOI) as adopted by the Fresno LAFCO. Designations
on the Land Use Map and zoning consistent with that designation are shown below.
Fowler General Plan/Zoning Consistency Table
Plan Designation
Residential
Low Density
Medium Low Density
Medium Density
High Density
Commercial
Neighborhood
Community
General
Office
Industrial
Light
Heavy
Open/Public
Agriculture
Public Facility
Parks and Open Space
1
2
Consistent Zone District
R-1-10, R-1-12
R-1-7, R-1-8.5, R-1-10
R-1-5, R-1-6, R-1-7, RM-2-A, RM-2
RM-2, RM-3-A, RM-3
C-1
C-1, C-2, Form Based Code
C-3, C-H, Form Based Code
C-1, C-2
M-1, M-P
M-2
Density
Units/Gross Acre
Maximum
FAR1
1.0 - 3.6
3.7 - 5.5
5.6 - 13.5
13.6 - 21.8
40%
40%
40-55%
55%
Mixed Use2
Mixed Use2
40%
40%
40%
50%
60%
60%
UR
PF4
O
FAR > Floor Area Ratio, or the square footage in structures divided by the square footage of the site
Mixed use residential allowed in C-2 and Form Based Code districts by CUP to RM-3 standards
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Figure 1: Fowler General Plan Land Use Map
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The consultant evaluated the Fowler General Plan Land Use Map to determine
consistency with the 12 Blueprint Principles.
Principle 1: Create a Range of Housing Opportunities and Choices. The Land
Use Map designates four residential designations, ranging from Low Density to High
Density, which provides a range of housing from one unit per acre to 22 units per
acre. As is typical with most Valley general plans, the diagram designates the
majority of residential land for Low Density and Medium Density residential use.
These designations make up 27% of total land use and 87% of all land designated
for residential use in the planning area.
The San Joaquin Valley Blueprint has a target density of 6.8 units per acre for new
residential development which is the average of target densities selected by each of
the eight counties as part of the Blueprint process. Selected densities ranged from
8.6 units per acre in Merced County to 4.7 units per acre in Madera County, with
Fresno County selecting a target density of 8.0 units per acre. It is understood,
however, that these are target densities which help to achieve Blueprint Principles
and are not required of individual jurisdictions. It is also understood that the
Fresno-Clovis Metropolitan Area will grow at higher densities than smaller outlying
communities such as Fowler, helping to achieve the higher county-wide target.
Analysis of the Fowler Land Use Map shows that there are an estimated 942 acres of
vacant land designated for residential uses. The number of units that could be
developed on these acres is as follows:
Land Use Category
Acres
Average Units/Ac
Total Units
Low Density
Medium Low Density
Medium Density
High Density
197
540
195
10
2.3
4.6
9.5
17.7
453
2,484
1,852
177
942
5.3
4,966
On current vacant land now designated for residential uses, about 4,966 new
housing units could be developed at an average overall density of 5.3 units/acre.
Within the existing city limits, there are 1,888 units on approximately 320
residential acres, an overall density of 5.9 units/acre. The density within the existing
city limits is slightly higher than planned new residential growth. The existing
density of about 6 units per acre is generally supportive of the Blueprint target
densities for small communities, and reflects the a mix of newer larger lot single
family homes on the fringe, and smaller lot single family uses, duplexes and
apartments in the older city.
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Planned development shown on the General Plan Land Use Map – most outside the
existing city limits and designated for long-term growth – is less efficient and at a
lower overall density than development in the existing City limits. This is due to
large areas designated for Low and Medium Low Density development at 1.0-5.5
units/acre. Given that the General Plan is intended for growth over a 20-year or
longer horizon, and that current housing trends support moderate increases in
residential densities, this large expanse of lower density development is unlikely to
occur within the horizon of this General Plan. Current housing trends reflect choice,
affordability, and increasing focus on ag land conservation, and air emission
reductions Recommendations:
1.
The City would benefit from a review of Low Density and Medium Low
Density residential designations on the General Plan Land Use Map during
the next general plan update. For example, a shift of 50 acres from Low
Density to Medium Low Density and 100 acres from Medium Low to Medium
Density would increase the average density for new growth areas from 5.2 to
6.0 unit/acre. This average density for new growth would more strongly
support the Blueprint.
2.
A review should also be undertaken concerning the mix of single family vs.
multifamily development in the long term with emphasis on designating a
moderate amount of High Density for multifamily uses in new growth areas.
Principle 2: Create Walkable Neighborhoods. It is difficult to make a firm
evaluation of walkability simply by looking at the General Plan Land Use Map.
However, the following aspects of the Land Use Map appear to foster walkability in
Fowler:
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The downtown is roughly centered within the planning area – rather than
being skewed to one side. This works to make the downtown walkable and
accessible from many surrounding neighborhoods.
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Older residential areas in the downtown have a grid system of streets which
increases walkability to shopping, school, and recreational uses.
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Parks and school sites appear to be centered within neighborhoods.
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New growth areas contain a mix of residential, commercial, and employment
sites, increasing the likelihood of walkability.
Principle 3: Encourage Community and Stakeholder Collaboration. A General
Plan Citizens’ Committee and public workshops were utilized to obtain input from
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citizens regarding the General Plan update in 2004. Citizens were asked to identify
potential problems and issues, especially regarding the proposed land use map.
Based on this input, the proposed Land Use Map was refined for inclusion in the
final draft General Plan.
Principle 4: Foster Distinctive, Attractive Communities with a Strong Sense of
Place. There are several aspects of the Land Use Map that will help foster a
distinctive, attractive community with a sense of place. These include designation of
agricultural land within the SOI as a buffer, the designation of gateway aesthetic
treatments at key entrances to the City, and the continued central focus of the
downtown within the planning area. These principles are also supported by
numerous goals and policies in the General Plan text.
Principle 5: Make Development Decisions Predictable, Fair, and Cost-Effective.
The Land Use Map provides a guide to staff, the community, developers, the
Planning Commission and City Council in terms of future growth and development.
From this perspective, the Land Use Map helps make development decisions
predictable, fair, and cost effective. It is also important that the zoning ordinance,
subdivision ordinance, and Standard Specifications are consistent with the Land Use
Map so that implementation of planned land uses can take place over time.
Principle 6: Mix Land Uses. The Land Use Map does not have a mixed use category
and policies in the General Plan text address mixed use in only a single policy. With
adoption of the zoning ordinance in 2009, however, mixed use with retail and
residential components is permitted by CUP within the downtown Form Based Code
district and within the C-2 Community Commercial district.
Principle 7: Preserve Open Space, Farmland, Natural Beauty, and Critical
Environmental Areas. The Land Use Map designates several areas as Agriculture
and Open Space, including parks and community buffers.
Principle 8: Provide a Variety of Transportation Choices. The Land Use Map
and maps in the Circulation Element primarily designate arterial and collector
roadways within the planning area, but also include truck routes and recommended
bike routes. It is expected that future more fine-detailed planning work will occur
with preparation of specific plans or with specific development proposals. These
planning documents will afford the community the opportunity to do more specific
circulation planning.
Principle 9: Strengthen and Direct Development Towards Existing
Communities. The Land Use Map designates a minor proposed SOI expansion in
the southwest quadrant of Manning and Highway 99 which has not yet been
pursued by the City. Although the planning period for the General Plan is a 20-year
time horizon, the City has a large SOI that can accommodate development far
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beyond the planning period. The General Plan Map designates 910 acres within the
SOI for agriculture which would require a general plan amendment to an urban use
and annexation prior to development. The plan amendment and annexation process
are under the control of the City Council and would require environmental analysis
and public hearings before approval. These factors help provide a mechanism to
direct growth to occur within the existing city limits and the immediate fringe area
before growth is allowed to occur further from the core of the community.
Principle 10: Take Advantage of Compact Building Design. The Land Use Map
doesn’t directly affect compact building design – this is more influenced by policies
in the General Plan as well as zoning standards. However, the Land Use Map does
include land use designations that help to facilitate compact design including the
High and Medium High Density residential designations, and the Form Based Code
district for the downtown.
Principle 11: Enhance the Economic Vitality of the Region. The Land Use Map
appears to be laid out in a way to enhance the economic vitality of Fowler and the
region. The map provides an adequate supply of land for future growth and
development, including future commercial and industrial uses. This reflects the
vision of the community to strengthen the local economy and diversify jobs. Some of
this growth will occur at the expense of prime agricultural land which could have a
negative impact on the regional economy. The General Plan contains policies to
protect farmland and the City’s implementation of these policies will determine
their success.
Principle 12: Support Actions that Encourage Environmental Resource
Management. Land Use Map proposals, outlined in the discussion for Principles 7,
9 and 10, help support environmental resource management.
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City of Fowler General Plan Audit
General Plan Policy Consistency Evaluation and Recommendations
The following section evaluates the Fowler General Plan with respect to the 12
Blueprint Principles. For each principle, the evaluation lists the most supportive
policies that support that principle from various elements of the General Plan.
Principal 1: Create a Range of Housing Opportunities and Choices
It is important for cities to promote a variety of housing types because cities have a
variety of housing needs. Some residents may only be able to afford a small home or
a rental unit, such as singles, young couples and retired persons, while others may
desire single family homes on larger lots, such as families with children. It is
important for the City to establish mechanisms to ensure that all types of housing
can be provided in the community.
Fowler’s General Plan has four residential land use categories that correspond to
seven residential zone districts. Residential densities range from 1.00 unit per acre
up to 22 units per acre, and a corresponding population of 3 to 70 persons per acre.
This represents a wide range of densities which appears to support Principle #1.
Key General Plan policies that support this Principle include:
Land Use Element:
1.
Four residential categories are proposed intended to identify areas which are
acceptable for housing; clarify the overall type of housing to be developed
within each category; and allow for a mixture of housing types, lot sizes and
affordability. Types of housing include single family units, multiple family units
including duplexes and apartments, and mobile homes.
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Low Density: 1.0 - 3.6 units per gross acre. This category is characterized by
larger lots for single family residential development. Minimum lot size would be
10,000 square feet with lot sizes ranging from 10,000 to 12,000 square feet and
larger.
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Medium Low Density: 3.7 – 5.5 units per gross acre. Housing in this density
range is typical of recent subdivisions built in other Central Valley communities.
The intent of this classification is to provide locations for construction of
single-family homes with a minimum lot size of 7,000 square feet ranging to
10,000 square feet. Because housing at this density reaches the largest
residential market, it is expected to account for about half of all housing added
during the next twenty years.
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Medium Density: 5.6 - 13.5 units per gross acre. This category recognizes that
small lot single family and low density multifamily units will make up an
increasing percentage of the City's housing stock. Lots as small as 5,000 square
feet would be permitted as part of a Planned Unit Development.
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High Density: 13.6 - 21.8 units per gross acre. The High Density land use
category provides for the highest residential densities permitted in the City. It is
intended that this category utilize innovative site planning, provide on-site
recreation, and be located near major community facilities, business centers
and streets of at least collector capacity. Greater density for senior's housing
only may be achieved subject to a conditional use permit.
Recommendations:
1.
Fowler’s General Plan has created a foundation for the creation of a range of
housing opportunities and choice. The City will need to remain flexible to
ensure that new growth areas maintain housing choice and reasonable
densities as anticipated by the Blueprint Principles.
2.
The Medium Density designation is primarily implemented by the R-1-6 zone
district with a minimum 6,000 square foot lot size. Housing trends indicate
that many future single family detached projects will be proposed on smaller
lot sizes. The City has an R-1-5 zone district (minimum lot size of 5,000
square feet) and General Plan policy would also permit lot sizes as small as
5,000 square feet with a planned unit development in other single family
districts. The planned unit development process allows the waiver of certain
standards such as density in return for superior design and amenities (for
example, the Estrella project was approved as a planned unit development).
An issue with the planned unit development is that each project is unique
and not subject to a set of standards.
The City has received a tentative map with single family lot sizes as small as
4,500 square feet, and will likely receive similar proposals in the future. If the
Council desires to approve such projects, the City may need to consider
design guidelines for small lot development and adoption of a uniform
procedure to review such projects.
3.
The Medium High Density designation is primarily implemented by the RM-2
zone district which permits one unit/3,000 square feet or 14.5 units/acre.
The Medium High Density category, however, limits density to 13.6
units/acre and the City may wish to amend the text to remove this
discrepancy.
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4.
Please see associated discussion of density designations on the Land Use Map
on pages 5 and 6. Although the residential categories provide flexibility and
choice in the housing market, the actual designations on the Land Use Map
may need revision to provide a greater range of housing opportunities in the
long term.
5.
The City has not updated its Housing Element since 2003 but an update is
now underway. A key provision of the Housing Element is an adequate
inventory of parcels zoned for higher density use so as to increase
affordability. Following adoption of the Housing Element, the Land Use
Element and Land Use map should be amended to be consistent with
recommendations for rezoning of properties to higher density use. The next
update of the housing element is due in 2015, 18 months after adoption of
the Regional Transportation Plan by the Fresno COG.
6.
Each residential category indicates a range of density. The maximum density
indicated defines the number of units per gross acre within a given area. The
City should consider a policy that would require at least the minimum
number of units per gross acre indicated in the General Plan land use
category. For example, within the Medium Density category, residential
density would have to be developed at a minimum of 5.6 units/acre. This
requirement would encourage the location of certain residential product
types and densities consistent with adjacent land uses, access, public
services, and environmental concerns.
Principle 2: Create Walkable Neighborhoods
Development standards and design principles within most Valley cities center
around use of the automobile. The ability to walk from one neighborhood to another
is secondary to street and neighborhood design that facilitates easy automobile
movement and speed. The result has been the creation of neighborhoods and
districts where it is difficult and sometimes inhospitable to walk. Cities are
beginning to rediscover the importance of planning for walkability and bicycle use.
Key General Plan policies that support walkability include:
Land Use Element
1.
Where new residential development is proposed adjoining existing commercial
or industrial development, the residential developer shall be required to
provide an architectural transition, if needed, through the Conditional Use
Permit process. The transition may include such provisions as building
setbacks, landscaping and masonry wall requirements to benefit future
residents.
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Require residential developments along arterials to back-on to such streets
(with ornamental fencing, landscaping and waiver of access), or provide
frontage roads with limited points of access to the street. “Open ended
cul-de-sacs” to major streets are also encouraged for pedestrian access.
Circulation Element
1.
Develop street patterns for interior streets within new subdivisions to protect
neighborhoods from the intrusion of through traffic.
2.
Adjacent parking areas for large commercial and industrial developments
should be designed to allow interconnection and flow of traffic between these
facilities. Access easements and agreements should be obtained during the
development process.
3.
Provide a safe walking environment for pedestrians.
a) Subdivision layouts should include safe and pleasant designs which promote
pedestrian access to arterials and collectors and consider the location of
community services, such as schools, parks and neighborhood shopping activity
centers in the accessibility of their design for all persons.
b) Require the installation of sidewalks as an integral part of all street
construction where appropriate.
c) Require street lighting within the rights-of-way of all public streets.
d) Include pedestrian signal indicators as an integral part of the installation of
traffic signals.
4.
Maximize visibility and access for pedestrians and encourage the removal of
barriers (walls, easements, and fences) for safe and convenient movement of
pedestrians. Special emphasis should be placed on the needs of disabled persons
considering ADA regulations.
5.
Collaborate with the Fowler Unified School District to ensure that school
children have adequate transportation routes available, such as a local
pedestrian or bike paths, or local bus service.
Air Quality Goals and Policies
1.
The City shall review all subdivision street and lot designs, commercial site
plans, and multifamily site plans to identify design changes that can improve
access by transit, bicycle, and walking.
2.
Require as a part of the site plan review or subdivision process a description of
design measures proposed for the site. Some specific design features include:
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Subdivision street and lot designs that promote pedestrian, bicycle, and
transit use
Pedestrian access improvements and amenities (sidewalks, benches,
water fountains, landscaping, etc.)
Parking lot designs that enhance rather than detract from pedestrian
access
The location and type of bicycle improvements (bicycle parking/lockers,
relation to bike paths or routes serving the site)
Recommendations:
1.
Fowler’s General Plan has a strong set of policies to facilitate walkable
neighborhoods. A key recommendation is that these policies be converted
into standards in the Zoning Ordinance as well as the City’s Standards and
Specifications – where appropriate.
2.
Fowler’s standard in new growth areas is a monolithic sidewalk which is a
departure from the older mature neighborhoods in the City. This pattern
discourages pedestrian activity and the planting of street trees. Planting
strips should be required on all new residential streets with sidewalks a
sufficient width to allow for street trees within tree wells (to prevent roots
upheaving sidewalks) between the curb and the sidewalk.
3.
The following measures are recommended for street layout in new
subdivisions to encourage pedestrian activity:
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4.
Neighborhoods should be physically connected to one another via
local roadways and pedestrian paths.
New residential subdivisions should be laid out in grid or modified
grid pattern to create direct routes to surrounding development. Long
loop roads and cul-de-sacs should be limited. Cul-de-sacs, if used,
should allow for pedestrian and bicycle access to adjoining streets
where possible.
In designing new streets, consideration should be given to traffic
calming tools, such as bulb-outs at intersections, strategically placed
roundabouts, uniform or continuous street tree canopy, and textured
cross walks, among others.
There is an inconsistency between land use and circulation policies with
regard to sound walls for new residential development. While the Land Use
Element requires back-on treatment with sound walls along arterials, the
Circulation Element, “encourages the removal of barriers (walls, easements,
and fences) for safe and convenient movement of pedestrians.” In order to
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encourage walkability, designs should de-emphasize the use of block walls
where possible where they create barriers to pedestrian access.
5.
Where block walls are permitted for residential development along arterials
or collectors for noise control or other purposes, direct pedestrian and
bicycle entry to the major street is encouraged to allow access to sidewalks,
bike lanes, schools, and parks. Such “breaks in the wall” should be located
every 300 to 400 feet along the major street.
6.
For new commercial and multifamily development, the following general
principles should be followed:
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Avoid large expanses of parking lot. Parking areas should be screened
with smaller buildings set forward toward the street
Establish pedestrian plazas and walkways.
Use trellises and shade trees along walkways and in parking lots.
Direct pedestrian connections with adjacent commercial areas, transit
stops, and surrounding residential neighborhoods should be
encouraged.
Principle 3: Encourage Community and Stakeholder Collaboration
Citizens will live and work in the cities that we build, and therefore it is critical that
they be involved in the creation of policies and rules that guide development. If
cities are to involve citizens in planning and design, it is important that planning be
made accessible and easy to understand. In addition, cities must cooperate with
other agencies in local and regional issues. Examples of policies that reflect Principle
3 are those that require the City to involve the public and other agencies in the
planning process.
Key General Plan policies that support this Principle include:
Circulation Element
1.
Cooperate with adjacent communities and Fresno County to improve the
principal gateways to Fowler (Golden State Boulevard, Manning, Adams, and
Fowler) to facilitate the movement of traffic into and out of the City.
2.
The City shall consult with neighboring jurisdictions, affected agencies, and the
SJVAPCD to address cross-jurisdictional and regional transportation and air
quality issues.
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The City shall work with Caltrans and the Fresno COG to minimize the air
quality, mobility, and social impacts of large scale transportation projects on
existing neighborhoods.
Recommendations:
1.
The City has a solid track record for cooperation and consultation with other
agencies on regional issues and must continue to pursue those relationships.
Even though the General Plan update included extensive citizen
participation, the General Plan does not contain policies for continued
involvement of the community in the planning process.
2.
There are several strategies that the City could add to its program of public
involvement, including:




Clarify requirements for citizen input in the entitlement process,
including notification areas, neighborhood meetings, and use of the
City’s website for information related to the proposal;
Convert key sections of the Zoning Ordinance into user-friendly
brochures in English and Spanish to be available in the Planning
Office;
Display the Land Use Map, zoning map, and key policies in City offices
and Council chambers;
Hold an annual general plan review and goal setting workshop with
the public, Planning Commission, and City Council.
Principle 4: Foster Distinctive, Attractive Communities With a Strong Sense of
Place
In the San Joaquin Valley, there are few if any natural features that give cities a
distinctive setting – like a bay or shoreline, hills or mountains. Consequently, most
cities are laid out on a flat expanse and tend to look the same. As more ranch style
homes and chain stores develop in the Valley, the potential for losing unique sense of
place qualities diminishes.
Key General Plan policies that support this Principle include:
Overall Goals
1.
Require site plan review and architectural design review procedures for all
multi-family, commercial, and industrial development, including provisions for
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building setbacks, lot coverage, parking, access and circulation, outdoor
lighting, signage, and landscaping.
2.
Ensure that all development is attractive and of high quality design to enhance
the image of the city.
3.
As primary entrances to the City, Merced Street, Golden State Boulevard,
Manning Avenue, and Adams Avenue should reflect higher standards of
development. To promote these higher standards, a boulevard overlay district
should be developed in the zoning ordinance to contain provisions for minimum
building setbacks, landscaping, sidewalk pattern and street furniture, with
distinctions made between upgrade of existing uses and new development.
Proper orientation, design and architectural features shall be regulated
through the site plan review process.
4.
As the primary entrance to the downtown, special treatment should be
considered for Merced Street between Highway 99 and 4th Street. The
development and redevelopment process should include provisions for street
and sidewalk improvement, landscaping treatment, parking provisions,
preferred commercial uses, and overall design theme.
Land Use Element
1.
All residential projects shall provide usable open space within the boundaries of
the development. This open space shall be in addition to any development fees
paid for neighborhood or community park space.


2.
Within multifamily projects, a minimum of 10% of the project site shall be
developed with usable open space which could include swimming pools,
landscaping, and recreation/meeting rooms.
Within single family projects, either attached or detached, a minimum of 5% of
the project site shall be developed with usable open space which could include
common recreation areas, mini-parks, recreation trails, and landscaping. Such
open space shall be maintained by assessment district, landscape/lighting
district, homeowners' association, or other appropriate maintenance entity.
The City, in partnership with other community organizations, shall create
beautification programs encouraging voluntary participation from community
residents. These may include: adopting a street and park landscaping plan; tree
planting and landscaping in existing neighborhoods; and self-help
housing/building renovation and repairs.

Revitalize the downtown area through aesthetic improvements, specific
development plans and redevelopment, where applicable.
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Develop a Specific Plan for the precise planning and implementation of
programs to support the continued evolution of the downtown.
Adopt and implement pleasant and attractive streetscape designs
including street trees, lighting, sidewalks and planters, and signs.
Develop design guidelines for new construction and building renovation
in the Downtown, in keeping with the selected design theme.
Establish methods for inducing storefront rehabilitation.
The City will adopt provisions to improve commercial site planning standards
to enhance appearance and preserve the integrity including site plan review, of
nearby residential areas. Design standards should relate to architectural
design in keeping with the surrounding neighborhood, signage, and
landscaping.
Recommendations:
1.
There are many goals, objectives and policies in the General Plan that, if
implemented well, can help establish Fowler as a memorable, attractive city.
To ensure these goals are implemented, the City could take further steps by
refining standards in the Zoning Ordinance and also by creating and adopting
design guidelines.
2.
Small-lot residential products, including condominiums, should be
encouraged in appropriate locations to provide a variety of housing types,
styles, and affordability. Small-lot single family alternatives include detached
and attached units, zero lot line products, and “alley loaded” units adjacent to
local or collector streets.
Principle 5: Make Development Decisions Predictable, Fair, and Cost-Effective
The entitlement process within the City should make development decisions
predictable and fair. Key tools in the decision making process include the General
Plan, the Zoning Ordinance, the Subdivision Ordinance, the Development Fee
Ordinance, and the uniform building code. These documents should be internally
consistent and easily understood by the development community, staff, decision
makers and the public.
Development policies and standards must be responsive to the needs of the market.
At the same time, cities must ensure that development “pays its way” in order to
fund the services that cities provide – utilities, roads, police, fire, parks and other
services.
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Key General Plan policies that support this Principle include:
Circulation Element
1.
Require private developers to be primarily responsible for the improvement of
streets and highways to developing commercial, industrial, and residential
areas. These may include road construction or widening, installation of turning
lanes and traffic signals, and the improvement of any drainage facility or other
auxiliary facility necessary for the safe and efficient movement of traffic or the
protection of road facilities.
2.
Require private and public land developments to provide all on-site and off-site
facility improvements necessary to mitigate any development-generated
circulation impacts. The City may require applicants to provide traffic impact
studies prepared by qualified professionals to identify the impacts of a
development and necessary mitigation measures.
3.
Require dedication of necessary rights-of-way as part of the land division and
land use review processes.
Recommendations:
1.
The General Plan contains adequate policies to ensure that development is
reasonable and fair. The City will need to review its planning and
development fee structures on a regular basis to ensure compliance with
these policies.
2.
Update the water and storm drainage master plans, and any other specific or
master plans related to infrastructure development on a periodic basis.
3.
Developers should prepare an infrastructure and public services assessment
as part of the annexation application process to determine infrastructure
needs, feasibility, timing, and financing.
Principle 6: Mix Land Uses
With the advent of modern zoning, various uses have been separated to the greatest
degree possible so that entire neighborhoods and districts are now devoted to single
uses – residential neighborhoods, commercial areas, and industrial zones. There
was benefit to this model, as industrialization lead to serious health concerns for
those living in urban areas. The separation of uses has been taken to such a degree,
however, that most people must drive to get from one place to another, often for the
most simple of errands. This has resulted in cities making enormous investments in
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streets and highways with side effects such as air pollution, fuel consumption, and
traffic safety issues.
Most Valley cities are considering mixed use within their downtown or larger
commercial areas. The primary alternatives are the vertical mixed use building –
typically with stores, restaurants and offices on the ground floor, and residential
units on upper floors – and horizontal mixed use development, where residential
and commercial uses are situated in various interconnected buildings on one site.
Key General Plan policies that support this Principle include:
Land Use Element
1.
Residential uses shall be permitted by Conditional Use Permit in the Community
Commercial designation as part of a mixed-use concept.
Air Quality Goals and Policies
1.
The City shall encourage mixed-use developments, either horizontal or vertical,
that provide a combination of residential, commercial services, employment,
and cultural amenities.
2.
Designate mixed-use areas during general plan updates.
Recommendations:
1.
The General Plan encourages mixed use although policy development could
be expanded. For example, standards for mixed use could be identified with
minimum standards for residential development when mixed with offices or
retail commercial uses. The downtown should be the primary location for
mixed use within the Form Based Code district, although other commercial
zones should also be considered.
2.
The City should identify mixed use areas and simplify mixed use project
approval. In particular, mixed use should be considered a permitted use
rather than a conditional use in most cases to be implemented through site
plan review.
3.
Parking standards typically can be reduced for mixed use projects
recognizing that parking can be shared, as well as the inherent benefit of
mixed use that allows people to walk from one destination to another.
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Principle 7: Preserve Open Space, Farmland, Natural Beauty, and Critical
Environmental Areas
Most cities in the Valley are surrounded by world-class agricultural land and other
open space features. Thousands of acres of farm land have been converted to urban
uses over the past half-century and cities, counties and LAFCOs have discussed the
need to preserve farmland and natural resources, There have been few real
attempts and mechanisms established to achieve this seemingly-elusive goal.
Key General Plan policies that support this Principle include:
Land Use Element
1.
Establish the following open space land uses:



Agriculture. This designation provides sites for permanent agriculture,
as well as areas reserved for long-term urbanization.
Parks and Open Space. This designation determines areas of permanent
open spaces, parks and/or areas precluded from major development.
Public Facilities. This designation indicates areas owned and
maintained by public or institutional agencies such as facilities owned
by the city, schools, hospitals, and other facilities.
2.
The premature conversion of producing agricultural lands is discouraged. Steps
to reduce such conversion include phased growth, programmed extension of
urban services, and use of Williamson Act Contracts where urbanization is not
anticipated for at least 10 years.
3.
In locations where development may affect nearby agriculture, require that all
recorded deeds for newly subdivided lots include a Right-to-Farm Notice.
4.
New residential development shall be contiguous to existing urban
development where feasible.
5.
Established development priorities are:



Develop neighborhood park space in parts of Fowler deficient in such
space, including new annexations.
Improve existing neighborhood parks.
Develop a new 15 to 30-acre community park and special recreation
facilities.
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The City shall develop joint-use facilities, where feasible, with the Fowler
Unified School District and continue to use school sites for City recreation
programs.
Recommendations:
1.
Establish a threshold that must be achieved before allowing growth to
proceed from the existing city limits onto agricultural lands within the SOI.
Such a threshold could involve meeting a population target or a vacant land
inventory - such as 80% of the land in the existing city limits must be
developed before development may occur outside the city limits.
2.
Identify lands in the Williamson Act within the City or that are within likely
annexation areas. Adopt procedures for administrating the Williamson Act
within the City in order to keep these lands in agricultural production until
needed for urbanization.
3.
Consider a farmland preservation requirement - require developers to
mitigate the loss of prime farmland through participation in an easement
program or payment of an in-lieu fee.
4.
The Agriculture land use designation denotes lands not anticipated for
development within the time frame of the General Plan but which, because of
location within the SOI, would be expected to ultimately urbanize. Lands
within the Agriculture designation may not be developed, however, without
first amending the General Plan and after a need is demonstrated for
development in these areas, and that urban services can be provided without
adversely affecting the development feasibility of lands currently planned
and zoned.
5.
First priority should be given to development of vacant, underdeveloped,
and/or redevelopable land where urban services are or can be made
available. Parcels should be substantially contiguous to existing
development.
Principle 8: Provide a Variety of Transportation Choices
Transportation planning in valley communities is centered almost entirely around
the automobile. Problems such as increasing air pollution, noise, and public health
issues like obesity can be tied to exclusive automobile use. Cities are now realizing
that they must plan for alternative forms of transportation, including walking,
cycling and bus systems, among others. This affects not only transportation facilities
themselves but the way that future growth and development is arranged.
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Key General Plan circulation policies that support this Principle include:
Circulation Element
1.
Encourage transit alternatives to meet the basic transportation needs of the
young, the elderly, the disabled, and people without access to an automobile.
2.
Support the use of alternate fuel vehicles and fueling stations for City and
County vehicles and public transit vehicles.
3.
Incorporate the potential for public transit service in the design of major trip
attractors (i.e. community centers and employment centers).
4.
Provide bikeways in proximity to major traffic generators such as commercial
centers, schools, recreational areas, and major public facilities.
5.
Support installation of bike parking at public and private places of assembly
such as parks, schools, office buildings, churches, and retail commercial
developments.
Air Quality Goals and Policies
1.
The City shall consider measures to increase the capacity of the existing road
network prior to constructing more capacity (additional lanes, etc.).
2.
The City shall ensure that upgrades to existing roads (widening, curb and
gutter, etc.) include bicycle and pedestrian improvements in their plans and
implementation where appropriate.
3.
Coordinate with transit operators to ensure that pedestrian facilities are
provided along and/or near transit routes, whenever feasible. New land
developments may be required to provide pedestrian facilities due to existing or
future planned transit routes even if demand for a pedestrian facility is not
otherwise warranted.
Recommendations:
1.
The General Plan establishes a framework to promote a variety of
transportation methods – including walking, cycling and transit. The City will
need to ensure that recommended plans are prepared and that these policies
are converted to standards within the Zoning Ordinance and Standards and
Specifications.
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With any future update of the circulation element, the City will be required to
consider AB 1358, the California Complete Streets Act. The Act requires the
City to plan for a balanced, multimodal transportation network that meets
the needs of all users of the streets, roads, and highways for safe and
convenient travel.
Principle 9:
Communities
Strengthen
and
Direct
Development
Towards
Existing
This principle embodies several key objectives for smart growth – moderate
increases in residential densities, the infill of vacant or bypassed lands, preservation
of natural resources, and more efficient growth patterns. Urban sprawl has become
an increasingly important issue facing communities in the Valley. Too often with
development proposals, little thought is given to the loss of agricultural soils,
increased air pollution and fuel consumption, and increased cost for services and
infrastructure which must be extended further and further to serve new
development.
Key General Plan policies that support this Principle include:
Land Use Element
1.
In cooperation with Fresno County and the Fresno Local Agency Formation
Commission (LAFCO), adopt and maintain a Sphere of Influence consistent with
State annexation laws and LAFCO policy which provides for adequate lands for
growth over the next 20-year time-frame.
2.
Future urbanization should be phased to encourage contiguous land use where
possible. This includes concentration on the "in-filling" of vacant lands
by-passed by development.
3.
The City prefers contiguous urban development; this may not always be feasible
or possible, however, given short-term ownership and development constraints.
Development greater than 1/4 mile from existing urban uses shall be
discouraged.
4.
Annex residential land to the City as it is needed and reject proposals for
prezoning and annexation if they do not satisfy General Plan requirements
relating to orderly and contiguous development and public services and
facilities.
5.
Fowler's downtown area has its own unique character as a concentrated area
of retail, service and office uses. Future development should enhance the vitality
of the downtown as a focused commercial, office, banking and cultural center
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of the community while maintaining a mix of commercial and residential uses.
Specialty retail, office and banking uses should be encouraged in the downtown
rather than in other areas of the community.
Recommendations:
Recommended measures are similar to those listed in Principles 7 and 10 and
include strategies to add a measurable component to policies that would allow
expansion of growth boundaries:
Principle 10: Take Advantage of Compact Building Design
Any analysis of more efficient land use must include consideration of compact
building strategies – literally using less land to build cities – particularly housing
and commercial uses. It has been demonstrated that moderate increases in density
can go a long way toward preserving ag land and open space, as well as conserving
other resources such as water and air quality.
Key General Plan policies that support this Principle include:
Land Use Element
1.
Require all new development to provide adequate off-street parking based on
expected parking needs.
2.
The City shall:


Maintain the downtown area as a community services, cultural, and office
center with specialty shops and office space.
Develop the Merced Street corridor between Highway 99 and the downtown as
the main shopping/commercial location in the community. The City shall make
an effort to balance access to shopping while avoiding problems with
congestion.
Air Quality Goals and Policies
1.
The City shall provide for an orderly outward expansion of new urban
development so that it is contiguous with existing development, allows for the
incremental expansion of infrastructure and public services, and minimizes
impacts on the environment.
2.
The City shall encourage infill of vacant parcels.
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Support projects that infill vacant areas and areas contiguous on at least
one side to a developed area.
Work with landowners to re-designate vacant lands suitable for higher
densities during general plan updates and periodic reviews.
Encourage projects that increase pedestrian activity and mixed-uses.
Encourage commercial uses that are complimentary to employment
centers.
Develop design guidelines that incorporate compact development principles
for implementation by the City’s Development Review Committee (DRC).
Recommendation:
1.
The notion of compact design may raise concern because some communities
have had negative experiences with higher density development in the past.
One tool that Fowler could consider is the creation of design guidelines for
compact residential development – both single and multifamily residential.
Several Blueprint communities have requested assistance with “small lot”
design strategies as their Blueprint tool. Fowler should review the various
products that have been produced for these communities.
Principle 11: Enhance the Economic Vitality of the Region
Economic development is probably the most important goal of small cities in the
Valley. The primary focus of the Fowler General Plan update is to foster a climate
conducive for expanded and diversified economic development. Strong planning
policies and standards can have a beneficial impact on economic development.
Cities that manage growth and which are attractive and vibrant tend to attract
additional growth and economic development.
Key General Plan policies that support this Principle include:
Economic Development Element
1.
The City shall complete a targeting analysis to determine the types of
businesses appropriate to Fowler in each identified commercial and industrial
area. The target analysis should include evaluations of the following attraction
strategies:


Focus on Fowler's central and regional location to attract distribution
oriented businesses serving surrounding communities.
Expanding and enhancing community entertainment, events and
marketing to become a center for recreation and entertainment in
Fresno County.
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2.
The City shall pursue a program of tax base expansion to include both
industrial and market-area commercial uses. To this end, the City should:

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Reserve sufficient space for industrial and commercial uses, recognizing
greater land requirements due to methods of operation and marketing
needs.
Provide an inventory of land with a variety in locations to avoid
creating a monopoly on the land market.
Develop policies and regulations to protect industrial and commercial
areas from incompatible uses.
The City shall develop a marking plan for reaching targeting businesses and
industries. The marketing plan shall include targeting new business and
industries as well as new or expanded consumer markets, and include specific
promotional strategies for each.
Land Use Element
1.
Ensure that land divisions and developments are approved only when a
project's improvements, dedications, and fees fully cover incremental costs to
the City and other agencies. Such improvements and infrastructure include
parks, major streets, traffic signals, street lights, drainage systems, sewers,
water, fire, police, schools, and other related facilities.
2.
Consider providing public cost-sharing of public services under certain
circumstances to encourage desirable and innovative development within the
city.
3.
Establish the following commercial land use designations:




Neighborhood Commercial. This designation provides for a 10-acre or
smaller cluster of commercial establishments serving neighborhood
convenience and commercial needs, but also offering general
merchandise, variety, and specialty items.
Community Commercial. This designation provides the city with a mixed
use activity center oriented towards the downtown area as permitted in
the C-2 district. The designation may also be appropriate to commercial
areas outside the downtown as designated on the General Plan diagram.
General Commercial. This designation provides for a wide range of
retail and service activities along major traffic corridors.
Office Commercial. This designation provides for office development as
permitted in the C-P district. Commercial uses contemplated as part of
this category include business support services and support restaurant
and medical services.
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Highway Commercial. Highway commercial uses are permitted at the
interchange of major streets with Highway 99 and Golden State
Boulevard and are intended to provide for visitor-serving commercial
uses, including restaurants, lodging, and gasoline.
Circulation Element
1.
Use annexations, development agreements, revenue sharing agreements, tax
allocation agreements and the CEQA process as tools to ensure that new
development pays a fair share of costs to provide local and regional
transportation improvements and to mitigate cumulative traffic impacts.
2.
Participate in the establishment of regional traffic mitigation fees and/or
benefit districts to be assessed on new development. The fees shall cover a
reasonable share of the costs of providing local and subregional transportation
improvements needed for serving new development.
A primary tool for economic development has been lost with elimination of
redevelopment by the State. Policies within the General Plan that rely on
redevelopment for implementation may no longer be practicable.
Recommendations:
1.
Although the General Plan contains several policies to encourage and
facilitate economic development, the effectiveness of these policies depend
on continued vigilance by staff and the Council to pursue economic
development programs.
2.
Components of a marketing plan as advocated by adopted policy could
include the following topics:





3.
Land Resources; analysis of the supply of land for future commercial
and industrial development.
General Issues/Marketing; policies to ensure the City markets itself
and works with complementary agencies and organizations (EOC,
EDD, Chamber of Commerce, etc.) to further the City’s economic goals.
Business Retention/Expansion; strategies to assist existing businesses
to stay in Fowler and expand.
Infrastructure/public services; policies to ensure that infrastructure
systems and services are maintained as growth occurs.
Agriculture; policies to promote the area’s agriculture industry,
including agri-tourism.
Rehabilitation of existing structures to accommodate residential and office
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facilities on upper floors in the downtown area should be encouraged.
4.
Live/work units, in which the unit is both a place to live and a place of
business should be encouraged in the Downtown and Community
Commercial designation.
Principle 12:
Support Actions that Encourage Environmental Resource
Management
Principle 12 is somewhat similar to other principles, in particular Principle 7.
However, Principle 12 can be considered to broaden the scope of policies from
farmland protection to that of other resources such as water, air quality, and
biological resources.
Key General Plan policies that support this Principle include:
Circulation Element
1.
Protect City residents from transportation generated noise. Increased setbacks,
walls, landscaped berms, other sound-absorbing barriers, or a combination
thereof shall be provided along major roadways where appropriate in order to
protect adjacent noise-sensitive land uses from traffic-generated noise impacts.
Additionally, noise generators such as commercial or industrial activities shall
use these techniques to mitigate exterior noise levels.
2.
Encourage the use of non-polluting vehicles for both public and private uses.
Environmental Resources Management Element
1.
Develop the city ponding basin site located along Freeway 99 with minimal
recreational facilities, including but not limited to fencing and turf. This
location is not central to existing or planned future population centers.
2.
It will be the policy of the City to adopt and enforce a noise ordinance which
defines maximum allowable noise levels within residential, commercial, and
industrial areas and provides adequate means of enforcing these levels.
3.
The City will:



Consider street trees as a valuable resource worthy of conservation.
Maintain a street tree conservation program, the intent of which will be
to specify those trees which are suitable for use as street trees with the
City and to establish means of conserving these and existing trees.
Require the planting of street trees in accordance with the street tree
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conservation program with all new development and remodeling of
existing urban development within the City.
Air Quality Goals and Policies
1.
City fleet vehicle operators shall replace or convert conventional fuel vehicles
with clean fuel vehicles as rapidly as feasible.
2.
The City shall incorporate infrastructure to facilitate the use of clean-fuel
vehicles, such as a L/CNG refueling stations for clean fuel vehicles.
3.
The City shall require all access roads, driveways, and parking areas serving
new development to be constructed with materials that minimize particulate
emissions and are appropriate to the scale and intensity of use.
4.
The City shall cooperate with the local building industry, utilities and the
SJVAPCD to promote enhanced energy conservation standards for new
construction.




5.
Encourage the incorporation of energy conservation features in the
design of all new construction and the installation of conservation
devices in existing development.
Incorporate the most energy-efficient design feasible for all local
government facilities and equipment.
As many energy-conserving features as possible shall be included in
each new project. Examples include, but are not limited to, increased
wall and ceiling insulation, electrical and natural gas outlets installed
around the exterior of the units, solar installations, and each home
wired for computers/internet and electronic meter reading.
Support the use of electric vehicles, including golf carts and NEVs, where
appropriate.
Expand programs to recharge the groundwater supply.
Recommendations:
1.
With each development project, the City will need to assess whether
resources are present, what level of environmental study is warranted, and
what mitigation is required for those resources.
2.
The City should expand programs that enhance groundwater recharge in
order to maintain the groundwater supply, including:
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Utilize existing storm water basins for recharge and install new
percolation ponds in new growth areas.
Protect areas of groundwater recharge from land uses and disposal
methods which would degrade groundwater quality.
Promote activities which combine stormwater control and water
recharge.
Continue and expand water conservation programs.
Summary of Recommended Actions
As part of the General Plan implementation process, it is important that policies be
reviewed from time to time to ensure that they are effective. It may be determined
that some policies are less important, while other issues may have been missed and
should be added. General Plans should be subject to review and revision over time,
as necessary.
Fowler’s General Plan is recent (adopted in 2004 and amended in 2009) and is more
“Blueprint-friendly” than many General Plans in the Valley – especially older
General Plans. However, as the foregoing review demonstrates, several policy
recommendations and actions might be needed for Fowler to come into closer
consistency with the Blueprint Principles.
Recommendations from the Fowler General Plan Audit:
1.
The City would benefit from a review of Low Density and Medium Low
Density residential designations on the General Plan Land Use Map during
the next general plan update. For example, a shift of 50 acres from Low
Density to Medium Low Density and 100 acres from Medium Low to Medium
Density would increase the average density for new growth areas from 5.2 to
6.0 units/acre. This average density for new growth would more strongly
support the Blueprint and current market trends.
2.
A review should also be undertaken concerning the mix of single family vs.
multifamily development in the long term with emphasis on designating a
moderate amount of High Density for multifamily uses in new growth areas.
3.
Fowler’s General Plan has created a foundation for the creation of a range of
housing opportunities and choice. The City will need to remain flexible to
ensure that new growth areas maintain housing choice and reasonable
densities as anticipated by the Blueprint Principles.
4.
The Medium Density designation is primarily implemented by the R-1-6 zone
district with a minimum 6,000 square foot lot size. Housing trends indicate
that many future single family detached projects will be proposed on smaller
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lot sizes. The City has an R-1-5 zone district (minimum lot size of 5,000
square feet) and General Plan policy would also permit lots sizes as small as
5,000 square feet with a planned unit development in other single family
districts. The planned unit development process allows the waiver of certain
standards such as density in return for superior design and amenities (for
example, the Estrella project was approved as a planned unit development).
An issue with the planned unit development is that each project is unique
and not subject to a set of standards.
The City has received a tentative map with single family lot sizes as small as
4,500 square feet, and will likely receive similar proposals in the future. If the
Council desires to approve such projects, the City may need to consider
design guidelines for small lot development and adoption of a uniform
procedure to review such projects.
5.
The Medium High Density designation is primarily implemented by the RM-2
zone district which permits one unit/3,000 square feet, or 14.5 units/acre.
The Medium High Density category, however, limits density to 13.6
units/acre and the City may wish to amend the text to remove this
discrepancy.
6.
The City has not updated its Housing Element since 2003 but an update is
now underway. A key provision of the Housing Element is an adequate
inventory of parcels zoned for higher density use so as to increase
affordability. Following adoption of the Housing Element, the Land Use
Element and Land Use map should be amended to be consistent with
recommendations for rezoning of properties to higher density use. The next
update of the housing element is due in 2015, 18 months after adoption of
the Regional Transportation Plan by the Fresno COG.
7.
Each residential land use category indicates a range of density. The
maximum density indicated defines the number of units per gross acre
within a given area. The City should consider a policy that would require at
least the minimum number of units per acre indicated in the General Plan
land use category. For example, within the Medium Density category,
residential density would have to be developed at a minimum of 5.6
units/acre. This requirement would encourage the location of certain
residential product types and densities consistent with adjacent land uses,
access, public services, and environmental concerns.
8.
Fowler’s General Plan has a strong set of policies to facilitate walkable
neighborhoods. A key recommendation is that these policies be converted
into standards in the Zoning Ordinance as well as the City’s Standards and
Specifications – where appropriate.
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9.
Fowler’s standard in new growth areas is a monolithic sidewalk which is a
departure from the older mature neighborhoods in the City. This pattern
discourages pedestrian activity and the planting of street trees. Planting
strips should be required on all new residential streets with sidewalks a
sufficient width to allow for street trees between the curb and the sidewalk.
10.
The following measures are recommended for street layout in new
subdivisions to encourage pedestrian activity:



Neighborhoods should be physically connected to one another via
local roadways and pedestrian paths.
New residential subdivisions should be laid out in grid or modified
grid pattern to create direct routes to surrounding development. Long
loop roads and cul-de-sacs should be limited.
In designing new streets, consideration should be given to traffic
calming tools, such as bulb-outs at intersections, strategically placed
roundabouts, and textured cross walks, among others.
11.
There is an inconsistency between land use and circulation policies with
regard to sound walls for new residential development. While the Land Use
Element requires back-on treatment with sound walls along arterials, the
Circulation Element, “encourages the removal of barriers (walls, easements,
and fences) for safe and convenient movement of pedestrians.” In order to
encourage walkability, designs should de-emphasize the use of block walls
where possible where they create barriers to pedestrian access.
12.
Where block walls are permitted for residential development along arterials
or collectors for noise control or other purposes, direct pedestrian and
bicycle entry to the major street is encouraged to allow access to sidewalks,
bike lanes, schools, and parks. Such “breaks in the wall” should be located
every 300 to 400 feet along the major street.
13.
For new commercial and multifamily development, the following general
principles should be followed:




Avoid large expanses of parking lot. Parking areas should be screened
with smaller buildings set forward toward the street
Establish pedestrian plazas and walkways.
Use trellises and shade trees along walkways and in parking lots.
Direct pedestrian connections with adjacent commercial areas and
surrounding residential neighborhoods should be encouraged.
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14.
The City has a solid track record for cooperation and consultation with other
agencies on regional issues and must continue to pursue those relationships.
Even though the General Plan update included extensive citizen
participation, however, the General Plan does not contain policies for
continued involvement of the community in the planning process.
15.
There are several strategies the City could add to its program of public
involvement, including:




Clarify requirements for citizen input in the entitlement process,
including notification areas, neighborhood meetings, and use of the
City’s website for information related to the proposal;
Convert key sections of the Zoning Ordinance into user-friendly
brochures in English and Spanish to be available in the Planning
Office;
Display the Land Use Map, zoning map, and key policies in City offices
and Council chambers;
Hold an annual general plan review and goal setting workshop with
the public, Planning Commission, and City Council.
16.
There are many goals, objectives and policies in the General Plan that, if
implemented well, can help establish Fowler as a memorable, attractive city.
To ensure these goals are implemented, the City could take further steps
creating and adopting design guidelines.
17.
Small-lot residential products, including condominiums, should be
encouraged in appropriate locations to provide a variety of housing types,
styles, and affordability. Small-lot single family alternatives include detached
and attached units, zero lot line product, and “alley loaded” units adjacent to
local or collector streets.
18.
The General Plan contains adequate policies to ensure that development is
reasonable and fair. The City will need to review its planning and
development fee structures on a regular basis to ensure compliance with
these policies.
19.
Update the water and storm drainage master plans, and any other specific or
master plans related to infrastructure development on a periodic basis.
20.
Developers should prepare an infrastructure and public services assessment
as part of the annexation application process to determine infrastructure
needs, feasibility, timing, and financing.
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21.
The General Plan encourages mixed use although policy development could
be expanded. For example, standards for mixed use could be identified with
minimum standards for residential development when mixed with offices or
retail commercial uses. The downtown should be the primary location for
mixed use within the Form Based Code district, although other commercial
zones should also be considered.
22.
The City should identify mixed use areas and simplify mixed use project
approval. In particular, mixed use should be considered a permitted use
rather than a Conditional use in most cases to be implement through site
plan review.
23.
Parking standards typically can be reduced for mixed use projects
recognizing that parking can be shared, as well as the inherent benefit of
mixed use that allows people to walk from one destination to another.
24.
Establish a threshold that must be achieved before allowing growth to
proceed from the existing city limits to agricultural lands within the SOI.
Such a threshold could involve meeting a population target or a vacant land
inventory - such as 80% of the land in the existing city limits must be
developed before development may occur outside the city limits.
Identify lands in the Williamson Act within the City or that are within likely
annexation areas. Adopt procedures for administrating the Williamson Act
within the City in order to keep these lands in agricultural production until
needed for urbanization.
25.
26.
Consider a farmland preservation requirement - require developers to
mitigate the loss of prime farmland through participation in an easement
program or payment of an in-lieu fee.
27.
The Agriculture land use designation denotes lands not anticipated for
development but which, because of location within the SOI, would be
expected to ultimately urbanize. Lands within the Agriculture designation
may not be developed, however, without first amending the General Plan and
after a need is demonstrated for development in these areas, and that urban
services can be provided without adversely affecting the development
feasibility of lands currently planned and zoned.
28.
First priority should be given to development of vacant, underdeveloped,
and/or redevelopable land where urban services are or can be made
available.
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29.
The General Plan establishes a framework to promote a variety of
transportation methods – including walking, cycling and transit. The City will
need to ensure that recommended plans are prepared and that these policies
are converted to standards within the Zoning Ordinance and Standards and
Specifications.
30.
With update of the circulation element, the City will be required to consider
AB 1358, the California Complete Streets Act. The Act requires the City to
plan for a balanced, multimodal transportation network that meets the needs
of all users of the streets, roads, and highways for safe and convenient travel.
31.
The notion of compact design may raise concern because some communities
have had negative experiences with higher density in the past. One tool that
Fowler could consider is the creation of design guidelines for compact
residential development – both single and multifamily residential. Several
Blueprint communities have requested assistance with “small lot” design
strategies as their Blueprint tool and Fowler should review the various
products that have been produced for these communities.
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The effectiveness of economic development policies depend on continued
vigilance by staff and the Council to pursue economic development
programs.
33.
Components of a marketing plan as advocated by adopted policy could
include the following topics:





34.
35.
Land Resources; analysis of the supply of land for future commercial
and industrial development .
General Issues/Marketing; policies to ensure the City markets itself
and works with complementary agencies and organizations (EOC,
EDD, Chamber of Commerce, etc.) to further the City’s economic goals.
Business Retention/Expansion; strategies to assist existing businesses
to stay in Fowler and expand.
Infrastructure/public services; policies to ensure that infrastructure
systems and services are maintained as growth occurs.
Agriculture; policies to promote the area’s agriculture industry,
including agri-tourism.
Rehabilitation of existing structures to accommodate residential and office
facilities on upper floors in the downtown area should be encouraged.
Live/work units, in which the unit is both a place to live and a place of
business, should be encouraged in the downtown and Community
Commercial designation.
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36.
With each development project, the City will need to assess whether
resources are present, what level of environmental study is warranted, and
what mitigation is required for those resources.
37.
The City should expand programs that enhance groundwater recharge in
order to maintain the groundwater supply, including:




7.
Utilize existing storm water basins for recharge and install new
percolation ponds in new growth areas.
Protect areas of groundwater recharge from land uses and disposal
methods which would degrade groundwater quality.
Promote activities which combine stormwater control and water
recharge.
Continue and expand water conservation programs.
Next Steps in the Process
Fowler’s last update of the Land Use Element was in 2004 and other elements (i.e.,
Open Space, Conservation, Noise) are clearly outdated. Given the policies in the
Land Use Element, however – and more recently, those within the 2009 Air Quality
Goals and Policies – the General Plan is more “Blueprint-friendly” than many plans
in the Valley, especially older General Plans. As the foregoing review demonstrates,
it appears minor actions might be needed for Fowler to come into closer consistency
with the Blueprint Principles.
As the General Plan is updated, it is important that policies be reviewed to ensure
that they are effective. It may be determined that some policies are less important,
while other issues may have been missed and should be added. General Plans should
be subject to review and revision over time, as necessary. As noted previously, the
key to successfully updating and amending a General Plan is to work closely with a
local group such as the Planning Commission, though a series of workshops to
educate this group on the issues involved, and work with them to arrive at a
consensus on desirable standards.
As with many planning endeavors, prior to beginning, staff should have in mind a
clear vision of what they hope to attain with a General Plan update and
communicate that with the City Council to obtain clear direction and support.
Fowler is fortunate that its General Plan has a strong vision for the future, including
many policies that support the Blueprint.
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