LIST OF TABLES

LIST OF FIGURES

1.0 INTRODUCTION

1.1 PURPOSE

The Land Use Element provides the distribution, location and extent of uses of land for housing, business, industry, open space, agriculture, natural resources, recreation and enjoyment of scenic beauty, education, public buildings and grounds, solid and liquid waste disposal facilities, and other uses. For each appropriate land use category, it includes standards for population density and building intensity.

The Land Use Element and its policies guide growth and the development and use of land through 2005. The County recognizes that the policies of this plan represent a legislative balance between the individual rights of property owners and the health, safety, and welfare needs of the community at large. Decisions made pursuant to this plan shall further community goals and objectives while not unconstitutionally abridging property rights.

1.2 RELATIONSHIP TO OTHER ELEMENTS

The Land Use Element balances the various goals and objectives of the other elements of the general plan. The elements are internally consistent because:

Other elements such as the Public Safety Element may contain state mandated parts of the Land Use Element. In such cases, the other element is considered to be part of this element.

1.3 SCOPE AND ORGANIZATION

The Land Use Element has four major sections, the county wide land use policy framework, policies for each of nine planning areas, a land use plan map for each area, and an implementation program.

The county wide land use policy framework consists of nine general goals with related objectives and policies and descriptions of the land use categories which are applied to the land use maps. It should be noted here that the term "permitted uses" as used in the descriptions of the land use categories is intended to mean that such uses are consistent with the purpose of the category. The term does not imply that further discretionary entitlement may not be necessary prior to conduct of such uses.

The general goals, objectives, and policies apply throughout the County and are the basis for the more specific area policies, programs, and land use map designations. Future amendments to the Land Use Element should be reviewed based upon this policy framework and must conform to it.

Specific land use policies and a land use map are included for each of nine planning areas shown on Fig. LU-1 on page 23. The maps show applicable land use categories and maximum permitted density for each parcel. The maps show residential density as dwellings per acre in urban residential areas and acres per dwelling in rural areas.

The land use maps and text must be used together in order to fully understand the policies applicable to any particular situation. The land use maps have been prepared, to the extent possible, using the goals, objectives, and policies of the land use and other elements as well as those of previously adopted plans. Plan designations are based upon an evaluation of natural and cultural characteristics of the lands of Sonoma County as well as the countywide land use policy framework and specific area policies. However, the analyses did not always include a detailed study of the circumstances and environmental constraints of each specific parcel. The County recognizes that future detailed evaluation of specific properties may show that an alternate use is warranted. For this reason, upon proper application, the County will consider amendments to this plan. Denial of a specific property owner request through the update process should not prejudice the right of such owner to apply for a future plan amendment based on more specific environmental or other pertinent information.

In some cases, unincorporated "islands" surrounded by or adjacent to cities are not shown on the land use plan maps. They are designated as "rural residential" with a maximum permitted density of one dwelling per five acres. If any other land areas are not shown or do not have an assigned use category, those land areas shall be "rural residential" with a maximum density of one dwelling per ten acres.

Future changes to the land use plan maps, whether to change the use category or permitted residential density, may be accomplished only through the general plan amendment process, provided that minor technical corrections involving the exercise of no discretion may be made in order to accurately reflect the intent of the Board of Supervisors in adopting the General Plan. These corrections may be accomplished by consent calendar vote of the Board without a general plan amendment as it is construed by Section 65358 of the Government Code.

Further, where parcels which are the subject of a lot line adjustment are located in different land use categories, or other general plan designations, the following guidelines should be applied:

The final part of the land use element is the implementation program. It is intended to include specific measures to bring County land use regulations into conformance with the policies of this plan.

2.0 COUNTY WIDE LAND USE POLICY FRAMEWORK

2.1 GENERAL GOALS AND POLICIES

The County wide land use policy framework is the basis for the Land Use Element. The nine general goals relate to:

- growth projections and growth policy
- city and community centered growth
- compact city and community boundaries
- phasing of rural and urban growth with availability of adequate services
- open space separation between cities/communities
- opportunities for diverse rural and urban residential environments
- use of environmental suitability criteria to locate urban and rural growth
- protection of agricultural lands
- preservation of scenic features and biotic resource areas

2.1.1 Growth Projections and Growth Policy

Opinions differ whether or not the general plan should accommodate or attempt to restrict growth. This basic question affects the amount of projected growth in population and employment, its rate and timing, and its geographic distribution among the nine planning areas.

The main thrust of this debate is the extent of development which can occur without exceeding the carrying capacity of the natural environment, substantially lessening the quality of life for residents, or overloading public services such as roads, sewer and water supply, and criminal justice and public health facilities.

The Association of Bay Area Governments (ABAG) and California Department of Finance (DOF) project that the county's population will be about 475,000 by 2005. ABAG forecasts that employment will reach about 192,000 jobs by then. Projections by Sonoma County are slightly lower due to different assumptions about the effects of limited regional wastewater system capacity and transportation capacity in the Highway 101 corridor. This plan projects employment and population levels of 190,000 and 468,540, respectively, by 2005. Plan policies are geared toward ensuring that adequate public services and infrastructure are available to serve the projected population. Should growth substantially exceed plan projections, the implementation of plan policies to regulate the rate of growth will be necessary.

Figure LU-1

View full size Figure LU-1

Population and Demographics

The land use element is based upon the population projections in Table LU-1 on page 26 The county is expected to grow by about 7020 persons annually between 1990 and 2005 to an estimated 468,540 persons. These projections assume a declining growth rate after 1980.

Net immigration accounts for about 70 percent of the county's growth. In the eight cities, growth is the result of both immigration of new residents and annexations of existing households at the edges of the cities. Net population change in unincorporated areas includes losses due to these annexations as well as immigration of new residents. The eight cities would contain 68 percent of the county's population by 2005, compared with 56 percent in 1980. The emphasis upon urban growth is compatible with the growth and development policies of the eight cities.

The number of households is expected to increase to about 189,000 in 2005 (Table LU-2 on page 27). The number of households in unincorporated areas is expected to have a net increase of about 1,730 because the increase of 10,240 new units will be offset by annexation of about 8,510 existing units to the cities.

It should be noted that actual population for the unincorporated area may differ from the projections used in this plan at a given point in time. For instance, the January, 1988 estimated population in the unincorporated areas was 147,000, 11,500 higher than projected in this plan. About 24% of the difference is due to a slower rate of annexation by the cities. About 32% is likely due to an increased rate of new construction. The remaining 44% may be due to a number of factors, primarily conversion of seasonal dwellings to permanent use and increased average household size.

Labor Force and Employment: The resident labor force is projected to increase to about 241,000 as a result of both population growth and reduced unemployment rates (Table LU-3 on page 28). Women are expected to have a larger share of jobs than in the past.

The Land Use Element provides for additional job opportunities within Sonoma County to meet the needs of a larger population. Some residents, however, will continue to work elsewhere in the Bay Area. The economic base will likely continue to shift from resource production to "new technology" industries, retail trade and service jobs. Sonoma County has enough population and business activity to attract a secondary market sufficient to support retail and service industries typical of a regional center. Employment gains in retail trade and local services are projected to be the highest of any industry.

Notwithstanding the statistical trend towards "new technology" employment, the diversified agricultural industries in Sonoma County will continue to be a major factor in Sonoma County's economy. No new dairies are expected in the county, and some existing smaller dairies are anticipated to cease operation. However, herd sizes and production will likely increase. Employment is anticipated to remain constant. It is likely that an estimated additional 20,000 acres of grapes will be needed in addition to the present total of about 31,000 acres. Wineries may increase from about 150 to about 300. Vegetable and nursery crop production is increasing steadily. In both of those industries, employment will increase.

According to the Economic Development Board staff, the gross value of Sonoma County's agricultural products is multiplied 2.5 to 5 times in the county's economy. Based on over $200 million of raw products produced in 1987, Sonoma County now has a billion dollar agricultural economy. The trend toward added value in all agricultural industries in the county suggests both an expanding dollar base and increasing employment in the county's agricultural industries, although statistically many of these jobs will not be allocated to this sector of the economy.

In 1980, about 25,000 people commuted from homes in Sonoma County to jobs in other counties. Even with the projected job growth within the county, the number of out-commuters is likely to increase. However, the proportion of out-commuters is expected to drop from 19.5 percent (1980) to 18.6 percent (2005). The balance between population growth and employment is also likely to change. In 1980 there were .36 jobs per person. The projected ratio is .41 in 2005.

Table LU-1: POPULATION BY PLANNING AREA AND CITY, 1980 AND 2005

Sources: Sonoma County Planning Department, 1986 and 1990 population projections.

TABLE LU-2: SUMMARY OF SELECTED DEMOGRAPHIC DATA, CITIES AND UNINCORPORATED AREA, 1990 AND 2005

TABLE LU-3: LABOR FORCE, EMPLOYMENT AND COMMUTING, 1990 AND 2005

TABLE LU-4: EMPLOYMENT BY INDUSTRY: 1980, 1990, 2000 AND 2005

GOAL LU-1: Accommodate Sonoma County's fair share of future growth in the San Francisco Bay Area region as determined by the County and shown on Tables LU-2 and LU-3 in a manner consistent with environmental constraints, maintenance of the high quality of life enjoyed by existing residents, and the capacities of public facilities and services. Achieve a better balance between job opportunities and population growth.

Objective LU-1.1: Correlate development authorized by the land use plan maps (Figures LU-4a through LU-4i) with projected population and employment growth as shown on Tables LU-2 and LU-3. Provide an adequate but not excessive supply of residential, commercial and industrial lands to accommodate an additional 10,240 residential units in the unincorporated portions of the County over the 1990 baseline. 8,510 units are projected to be annexed during the 1990-2005 period.

Objective LU-1.2: Encourage the major share of commercial and industrial growth in the cities but permit a limited amount of this growth in unincorporated communities with urban services.

Objective LU-1.3: Designate lands within the various land use categories to make available residential and employment opportunities and to achieve a balance between job opportunities and population growth countywide, subject to any constraints of environmental suitability, protection of agriculture and other resource protection, and availability of public services.

In order to accomplish these objectives, the County shall use the land use maps and the following policies:

LU-1a: This plan has relied extensively upon policies and designations set forth in previous specific plans. The County shall continue to use "specific plans", "area plans", and "local area development guidelines" to implement this plan. The following existing plans shall be amended as may be necessary to comply with state law requirements for specific plans and to be consistent with the general plan. After review of development standards found in the following specific plans (1,2,3), those standards which further the purpose, goals and objectives of this plan may be found to be consistent with the general plan:

1) Windsor Specific Plan
2) Airport Industrial Specific Plan
3) Aggregate Resources Specific Plan

The following plans shall be amended as necessary to be consistent with the General plan and shall be termed "area plans" and shall be incorporated by reference herein. In any case where there appears to be a conflict between General Plan and Area Plan policies or standards, the more restrictive shall apply.

1) South Santa Rosa Plan
2) Bennett Valley Plan
3) Larkfield-Wikiup Plan
4) Sonoma Mountain Plan
5) West Petaluma Plan
6) Petaluma Dairy Belt Plan
7) Penngrove Plan
8) Franz Valley Plan

The following plans shall be repealed, but development guidelines contained therein shall be reviewed and updated and considered for adoption as "local area development guidelines", provided that they are consistent with the general plan. Until such a time that these guidelines are adopted, any policies contained in these plans shall continue to apply provided they are consistent with the general plan:

1) North Santa Rosa Plan
2) West Santa Rosa Plan
3) North Sonoma Valley Plan
4) South Sonoma Areas I and II
5) Lower River Plan
6) Hessel Plan
7) Russian River Plan
8) West Sebastopol Plan

The following plans shall be repealed:

1) Geyserville Plan
2) South Sonoma Areas III and IV
3) Barnett Valley Plan
4) Forestville Plan
5) Green Valley Plan
6) Harrison Grade Plan
7) Commercial Industrial Study

After the adoption of this plan, the County shall request an amendment of the Local Coastal Plan through the Coastal Commission to bring the Local Coastal Plan into conformance with the general plan.

The County may consider preparation of new Area or Specific Plans for the Forestville and Graton areas.

Where differences are found between the general plan and an applicable specific plan or area plan, the general plan shall supersede.

LU-1b: The County may prepare specific plans and/or area plans in additional areas of the County, primarily in areas with concentrations of commercial or industrial uses and in areas within urban service boundaries These plans may include measures which phase planned growth with public services.

LU-1c: Review and update population and economic growth projections. Review the general plan as necessary when ABAG or other appropriate agencies complete their determinations of regional housing needs. Nothing in this paragraph shall be construed to limit the power of the County to make an independent assessment of its fair share of regional growth.

LU-1d: Establish a growth monitoring system which measures the amount of building activity within the major use categories for each of the nine planning areas and for lands within the boundaries of each urban service area. Submit summary reports annually to the Board of Supervisors. Include in the monitoring system periodic assessments whether or not public services and infrastructure have kept pace with development.

LU-1e: If necessary, use zoning to regulate the timing of development to assure a better balance between jobs and population. Zoning may authorize a lower development potential than that allowed by the land use maps.

LU-1f: Amend the non-conforming use provisions of the zoning ordinance to allow for additional maintenance, restoration, reconstruction, and minor expansion of legal non-conforming uses.

LU-1g: Evaluate land use plan amendments subject to a) constraints of environmental suitability, b) protection of agriculture, c) availability of public services, d) the County projected population and employment levels, and e) other plan goals, objectives, and policies.

LU-1h: Notwithstanding the land use designations of this plan, development applications accepted as complete for filing prior to December 9, 1988 may be considered consistent with the land use map and other goals, objectives and policies of this plan if such application is determined to be consistent with the general plan in effect as of the date of filing. The purpose of this policy is to provide for the orderly transition and equitable treatment of development applications submitted in accordance with the 1978 General Plan.

LU-1i: In the event that the monitoring programs show inadequate public services for planned growth or that planned growth is significantly exceeding projections, consider moratoria on development entitlements, permit allocations or other growth management measures.

2.1.2 City and Community Centered Growth

Generally, concentrated growth allows greater efficiency and economy in providing public services, conserves agriculture and resource lands, and preserves the rural character desired by many of the county's residents. However, it may add to traffic congestion in some areas and may limit rural living opportunities.

In 1980, about 56 percent of the County's population (166,452) lived in the eight cities. Ten percent lived in the unincorporated communities shown in Figure LU-2 on page 33. The cities' population is predicted to increase to 317,500 in 2005, or 68 percent of the county total.

The capability of the unincorporated communities to provide water and sewer services varies. Of the 26 existing communities, fourteen (14) have both sewer and water systems. Eight (8) have water but rely on individual septic systems. One (1) has sewer only. Three (3) have neither water nor sewer systems. Some systems do not have unused capacity. The land use element has identified cities and selected unincorporated communities for future growth based in part upon available sewer and water capacities as well as the availability of other public infrastructure.

GOAL LU-2: Accommodate the major share of future growth within the eight existing cities and their expansion areas and within selected unincorporated communities which are planned to have adequate water and sewer capacities.

Objective LU-2.1: Accommodate a population increase of about 14,890 residents over the 1990 baseline in the unincorporated communities.

Objective LU-2.2: Allocate the largest amounts of growth to the Windsor and Larkfield-Wikiup communities. Allocate modest amounts of growth based upon the limits of their public services to Bodega Bay, Guerneville, South Santa Rosa, Penngrove, Boyes Hot Springs, El Verano, Geyserville, Occidental, Bodega, Cazadero, Freestone, Jenner, Forestville, Graton, Kenwood, Glen Ellen, Eldridge, Monte Rio, Valley Ford, and Bloomfield.

Objective LU-2.3: Limit the amount of population growth and development in rural portions of the county outside of the cities and the unincorporated communities identified above.

Objective LU-2.4: Coordinate with cities to maximize cooperative planning and implementation of the general plan.

The following policies, in addition to those in the Public Facilities and Services Element, shall be used to accomplish the above objectives:

LU-2a: Maintain a residential holding capacity that is as close as possible to projected growth. Consider denial of land use map amendments which add residential density in rural areas if residential holding capacity exceeds projected growth, recognizing that future development may not always use 100% of the capacity of all parcels.

LU-2b: Evaluate all city or city/county projects which affect the unincorporated area for consistency with the County general plan. Inform the Board of any project which may be inconsistent with the general plan. Work with the applicable city to resolve any inconsistencies in a manner which is consistent with the county general plan.

2.1.3 Compact City and Community Boundaries

Sprawling development generally results in more costly public services. Compact city and community boundaries provide a more efficient development pattern and lower these costs. However, while higher densities may reduce the amount of land needed for development, residents may feel that they adversely affect the quality of life in existing neighborhoods. The density of development at the urban fringe is also a concern. Therefore, two approaches can be used. One, "feathering", gradually reduces density as a transition between urban and rural areas. Another approach, "holding zones", maintains low density next to the urban boundary to reserve land for more efficient future development.

GOAL LU-3: Locate future growth within the cities and unincorporated urban service areas in a compact manner using vacant "infill" parcels and lands next to existing development at the edge of these areas.

Objective LU-3.1: Identify expansion area boundaries for the eight cities and for urban service areas in unincorporated communities so that the Local Agency Formation Commission (LAFCO) may consider them when adopting or amending spheres-of-influence or other urban service boundaries.

Figure LU-2

View full size Figure LU-2

Objective LU-3.2: Provide enough land for the expansion of cities and unincorporated urban service areas to accommodate, but not substantially exceed, the projected urban residential growth. Lands planned for urban development in each planning area are shown on the land use plan maps.

Objective LU-3.3: Encourage "infill" development within the expansion areas of the cities and unincorporated communities.

Objective LU-3.4: Reserve those lands just outside urban expansion or urban service boundaries which may be needed for urban development after 2005.

The following policies, in addition to those of the Public Facilities and Services Element, shall be used to accomplish the above objectives:

LU-3a: Submit a report to LAFCO on general plan conformity when it is considering a proposal to adopt or amend a sphere-of-influence or other urban service boundary for a city or for a special district with its own elected Board of Directors.

LU-3b: In urban service areas, maintain a residential holding capacity that is as close as possible to projected growth. Consider denial of land use map amendments which add residential density if residential holding capacity exceeds projected growth, recognizing that future development may not use 100% of the capacity of all parcels.

LU-3c: Avoid extension of sewer or water services outside of a sphere of influence or urban service area. Consider exceptions to this policy only:

1)	where necessary to resolve a public health hazard resulting from existing development, or
2)	where a substantial overriding public benefit, as authorized by policy OS-1c or OS -2c on pages 171 and 174 would result, unless the LAFCO has adopted a "no annexation" policy.
3)	Water Service only may be extended for a property which is located within a water district boundary in existence as of March, 1989.

LU-3d: Maintain a 10 acre or lower density in areas just outside urban service boundaries. Where the land use map indicates a higher density in such an area, avoid further density increases.

2.1.4 Phasing of Rural and Urban Growth with Availability of Adequate Public Services

If public services and facilities do not keep pace with development, the quality of service may deteriorate, adversely affecting the quality of life of existing residents. These services include roadways, law enforcement, fire protection, water, sewer, parks, mental and physical health facilities, etc.

In recent years, service expansion costs have been paid primarily by new, rather than existing, development. However, a requirement that all services be in place prior to approval of new development might unduly slow new construction. Since adequate public services are essential to existing and new residents, this element establishes policies which correlate growth and services and which phase development with provision of services.

The land use maps and text designate a number of locations where zoning will be more restrictive (allow less development) than the land use designation. Typically, this circumstance occurs within expansion areas of cities or where urban services will not be available until annexation by the applicable city. In these cases, zoning is used to limit development pending annexation.

Similarly, use of this technique might be applicable to lands under Williamson Act Contracts, lands which are subject to service constraints such as sewer or water moratoria, or traffic congestion, and lands subject to policies which exclude ancillary uses such as mobile homes, or second units.

GOAL LU-4.1: Maintain adequate public services in both rural and urban service areas to accommodate projected growth. Authorize additional development only when it is clear that a funding plan or mechanism is in place to provide needed services in a timely manner.

Objective LU-4.1 Assure that development occurs only where physical public services and infrastructure, including school and park facilities, public safety, access and response times, water and wastewater management systems, drainage, and roads, are planned to be available in time to serve the projected development.

Objective LU-4.2 Evaluate the need for and cost of providing social, criminal justice, mental and physical health and other similar services.

Objective LU-4.3: Reduce congestion on the countywide highway system by maintaining a "C" level of service or better on all designated arterial and collector roadways unless a lower level of service is shown on Figures CT-2c and CT-2d on pages 289 - 291 of the Circulation and Transit Element, a lower level of service is determined to be acceptable due to environmental or community values existing in some portions of the County, or the project(s) which would cause the lower level of service has an overriding public benefit which outweighs the increased congestion which would result.

Objective LU-4.4: Correlate new development with roadway improvements necessary to maintain the countywide levels of service set forth in Objective LU-4.3 or better on arterial and collector roadways.

The following policies, in addition to those included in the Public Facilities and Services and Circulation and Transit Elements, shall be used to accomplish the above objectives.

LU-4a: If necessary, use zoning to assure that development shall occur only if public services are adequate or improvements are made to maintain an acceptable level of service. One such method could involve the use of "dual zoning" which would specify zoning with services and zoning without services.

LU-4b: Use the levels of service shown on Figures CT-2c and CT-2d on pages 289 - 291 of the Circulation and Transit Element to determine whether or not congestion is exceeding the desired level of service on the countywide highway system. Use area and/or project traffic analyses to determine whether intersection impacts or other localized congestion may also affect these desired levels of service.

LU-4c: Assure that new development occurs only when a funding mechanism is available for improvements needed to achieve these levels of service. If the Board determines that a project will provide significant overriding public benefit, the project may be exempt from this requirement.

LU-4d: Assure that County-provided physical services and infrastructure will accommodate the projected amount of growth authorized by the land use plan. Prepare facility master plans based upon the holding capacity of the land use plan plus generally accepted engineering contingency factors. Periodically but no less than every 5 years assess the status of public services in relation to growth. Encourage public facilities planning and design beyond the 2005 horizon if the additional capacity does not induce increased pressure for population or employment growth in excess of that projected in the land use plan. Facility plans shall clearly delineate the portion of capacity allocated to growth after 2005. Work with the cities to assure that such services are adequate for existing and future residents. Use proposed annexations, redevelopment agreements, revenue sharing agreements, and the CEQA process as tools to ensure that incorporated development pay its fair share toward provision of these services.

LU-4e: Prepare a social and administrative services master plan which sets forth the projected countywide needs for these services and costs therefore. Work with the cities to assure that such services are adequate for existing and future residents. Use proposed annexations, redevelopment agreements, revenue sharing agreements, and the CEQA process as tools to ensure that incorporated development pay its fair share toward provision of these services.

LU-4f: Assure that new development contribute its fair share toward provision of the public services and infrastructure needed for projected growth.

2.1.5 Open Space Separation Between Cities/Communities

Community identity is an important aspect of the quality of life for many of the county's residents. Large, continuous areas of urban development where one city or community merges with another without visual relief may detract from this identity. On the other hand, property owners often consider areas between cities and communities to be prime land for development. The Land Use Element establishes policies consistent with the Open Space Element to reserve important open space lands between cities and communities.

GOAL LU-5: Identify important open space areas between the county's cities and communities. Maintain them in a largely open or natural character with low intensities of development.

Objective LU-5.1 Retain low intensities of use in open space "separators" between cities and communities along the Highway 101 corridor and within the central Sonoma County area as shown on Figure LU-3 on page 39.

Objective LU-5.2 Encourage formation of programs to preserve the visual and scenic character of community separators.

The following policies, in addition to those in the Open Space Element, shall be used to accomplish the above objectives.

LU-5a: The County shall neither approve extension of urban services into any community separator nor approve connection of any lot in a community separator to existing urban services except as allowed by policy LU-3c on page 35.

LU-5b: Revise specific or area plans to include community separator lands and implementing measures as necessary.

LU-5c: Avoid commercial and industrial land uses in community separators other than those allowed in the agricultural and resource categories or except as may be authorized by Policy OS-1c on page 171. Consider amendments for outdoor recreational or other uses with a low intensity of structures only in those community separators along the Highway 101 corridor.

LU-5d: Avoid amendments to increase residential density in community separators, since these densities were established based upon the policies set forth in other elements of this plan as well as the open space, separation, and visual considerations identified in this section. The integrity of community separators cannot be maintained at densities in excess of one unit per ten acres. However, under no circumstances shall this policy be used to justify an increase in density from that designated on the land use map.

LU-5e: Notwithstanding the density shown on the land use map, a two-lot subdivision of land is deemed consistent with the land use plan if the sole purpose of the subdivision is to create a parcel for preservation of rare and endangered species habitat or other biotic resources. Such subdivision shall not be deemed consistent with the land use plan unless the property owner agrees in writing that development on the subject parcel is limited to that necessary for and consistent with management of the preserve.

2.1.6 Opportunities for Diverse Rural and Urban Residential Environments

Sonoma County has a wide range of residential opportunities, from small urban to large rural lots. In rural areas, large lots may reduce the supply of land and increase conflicts with farming and other resource uses. Many believe that extensive areas of rural homesites should be made available in order to meet the demands of people leaving urbanized areas for homes in the country.

However, existing residents in rural communities and agricultural operations often oppose new development of this kind. In urban areas, those who desire opportunities for housing of different types and densities face opposition from existing residents who want to retain the existing neighborhood character.

GOAL LU-6: Diversify new residential development types and densities. Include a range of urban densities and housing types in the cities and in some unincorporated communities, and lower density in rural communities. In rural areas, housing types and densities should meet the needs of agricultural and resource users and provide limited residential development on large parcels.

Objective LU-6.1 Provide opportunities for a range of urban housing types and densities in Windsor, Larkfield-Wikiup, South Park, Bodega Bay, Guerneville, Forestville, and Boyes Hot Springs/El Verano/ Agua Caliente.

Objective LU-6.2 Retain a rural village character in other unincorporated communities but provide a range of housing types and densities.

Objective LU-6.3 Limit residential density to a maximum of one dwelling per acre in unincorporated communities with public water but without sewer systems.

Objective LU-6.4 Limit new rural residential development primarily to "infill" in those areas that already have concentrations of these uses.

Objective LU-6.5 Avoid further subdivision of rural lands which at the time of previous subdivision were given restrictive zoning on the remaining rural parcel.

Objective LU-6.6: Create two Rural Residential zoning districts which provide different levels of permitted crop and animal production in the Rural Residential land use category.

Objective LU-6.7: Encourage the development of adequate housing for farm workers and farm family members.

Objective LU-6.8: Provide opportunities for public and private schools and churches to locate in rural areas.

The following policies, in addition to those of the Agricultural Resources Element, shall be used to accomplish the above objectives:

LU-6a: General plan amendments which add rural residential development shall not be considered unless at a minimum the proposed new rural residential development: 1) would not result in deficiencies in private or public service capacities, 2) is not located in an agricultural production area and would not adversely affect existing or potential farming operations, 3) is on lands with adequate groundwater and septic waste disposal, and 4) would not adversely affect important natural features or resources.

LU-6b: Site specific environmental factors shall be considered in making decisions on development permits. Site specific factors which create health or safety problems or result in unmitigated significant environmental impacts may at times reduce densities which are allowed by the land use map and zoning.

LU-6c: Past subdivisions using a clustered design have exhausted general plan density, but left a remaining lot large enough to allow further division under the land use map. In these cases, restrictive zoning was used and shall continue to be used to show that there is no subdivision potential for the remaining lot. Unless it can be clearly demonstrated that the most recent general plan update intended to allow an increase in development potential, nothing set forth in this plan shall be construed to mean that development potential now exists for these lots.

LU-6d: Provide for different levels of crop and animal production in the Rural Residential land use category by creating an "Agriculture and Residential" and a "Rural Residential" zoning district, one which permits unlimited animal and crop production on parcels two or more acres in size, and one which limits agricultural activities regardless of parcel size. In neither zoning district will the agricultural activities be considered the primary use of the land; nor will all of the policies of the Agricultural Resources Element apply.

Figure LU-3

View full size Figure LU-3

LU-6e: Public schools in rural land use categories shall meet all of the following minimum criteria:

(1)	a requirement that the school district must obtain a use permit for any proposed facility, even though by State law the district is exempt from zoning regulations.
(2)	if in an agricultural category, the use shall not be located on lands currently used for agricultural production and shall not result in conflicts with agricultural production or related processing, support services, or visitor serving uses. If in a residential category, the use shall be compatible with residential category uses in the area.
(3)	conflicts with other resource production activities are avoided.
(4)	adequate public services and infrastructure must be available for the use, without inducing growth in an area where it is not projected or planned.
(5)	the district shall demonstrate that a need exists for the proposed facility based upon projected growth in the district and that no economically feasible alternative location for the school facility is available in an urban land use category.
(6)	the site has frontage on a designated collector or arterial roadway.

LU-6f: Private nursery, primary or secondary schools and churches in rural land use categories shall meet all of the following minimum criteria:

(1)	the school or church must obtain a use permit prior to initiation of the use.
(2)	the use shall not be located on lands currently used for agricultural production and shall not result in conflicts with agricultural production or related processing, support services, or visitor serving uses.
(3)	conflicts with other resource production activities are avoided.
(4)	adequate public services and infrastructure must be available for the use, without inducing unplanned growth.
(5)	sites are limited to existing parcels less than 5 acres unless an agricultural, scenic, or other in perpetuity easement is applied to the portion of the site not part of the proposed use.
(6)	the site has frontage on a designated collector or arterial roadway.
(7)	the use primarily serves a congregation or student body which resides in the community in which the proposed use is to be located.

LU-6g: Housing Opportunity areas for the development of affordable housing are designated as follows:

(1)	Type A Housing Opportunity Areas are permitted in the urban medium and high density areas, subject to compliance with all of the requirements of Policy HE-2g on page 128 concerning such projects.
(2)	Type C Housing Opportunity Areas are permitted in the urban low density areas subject to compliance with all of the requirements of Policy HE-2g concerning such projects.
(3)	A parcel or parcels of land consistent (1) or (2) above may be specifically designated as a Housing Opportunity Area during the review of the specific plans and area plans."

2.1.7 Use of Environmental Suitability Criteria in Locating and Guiding Rural and Urban Growth

Development in parts of Sonoma County could result in exposure of people and property to environmental risks or hazards. Flooding, fire and seismic hazards, landslides, erosion and scarcity of ground water are examples.

Some land is especially sensitive to intense development. Many of these same characteristics, however, often make land attractive as a rural homesite. As a result, opinions differ as to the extent of development which should be allowed in these areas.

GOAL LU-7: Prevent unnecessary exposure of people and property to environmental risks and hazards. Limit development on lands that are especially vulnerable or sensitive to environmental damage.

Objective LU-7.1 Restrict development in areas which are constrained by the natural limitations of the land, including but not limited to, flood, fire, geologic hazards, groundwater availability and septic suitability.

The following policies, in addition to those in the Open Space, Resource Conservation, and Public Safety Elements, shall be used to accomplish the above objective

LU-7a: Avoid general plan amendments which would allow additional development in floodplains, unless such development is of low intensity and does not include large permanent structures.

LU-7b: Limit development in wetlands designated on Figure OS-3 on page 183.

LU-7c: Prohibit new permanent structures within the floodway. Require that any development that may be permitted within the floodplain to be raised above the 100-year flood elevation.

LU-7d: Avoid commercial, industrial, and residential land use designations in areas subject to "high" or "very high" fire hazards, as identified in the Public Safety Element, unless the combination of fuel load, access, water supply, and other project design measures will reduce the potential fire-related impacts of new development to insignificant levels.

2.1.8 Protection of Agricultural Lands

Agriculture is a major part of Sonoma County's economy. Many types of agriculture exist, including vineyards, orchards, dairies, forage crops, specialty crops, and livestock. Farms are both full time and part time operations. Agricultural production in some areas is threatened both by pressures of urban development and by creation of small residential lots in the midst of agricultural lands. Continued farming is also affected by changes in commodity prices. The resulting economic pressure on the farmer can lead to requests for land divisions. Land use policy in agricultural areas must consider 1) the extent to which more small residential lots should be allowed 2) the need for agricultural support services in rural areas, and 3) the extent of visitor serving uses which may be compatible with farming.

GOAL LU-8: Protect lands currently in agricultural production and lands with soils and other characteristics which make them potentially suitable for agricultural use. Retain large parcel sizes and avoid incompatible non-agricultural uses.

Objective LU-8.1: Avoid conversion of lands currently used for agricultural production to non-agricultural use.

Objective LU-8.2: Retain large parcels in agricultural production areas and avoid new parcels less than 20 acres in the "Land Intensive Agriculture" category.

Objective LU-8.3: Agricultural lands not currently used for farming but which have soils or other characteristics which make them suitable for farming shall not be developed in a way that would preclude future agricultural use.

Objective LU-8.4: Discourage uses in agricultural areas that are not compatible with long term agricultural production.

Objective LU-8.5: Support farming by permitting limited small scale farm services and visitor serving uses in agricultural areas.

In addition to the policies of the Agricultural Resources Element, the following policies shall be used to accomplish the above objectives:

LU-8a: Unless allowed by Policy OS-1c or OS-2c on pages 171 and 174, limit extensions of urban services into any agricultural production area to parcels with a health or safety problem. Out-of-service area agreements are the preferred method of extending service in such cases.

LU-8b: Apply a base zoning district of agriculture for any land area designated on the land use plan map for agriculture. Other overlay zoning districts may be applied where allowed by the agricultural land use category. Add an agricultural services zoning district or combining district to the zoning ordinance.

LU-8c: Use rezonings, easements and other methods to insure that development on agricultural lands does not exceed the permitted density except where allowed by the policies of the Agricultural Resources Element.

LU-8d: Deny general plan amendments which convert lands outside of designated urban service areas with Class I, II, or III soils (USDA) to an urban or rural residential, commercial, industrial, or public/quasi public category unless all of the following criteria are met:

1)	The use is not in an agricultural production area and will not adversely affect agricultural operations.
2)	The supply of vacant potential land for the requested use is insufficient to meet projected demand.
3)	No areas with other soil classes are available for non-resource uses in the planning area.
4)	An overriding public benefit will result from the proposed use.

Amendments to recognize a pre-existing use are exempt from this policy. Public uses such as parks and sewage treatment plants may be approved if an overriding public benefit exists

2.1.9 Preservation of Scenic or Biotic Resources Areas

Sonoma County has many areas with important biotic resources or scenic qualities which are especially vulnerable to the impacts of development. These include wetlands, tidal lands, dunes, sea cliffs, marine terraces, headlands, watershed areas, unique geologic formations and rare or endangered plant or animal habitats. Often, these resources physically limit the manner in which these areas can be developed. The types of uses and intensities of development that are compatible with preservation of these resources must be considered together with the owners concerns about the potential effects of any development restrictions on property values.

GOAL LU-9: The uses and intensities of any land development shall be consistent with preservation of important biotic resource areas and scenic features.

Objective LU-9.1: Accomplish development on lands with important biotic resources and scenic features in a manner which preserves or enhances these features.

In addition to policies in the Open Space and Resource Conservation Elements, the following policies shall be used to accomplish the above objectives

LU-9a: Establish maximum densities and/or siting standards for development in community separators, scenic landscape units, critical habitats, riparian corridors, and scenic corridors.

LU-9b: Use incentives to encourage voluntary easements when considering development on lands with important biotic or scenic resources.

LU-9c: Develop programs for preservation and enhancement of important biotic resource areas with emphasis on lands surrounding the Laguna de Santa Rosa and San Pablo Bay.

2.2 RESIDENTIAL USE POLICY

Two residential land use categories are used on the land use plan maps, urban residential and rural residential. The urban residential category may be utilized only within an urban service area. Maximum residential densities are shown on the land use plan maps. While other land use categories may permit limited or incidental residential use, only these shall be considered residential use categories. The designation criteria shall be applied when considering future plan amendments. Additional standards applicable to development on residential lands may be included in the zoning and subdivision ordinances and in specific or area plans or local area development guidelines.

2.2.1 Policy for Urban Residential Areas

Purpose and Definition: This category includes land planned for a full range of urban services for residential development. It accommodates a variety of housing types, such as stick-built and manufactured homes, and all tenure types, depending upon the density assigned on the land use maps.

Permitted Uses:

Primary land used in high density residential areas are attached single family and multi-family dwellings, Housing Opportunity Area Type A projects, and mobile home parks.

Primary land uses in medium density residential areas are single family, clustered, and multi-family dwellings, Housing Opportunity Area Type A projects, and mobile home parks.

Primary land uses in low density residential areas are detached single family, clustered, and attached dwellings and Housing Opportunity Area Type C projects.

Permitted Residential Densities and Development Criteria:

Permitted residential density ranges from one to twenty units per gross acre and is shown on the land use map, provided, however that where a Housing Opportunity Area Type A or Type C project is proposed in a low density area, medium density area or a high density area, the residential density for such project may be increased in accordance with the provisions of Policy HE-2g on page 128. Three density ranges are included which provide for a variety of housing types as described above. Building permit approval shall require connection to public sewer and/or water. Residential densities on the land use maps are based upon availability of urban services and infrastructure, land use compatibility, environmental suitability, projected growth, neighborhood character, and other factors in previous plans.

High density residential areas range from 12-20 units per gross acre. Density bonus units, Housing Opportunity Area bonus units and "second units" are in addition to permitted density.

Medium density residential areas range from 6-12 units per gross acre. Density bonus units, Housing Opportunity Area bonus units and "Second Units" are in addition to permitted density.

Low density residential areas range from 4-6 units per gross acre provided that the density for a Housing Opportunity Type C project may be increased as provided for in Policy HE-2g.

Designation Criteria: Amendments to add this designation must meet all of the following:

2.2.2 Policy for Rural Residential Areas

Purpose and Definition: This category provides for very low density residential development on lands which have few if any urban services but which have access to county maintained roads.

Permitted Uses: The primary use shall be detached single family homes. Secondary uses include attached dwellings, farming, small scale animal husbandry, home occupations, small scale home care and group care facilities, public and private schools and churches, and other uses incidental to and compatible with the primary use. Consistent with policy LU-6d on page 38 this category will allow application of a rural residential district which limits agricultural activities or an agricultural and residential district which allows unlimited animal and crop production on parcels of 2 acres or more. "Second units" ("granny units") may be considered where also compatible with existing neighborhoods.

Permitted Residential Density and Development Criteria: Densities range from one to twenty acres per dwelling as shown on the land use map. Maximum density may be applied based upon the following: similar density of existing lots in the surrounding area, suitable soils for septic disposal, available water, environmental suitability, access to arterial or collector roads, proximity of commercial services and public services and facilities, and no significant impacts on agriculture and resource production activities. Lot sizes smaller than one and one-half acres shall not be created if the residence is to be served by individual well and septic system. New lots may be as small as one acre if the residence is to be served by a public water system. New development should preserve the e