town of los gatos 2040 general plan · 2019-03-15 · the los gatos general plan is made up of two...

Background ReportPublic Draft | March 2019

Town of Los Gatos2040 General Plan

Background ReportPublic Draft | March 2019

Prepared by:Town of Los Gatos

Town of Los Gatos2040 General Plan

Town of Los GatosPlanning Division110 E. Main Street

Los Gatos, CA 95030

Laurel Prevetti Town Manager

Joel Paulson, Community Development Director

Sally Zarnowitz, Planning Manager

Jennifer Armer, Senior Planner

In association with:Mintier HarnishRincon ConsultantsFehr & PeersADEWRT

Page ii Public Draft Background Report | March 2019

4: Mobility

4.1 Roadways and Functional Classifications ....................................... 4-4 4.2 Multimodal System............................................................................... 4-8 4.3 Complete Streets ................................................................................ 4-24 4.4 Pedestrian Facilities ........................................................................... 4-25 4.5 Bicycle Facilities .................................................................................. 4-27 4.6 Transit Services and Facilities .......................................................... 4-33 4.7 Vasona Light Rail ................................................................................ 4-39 4.8 Goods Movement ............................................................................... 4-40 4.9 Transportation Demand Management ........................................... 4-43 4.10 Parking .................................................................................................. 4-44 4.11 Regulatory Setting .............................................................................. 4-47 4.12 References ........................................................................................... 4-50

5: Public Facilities, Services, and Infrastructure

5.1 Water ....................................................................................................... 5-4 5.2 Wastewater ............................................................................................ 5-9 5.3 Storm Drainage and Flood Protection ............................................ 5-13 5.4 Solid Waste Disposal and Recycling ............................................... 5-19 5.5 Utilities .................................................................................................. 5-22 5.6 Public Facilities and Services ........................................................... 5-27 5.7 Law Enforcement ................................................................................ 5-28 5.8 Fire Protection ..................................................................................... 5-33 5.9 Emergency and Medical Services .................................................... 5-39 5.10 Schools and Childcare ....................................................................... 5-43 5.11 Libraries ................................................................................................ 5-48 5.12 Town Arts ............................................................................................. 5-50 5.13 References ........................................................................................... 5-51

6: Open Space, Parks, and Recreation

6.1 Open Space Classifications ................................................................ 6-2 6.2 Open Space and Preservation ............................................................ 6-4 6.3 Parks and Recreation Facilities .......................................................... 6-7

6.4 References ........................................................................................... 6-18

7: Environment and Sustainability

7.1 Aesthetics ............................................................................................... 7-6 7.2 Agricultural and Forestry Resources ............................................... 7-12 7.3 Biological Resources .......................................................................... 7-18 7.4 Air Quality ............................................................................................. 7-27 7.5 Climate Change/Greenhouse Gas Emissions ............................... 7-30 7.6 Cultural and Historical Resources ................................................... 7-37 7.7 Tribal Cultural Resources .................................................................. 7-42 7.8 Geology and Soils ............................................................................... 7-43 7.9 Hydrology and Water Quality ............................................................ 7-50 7.10 References ........................................................................................... 7-54

8: Hazards and Safety

8.1 Emergency Preparedness, Response, and Recovery ..................... 8-4 8.2 Geological and Seismic Hazards ....................................................... 8-7 8.3 Flood and Inundation Hazards ......................................................... 8-18 8.4 Urban and Wildland Fire Hazards .................................................... 8-27 8.5 Noise ..................................................................................................... 8-32 8.6 Aviation Hazards ................................................................................. 8-36 8.7 Hazards and Hazardous Materials .................................................. 8-39 8.8 References ........................................................................................... 8-46

9: Housing 9.1 Housing Needs Summary ................................................................... 9-3 9.2 References ............................................................................................. 9-8

Appendix A: Traffic Counts

A Traffic Counts ........................................................................................ A-1


4: Mobility






6.4 References ........................................................................................... 6-18








Table of Contents

Public Draft Background Report | March 2019 Page i

1: Introduction 1.1 What is a General Plan? ....................................................................... 1-2 1.2 Using the General Plan ......................................................................... 1-2 1.3 Regional Setting .................................................................................... 1-3 1.4 Los Gatos Boundaries .......................................................................... 1-5 1.5 Institutional Environment .................................................................... 1-5 1.6 Organization of the Background Report ........................................... 1-6 1.7 Format of the Background Report ..................................................... 1-7

2: Los Gatos Today

2.1 Demographic Trends ............................................................................ 2-2 2.2 Fiscal/Financial ..................................................................................... 2-8 2.3 Economic Development..................................................................... 2-13 2.4 References ........................................................................................... 2-35

3: Land Use

3.1 Planning Boundaries ............................................................................ 3-3 3.1 Existing Land Use.................................................................................. 3-6 3.2 Existing General Plan Land Use Designations ............................... 3-10 3.3 Existing Zoning .................................................................................... 3-16 3.4 Other Plans and Policies .................................................................... 3-25 3.5 Other Agency and Regional Plans.................................................... 3-28 3.6 Military Institutions and Installations .............................................. 3-29 3.7 Development Capacity ....................................................................... 3-30 3.8 Environmental Justice and Disadvantaged Unincorporated

Communities. ...................................................................................... 3-34 3.9 Community Design ............................................................................. 3-35 3.10 References ........................................................................................... 3-56


4: Mobility






6.4 References ........................................................................................... 6-18








1. Introduction

Public Draft Background Report | March 2019 Page 1-1

Chapter Contents

1.1 What is a General Plan? ............................................................................ 1-2

1.2 Using the General Plan ............................................................................. 1-2

1.3 Regional Setting ......................................................................................... 1-3

1.4 Los Gatos Boundaries .............................................................................. 1-5

1.5 Institutional Environment ......................................................................... 1-5

1.6 Organization of the Background Report ................................................ 1-6

1.7 Format of the Background Report .......................................................... 1-7

This chapter describes the purpose and organization of the Town of Los Gatos General Plan, including an overview of the General Plan, why it is prepared, and why it is important. This chapter also provides an overview of the purpose, format, and organization of this General Plan Background Report.

1. Introduction

1

2 Public Draft Background Report | March 2019

1.1 What is a General Plan?

Every jurisdiction in California must have a General Plan, which is the local government’s long-term framework or “constitution” for future growth and development. The General Plan represents the community’s view of its future and expresses the community’s goals. The General Plan contains goals and policies upon which the Town Council and Planning Commission will base their land use and resource decisions. California State law requires that each Town, City, and County must adopt a General Plan for the physical development of the jurisdiction and any land outside its boundaries that bears relation to its planning. Typically, a General Plan is designed to address the issues facing the jurisdiction for the next 20 years.

A General Plan typically has four defining features:

▪ General. A General Plan provides general policy guidance that will be used to direct future land use and resource decisions.

▪ Comprehensive. A General Plan is comprehensive, covering topics such as land use, housing, economic development, infrastructure, public safety, recreation, natural resources, and much more.

▪ Long-Range. A General Plan provides guidance on reaching a future envisioned 20 or more years in the future. To achieve the vision, a General Plan includes goals, policies, and actions that address both immediate and long-term needs.

▪ Integrated and Coherent. The goals, policies, and implementation programs in a General Plan present a comprehensive, unified program for development, resource conservation, and other issues that impact the community. A General Plan uses a consistent set of assumptions and projections to assess future demands for housing, employment, and public services (e.g., infrastructure). A General Plan has a coherent set of policies and implementation programs that enables citizens to understand the vision of the General Plan, and enables landowners, businesses, and industry to be more certain about how policies will be implemented.

A General Plan is made up of a collection of “elements,” or chapters, of which nine are mandatory. The nine State-mandated elements are: land use, circulation, housing, conservation, open space, noise, safety, air quality, and environmental justice. Communities may include other elements that address issues of particular local concern, such as economic development or urban design. Communities can also organize their General Plan anyway they choose, as long as the required topics are addressed.

The General Plan is not to be confused with zoning. Although both the General Plan and the zoning ordinance designate how land may be developed, they do so in different ways. The General Plan has a long-term outlook. It identifies the types of development that will be allowed, the spatial relationships among land uses, and the general pattern of future development. Zoning regulates development through specific standards such as lot size, building setbacks, and allowable uses. However, the land uses shown on the General Plan diagrams will typically be reflected in the local zoning maps as well, as they are both required to be consistent per State law. Development must not only meet the specific requirements of the zoning ordinance, but also the broader policies set forth in the General Plan.

1.2 Using the General Plan

The General Plan is used by the Town Council, Planning Commission, and Town staff to make decisions with direct or indirect land use implications. It also provides a framework for inter-jurisdictional coordination of planning efforts among officials and staff of the Town and other government agencies (e.g., Federal, State, and local). Town residents, property owners, and businesses also use the General Plan for guidance on Town policies for particular geographic areas or for particular subjects of interest to them.

The General Plan is the basis for a variety of regulatory measures and administrative procedures. California planning law requires consistency between the General Plan and its implementing programs, such as zoning and subdivision ordinances, capital improvement programs, specific plans, environmental impact procedures, and building and housing codes.

1. Introduction


Over time, the Town’s population will likely increase, its goals will evolve, and the physical environment in which its residents live and work will change. In order for the General Plan to be a useful document, it must be monitored and periodically revised to respond to and reflect changing conditions and needs over time.

The General Plan should be reviewed annually, with a more comprehensive and thorough review and revision done every five to ten years to reflect changes in local conditions, new local priorities, or State law. State law permits the General Plan to be amended up to four times in any calendar year, unless special conditions apply as defined by Government Code Sections 65358(c) and (d). Each amendment may contain more than one change to the General Plan.

The Los Gatos General Plan is made up of two documents: the Background Report and the Policy Document. The chapters in the Background Report basically mirror the General Plan so that information can be easily referenced by subject or topic. The following paragraphs provide a summary of these two component documents:

▪ Background Report. The Background Report takes a “snapshot” of current (2018) conditions and trends in Los Gatos. It provides a detailed description of a wide range of topics within the Town, such as demographic and economic conditions, land use, public facilities, and environmental resources. The report provides decision-makers, the public, and local agencies with context for making policy decisions. Unlike the Policy Document, the Background Report is objective and policy-neutral. The Background Report also serves as the “Environmental Setting” section of the Environmental Impact Report (EIR) prepared for the General Plan.

▪ Policy Document. The Policy Document is the essence of the General Plan. It contains the goals and policies that will guide future decisions within the Town. It also identifies a set of implementation programs that will be used to ensure the goals and policies in the General Plan are carried out.

As part of the Town of Los Gatos General Plan update process, the Town will also prepare the following General Plan supporting documents:

▪ Issues, Opportunities, and Constraints Summary. The Issues, Opportunities, and Constraints Summary will summarize the key issues, opportunities, and constraints identified based on the findings in the Background Report, input from community workshops, General Plan Advisory Committee, stakeholder interviews, and Joint Town Council/Planning Commission study sessions.

▪ Alternatives Report. The Alternatives Report will describe the development and evaluation of land use and policy alternatives. The Report will be designed to frame an active discussion among stakeholders, community members, and Town decision-makers, leading to a determination from the Town Council on a preferred land use alternative and direction on key policy issues, which will form the basis of the Draft General Plan.

▪ Environmental Impact Report. The Environmental Impact Report (EIR) responds to the requirements of the California Environmental Quality Act (CEQA) as set forth in Sections 15126, 15175, and 15176 of the CEQA Guidelines Act. The Planning Commission and Town Council will use the EIR during the General Plan update process to consider potential environmental implications associated with implementation of the General Plan and to identify feasible mitigation measures.

1.3 Regional Setting

Los Gatos is located in Santa Clara County at the base of the Sierra Azul Mountains, as shown on Figure 1.3-1. The cities of San Jose and Campbell border the Town to the north and east; Saratoga and Monte Sereno to the west; and unincorporated land is south.

Regional access is provided by State Route 85 (SR 85) and State Route 17 (SR 17), both of which are north-south limited access freeways. SR 17 bisects the Town and General Plan Planning Area and connects Santa Cruz and other coastal communities with Silicon Valley and the greater East Bay (i.e., Hayward, San Leandro, Oakland).

1. Introduction


SR 85 runs through the far northern edge of the Town and General Plan Planning Area. SR 85 connects the west side of Silicon Valley from South San Jose to Mountain View. State Route 9 (SR 9) is a north-south highway that connects Los Gatos to Monte Sereno, Saratoga, and surrounding mountain communities such as Boulder Creek and Ben Lomond, and becomes Los Gatos-Saratoga Road within Los Gatos.

1.4 Los Gatos Boundaries

Incorporated in 1887, Los Gatos encompasses approximately 11.5 square miles. The northern half of the Town lies on a relatively flat valley terrain abutting the City of San Jose and is primarily developed, while the remainder southern portion of Town consists of hillside areas and permanent open space.

The General Plan uses several terms to describe the Town and planning boundaries:

▪ Town Limits. The jurisdictional boundary of the Town. The Town limits include the area within the Town’s corporate boundary over which the Town exercises land use authority and provides public services. State law requires jurisdictions to adopt a General Plan that, at a minimum, address’s physical development within this boundary.

▪ Sphere of Influence. A sphere of influence (SOI) is the probable physical boundary and service area of a local agency, as adopted by a Local Agency Formation Commission (LAFCO). A SOI typically includes both incorporated and unincorporated areas within which the Town and/or special districts will have primary responsibility for the provision of public facilities and services.

▪ Planning Area. A General Plan, pursuant to State law, must address all areas within the jurisdiction’s planning area. The planning area encompasses all incorporated and unincorporated territory that bears a relationship to the long-term physical planning of the jurisdiction. At a minimum, a jurisdiction’s planning area should include all incorporated land within the Town limits and all land within the Town’s SOI, as it does for this General Plan. The Los Gatos planning area includes approximately 18 square miles.

For additional information on these designated Planning Boundaries see Section 3.1.1 (Planning Boundaries) in the Land Use chapter.

1.5 Institutional Environment

Town Council The Town Council is the political body which formulates and implements policies in Los Gatos. It is the Town Council, through its decision-making authority, that will affirm the policy direction and priorities contained within this General Plan. The Town Council is ultimately responsible for adoption of the General Plan, as well as the regulations, capital improvement programs, administrative and review procedures, and financing mechanisms that are proposed by the General Plan. The Town Council’s authority to establish policy, set funding priorities, and enact ordinances is critical for implementation of the General Plan.

Planning Commission The Planning Commission is responsible for shaping the General Plan and recommending actions to the Town Council for approval. The Planning Commission also bases its recommendation to the Town Council based on the recommendations from the General Plan Advisory Committee (GPAC). After the General Plan is adopted, the Planning Commission must ensure that all subsequent development applications are consistent with the goals, objectives, and policies expressed in the General Plan.

Town Staff

All Town departments look to the General Plan for policy guidance as they pertain to their operations and planning for future service levels. The Town’s planning staff ensure that that the General Plan is implemented on a day-to-day basis so that: appropriate land uses are proposed in the proper locations, appropriate levels of service are provided, proposed land uses conform to development regulations, and the environment has been adequately protected. The General Plan is a resource for all Town services and provides an internally consistent checkpoint for assessing alternatives for the Town’s future.


1.6 Organization of the Background Report

This Background Report is divided into nine chapters:

1. Introduction. This chapter provides background information on the purpose of the General Plan, describes the regional setting, and outlines the organization and content of the General Plan. Topics covered in this chapter include the following:

▪ 1.1: What is the General Plan? ▪ 1.2: Using the General Plan ▪ 1.3: Regional Setting ▪ 1.4: Los Gatos Boundaries ▪ 1.5: Institutional Environment ▪ 1.6: Organization of the Background Report ▪ 1.7: Format of the Background Report

2. Los Gatos Today. This chapter describe demographic trends, population, and household characteristics in Los Gatos, as well as, fiscal setting and economic conditions and population and employment projections. Topics covered in this chapter include the following:

▪ 2.1: Demographic Trends ▪ 2.2: Fiscal/Financial ▪ 2.3: Economic Development ▪ 2.4: References

3. Land Use. This chapter summarizes existing land use; and it describes local and regional land use plans and zoning designations in Los Gatos. This chapter also summarizes, the Town’s history, community and neighborhood character, and urban design characteristics. Topics covered in this chapter include the following:

▪ 3.1: Planning Boundaries ▪ 3.2: Existing Land Use ▪ 3.3: Existing General Plan Land Use Designations ▪ 3.4: Existing Zoning ▪ 3.5: Other Plans and Policies

▪ 3.6: Other Agency and Regional Plans ▪ 3.7: Military Institutions and Installations ▪ 3.8: Development Capacity ▪ 3.9: Environmental Justice and Disadvantaged

Unincorporated Communities ▪ 3.10: Community Design ▪ 3.11: References

4. Mobility. This chapter describes the transportation networks in Los Gatos for cars, trucks, buses, bicycles, pedestrians, and passenger and freight rail services. Topics covered in this chapter include the following:

▪ 4.1: Roadways and Functional Classifications ▪ 4.2: Multimodal System ▪ 4.3: Complete Streets ▪ 4.4: Pedestrian Facilities ▪ 4.5: Bicycle Facilities ▪ 4.6: Transit Services and Facilities ▪ 4.7: Vasona Light Rail ▪ 4.8: Goods Movement ▪ 4.9: Transportation Demand Management ▪ 4.10: Parking ▪ 4.11: Regulatory Setting ▪ 4.12: References

5. Public Facilities, Services, and Infrastructure. This chapter describes all of the services offered by the local governments and agencies, including water supply, utilities, law enforcement, schools, and other Town services. Topics covered in this chapter include the following:

▪ 5.1: Water ▪ 5.2: Wastewater ▪ 5.3: Storm Drainage and Flood Protection ▪ 5.4: Solid Waste Disposal and Recycling ▪ 5.5: Utilities ▪ 5.6: Public Facilities and Services ▪ 5.7: Law Enforcement ▪ 5.8: Fire Protection

1. Introduction


▪ 5.9: Emergency and Medical Services ▪ 5.10: Schools and Childcare ▪ 5.11: Libraries ▪ 5.12: Town Arts ▪ 5.13: References

6. Open Space, Parks, and Recreation. This chapter summarizes the numerous open space preserves, local and regional parks, extensive trail systems, and Town recreational facilities. Topics covered in this chapter include the following:

▪ 6.1: Open Space Classifications ▪ 6.2: Open Space and Preservation ▪ 6.3: Parks and Recreation Facilities ▪ 6.4: References

7. Environment and Sustainability. This chapter provides an overview of water, energy, mineral, and biological features, as well as archeological and historical resources in Los Gatos. Topics covered in this chapter include the following:

▪ 7.1: Aesthetics ▪ 7.2: Agricultural and Forestry Resources ▪ 7.3: Biological Resources ▪ 7.4: Air Quality ▪ 7.5: Climate Change/Greenhouse Gas Emissions ▪ 7.6: Cultural and Historic Resources ▪ 7.7: Tribal Cultural Resources ▪ 7.8: Geology and Soils ▪ 7.9: Hydrology and Water Quality ▪ 7.10: References

8. Hazards and Safety. This chapter describes geologic, seismic, flood, fire, and human-made hazards, as well as noise and airport safety. Topics covered in this chapter include the following:

▪ 8.1: Emergency Preparedness, Response, and Recovery ▪ 8.2: Geological and Seismic Hazards ▪ 8.3: Flood and Inundation Hazards ▪ 8.4: Urban and Wildland Fire Hazards

▪ 8.5: Noise ▪ 8.6: Aviation Hazards ▪ 8.7: Hazards and Hazardous Materials ▪ 8.8: References

9. Housing. Housing Elements in California are done on a prescribed schedule. The Town of Los Gatos will update the Housing Element as part of a separate process to be completed by 2024. This chapter summarizes the housing needs described in the 2015-2023 Housing Element. Topics covered in this chapter include the following:

▪ 9.1: Housing Needs Summary ▪ 9.2: References

1.7 Format of the Background Report

Each topical section of each Background Report chapter includes the following:

▪ Major Findings. Each section contains a brief summary of key findings. The findings present key facts and preliminary issues from the section. These findings serve as the basis for the identification of issues to be addressed in the General Plan.

▪ Existing Conditions. This section describes existing conditions for each resource or issue area.

▪ Regulatory Setting. Each section summarizes the laws and regulations pertaining to the topics identified. Federal, State, and local regulations are described, as applicable.


This page is intentionally left blank.

town of los gatos 2040 general plan · 2019-03-15 · the los gatos general plan is made up of two...

Documents