Agenda Item Wording:
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Annexation and General Plan Amendment - Public hearing and consideration for the following actions related to the project located at the northwest corner of North Dinuba Boulevard and West Riverway Court (APN: 078-110-021, 078-110-006):
1. Adopt Initial Study / Negative Declaration No. 2024-61 for Annexation No. 2024-04 and General Plan Amendment No. 2024-05 (Resolution No. 2025-24); and
2. Initiation of Proceedings for Annexation No. 2024-04, a request by the City of Visalia to annex two parcels totaling 10.4 acres into the City limits of Visalia; and
3. Authorize the detachment from County Service Area No. 1 in accordance with State and County requirements (Resolution No. 2025-22); and
4. Approval of General Plan Amendment No. 2024-05, a request by the City of Visalia to expand the Urban Development Growth Boundary by annexing two parcels into the City limits, and to change approximately a quarter acre of the site from Residential Very Low Density land use designation to Parks/Recreation land use designation (Resolution No. 2025-23).
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Deadline for Action: 4/21/2025
Submitting Department: Community Development
Contact Name and Phone Number:
Colleen A. Moreno, Assistant Planner, (559) 713-4031, colleen.moreno@visalia.city
Paul Bernal, Planning and Community Preservation Director, (559) 713-4025, paul.bernal@visalia.city
Department Recommendation:
The Planning Commission and staff recommends that the City Council initiate annexation proceedings for the subject site by taking the following actions:
1. Adopt Initial Study / Negative Declaration No. 2024-61 for Annexation No. 2024-04 and General Plan Amendment No. 2024-05; and
2. Initiate proceedings on Annexation No. 2024-04 with the Tulare County Local Agency Formation Commission (LAFCO); and
3. Authorize the detachment of the property from County Service Area No. 1 in accordance with State and County requirements; and
4. Approve General Plan Amendment No. 2024-05, a request by the City of Visalia to expand the Urban Development Growth Boundary by annexing two parcels into the City limits, and to change approximately a quarter acre of the site from Residential Very Low Density land use designation to Parks/Recreation land use designation, located at the northwest corner of North Dinuba Boulevard and West Riverway Court within the jurisdiction of the County of Tulare (APN: 078-110-021, 078-110-006).
If approved by the City Council, staff will file the Annexation application with LAFCO.
Summary:
The City of Visalia is the applicant and lead agency for both the requested Annexation and General Plan Amendment. The entire project is located outside of the city limits, within the jurisdiction of Tulare County, and outside of the City’s Urban Growth Boundary. The Annexation and General Plan Amendment will facilitate the development of a 1.25-acre city dog park and St Johns Trail connectivity within the entire 10.4-acre annexation area (see Exhibit A included as Attachment 4). The City of Visalia Capital Improvement Engineering Division is managing the design and development of the project which also includes the development of an overflow parking lot located outside of the annexation area immediately to the west (see Exhibit B included as Attachment 5). The recommendation to initiate Annexation No. 2024-04 and General Plan Amendment No. 2024-05 is based on the conclusion that the project is consistent with General Plan Land Use and Parks, Schools, Community Facilities, and Utilities Elements’ policies. At the Planning Commission hearing for this item on March 24, 2025, the Planning Commission considered Annexation No. 2024-04 and General Plan Amendment No. 2024-05. Both items were recommended by the Planning Commission for Council approval by a 5-0 vote. There were no public comments made about the item.
Background Discussion:
General Plan Consistency
The General Plan recognizes that community parks are an important component, as recreational and aesthetic resources that contribute to the City’s character. Additionally, the General Plan guides the City to make improvements to existing parks and to support a high quality of life for its residents (Visalia General Plan, pg. 5-5 & 5-6). Currently, there are three large City parks in Visalia; Plaza Park to the west, Riverway Sports Park to the north, and Mooney Grove Park to the south which is maintained and operated by the County of Tulare. According to the General Plan, “these parks each have a distinct character, and all are meant to draw residents from across the city” (Visalia General Plan, pg. 5-7).
Riverway Sports Park is considered a “Large City Park” which, per the General Plan, is “intended to serve the recreational needs of all city residents and create opportunities for contact with the natural environment.” The proposed project will contribute to the existing amenities of Riverway Sports Park and will provide additional access to the existing St. Johns River Trail, which successfully meets the types of opportunities for recreation within the natural environment as well as enhances the city (Visalia General Plan, pg. 5-2).
The project site is located north of the existing Riverway Sports Park, and the development of the dog park and overflow parking lot will be considered part of the Riverway Sports Park complex. The proposed dog park and overflow parking lot are compatible with the surrounding area and is consistent with the General Plan Parks, Schools, Community Facilities, and Utilities Policy PSCU-P-14, which requires the “design of parks to enhance neighborhood character and minimize negative impacts.” The project is located on vacant parcels that were undeveloped and underutilized, and the development of the dog park and parking lot will provide a much needed amenity to the Sports Park, and will aesthetically enhance the area and provide greater access to the St. Johns River Trail (see Exhibit C included as Attachment 6). The project supports the city’s commitment to “creating and maintaining a park system that meets citizens’ recreational needs, maximizes landscapes endowed by the natural environment, and contributes to the City’s quality of life” (General Plan, pg. 5-1) with the addition of the dog park and overflow parking lot. Additionally, the project is consistent with General Plan Policy PSCU-P-24, as the improvements to the Riverway Sports Park with the development of the dog park promotes “innovative park design that responds to neighborhood needs and user groups,” as there are only two existing dog parks in the city with a population of approximately 145,000 residents.
The project is also consistent with General Plan Land Use Element Policy LU-P-29, which directs the City to “use regional and community parks and open space to enhance gateways to the City and as a buffer between adjacent communities.” As mentioned previously, Riverway Sports Park is located in the northern area of the city, along the limits of the city and of the Urban Growth Boundary. The dog park and parking lot will be considered part of Riverway Sports Park and will assist in enhancing the buffer and serving as a gateway to the communities north of Visalia. The project also will provide connectivity to St. Johns River Trail and is consistent with General Plan Land Use Objective LU-O-17, to “use St. Johns River and other waterways as structuring elements for the City’s urban form as well as scenic and recreational features.”
GPA Consistency with State Law: Housing Crisis Act of 2019 (Government Code Sec. 66300)
The Housing Crisis Act of 2019 mandates that jurisdictions shall not adopt an entitlement that changes general plan land use designations of parcels to a less intensive use with regards to the site’s residential development capacity below what was in effect on January 1, 2018 (Government Code Section 66300(b)(1)).
However, it should be acknowledged that the General Plan land use designation being eliminated amounts to approximately 0.25 acres of land that is specified for development at a density of 0.1 to 2 units per gross acre, and that the size and configuration of the land use designation does not meet City standards for accommodating any residences. Trying to develop the 0.25 acre of Very Low Density Residential area is not feasible or practical given the odd shape assigned to this land use designation. In addition, the City in 2023 approved a specific plan residential project (i.e. Pratt Family Ranch Specific Plan) that “up-zoned” 16-acres of Very Low Density land use designation to Low and Medium Density residential land uses to obtain more dwelling units within that residential project, which can be used if necessary, to demonstrate that the City of Visalia has not reduced residential development capacity. Therefore, the City finds that there is reasonable argument that this statute pertaining to the Housing Crisis Act of 2019 is not in conflict by this General Plan Amendment.
GPA Consistency with State Law: No Net Loss Law (Government Code Sec. 65863)
The purpose of the No Net Loss Law is to ensure that a jurisdiction continues to maintain adequate sites to accommodate its remaining unmet regional housing needs allocation (RHNA) by each income category at all times throughout the entire Housing Element planning period. Similar to the Housing Crisis Act of 2019 explained above, a jurisdiction cannot take action to reduce a parcel’s residential density without finding that the jurisdiction has other remaining sites that can accommodate its remaining unmet RHNA.
For this project, which will change approximately 0.25 acres of Very Low Density Residential land designations to Parks / Recreation designation, the parcels are currently located outside of the City limits and outside of any Growth Tier. As such, the affected parcel has not been assigned units affiliated with the jurisdiction’s RHNA or site inventory. Therefore, the City has no obligation under state law to replace the land use designation.
Local Street Connectivity and On-Site Improvements
The dog park and parking lot will be supported with street connectivity from Riverway Court. Currently, there is no parcel frontage to a public street, with Riverway Court terminating at a cul-de-sac about 1,000 feet east of Giddings Street. The abandoned portion of Riverway Court east of the parking lot will be restricted to vehicle “exit only” with only a right hand turn at North Dinuba Boulevard due to traffic restrictions and safety per the Visalia Traffic Engineer and California Department of Transportation (Caltrans), who has jurisdiction over North Dinuba Boulevard (Highway 63).
Vehicles will be able to access the parking lot and dog park on the west side of Riverway Sports Park, entering through North Giddings Street. Entrance for the overflow parking lot will be through the Riverway Court cul-de-sac. Exiting this area will be either by wrapping around the parking lot to exit back towards Riverway Court and eventually North Giddings Street or by driving east to the Dinuba Boulevard restricted right-turn/exit only approach.
Fiscal Impact:
None.
Other:
At the March 24, 2025, Planning Commission meeting, staff presented the item as described in this report to the Commission. After receiving the staff presentation and receiving no public comments regarding the project, several Planning Commissioners stated their support for the project based the projects consistency with the City’s General Plan and the City’s commitment to provide additional park amenities to the sports park. The Planning Commission recommended approval of the annexation and general plan amendment to the City Council by a 5-0 vote.
Alternatives:
The City Council may, in lieu of the recommended motion specified above, consider any of the following alternatives:
1. Deny the Annexation; or
2. Deny the General Plan Amendment; or
3. Refer the matter back to the Planning Commission; or,
4. Continue the matter to a future City Council hearing for additional information.
Recommended Motion (and Alternative Motions if expected):
recommendation
I move to approve Resolution No. 2025-24, adopting Initial Study / Negative Declaration No. 2024-61; and
I move to approve Resolution No. 2025-22, to initiate proceedings for Annexation No. 2024-04, to authorize the detachment of property from County Service Area No. 1; and
I move to approve Resolution No. 2025-23, to expand the Urban Development Growth Boundary and to change approximately a quarter acre of the site from Residential Very Low Density land use designation to Parks/Recreation land use designation.
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Environmental Assessment Status: An Initial Study and Negative Declaration were prepared for the proposed project. Initial Study and Negative Declaration No. 2024-61 disclosed that environment impacts are determined to be less than significant and mitigation measures are not required. Staff concludes that Initial Study and Negative Declaration No. 2024-61 adequately analyzes and addresses the proposed project and reduces environmental impacts to a less than significant level.
CEQA Review: An Initial Study and Negative Declaration were prepared for the proposed project. Initial Study and Negative Declaration No. 2024-61 disclosed that environment impacts are determined to be less than significant and mitigation measures are not required. Staff concludes that Initial Study and Negative Declaration No. 2024-61 adequately analyzes and addresses the proposed project and reduces environmental impacts to a less than significant level.
Attachments:
1. Resolution No. 2025-24 certifying Initial Study and Negative Declaration No. 2024-61
2. Resolution No. 2025-22 initiating the Proceedings for Annexation No. 2024-04 and Detachment from County Service Area No. 1
3. Resolution No. 2025-23 approving General Plan Amendment No. 2024-05
4. Exhibit “A” - Annexation Exhibit and Legal Description
5. Exhibit “B” - Site Plan
6. Exhibit “C” - Concept Master Plan for the Dog Park
7. Exhibit “D” - Initial Study / Negative Declaration No. 2024-61
8. Exhibit “E” - Planning Commission Resolution No. 2024-73 recommending initiation of Annexation No. 2024-04
9. Exhibit “F” - Planning Commission Resolution No. 2024-72, recommending approval of General Plan Amendment No. 2024-05
10. Exhibit “G” Planning Commission Staff Report
11. General Plan Land Use Map
12. Zoning Map
13. Aerial Map
14. Location Map
15. PowerPoint Presentation