Agenda Item Wording:
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Consideration of General Plan amendment, prezone ordinance adoption, and annexation - A public hearing and consideration for the following actions requested by D.R. Horton related to the project located on ±78.11 acres on the east side of South Lovers Lane Avenue, north of Caldwell Avenue (APN: 127-020-020 and -021):
1. Adoption of Initial Study / Mitigated Negative Declaration prepared for General Plan Amendment No. 2025-04, and Annexation/Prezone No. 2025-04 (Resolution No. 2026-46);
2. Approval of General Plan Amendment No. 2025-04, a request to reconfigure the land use designations on the parcels, in addition to amending the Circulation Element to realign the “K” Avenue Collector alignment to follow the Sunnyside Avenue alignment between Lovers Lane and Road 148 (Resolution No. 2026-50);
3. Initiation of Proceedings for Annexation No. 2025-04, consisting of:
a. Introduction and First Reading of Ordinance No. 2026-07, a request to prezone the subject property to R-1 (Single-Family Residential zone), R-M-2 (Multi-family residential zone - 3,000 square foot minimum site area), R-M-3 (Multi-family residential zone - 1,200 square foot minimum site area), and QP (Quasi-public zone) to be consistent with the land use designation changes proposed in General Plan Amendment No. 2025-04; and,
b. A request to annex said parcels into the City limits of Visalia and detach from County Service Area No. 1 and the Consolidated Water District and authorizing the City Manager to sign and enter into a Pre-Annexation Agreement (Resolution No. 2026-51).
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Agenda Date: 07/20/2026
Prepared by:
Jarred Olsen, Principal Planner, jarred.olsen@visalia.gov <mailto:jarred.olsen@visalia.gov> (559) 713-4449
Paul Bernal, Planning and Community Preservation Director, paul.bernal@visalia.gov <mailto:paul.bernal@visalia.gov>, (559) 713-4025
Department Recommendation:
The Planning Commission recommends that the City Council take the following actions, consistent with the staff recommendation made to Planning Commission on March 23, 2026:
1. Adopt Resolution No. 2026-50, approving General Plan Amendment No. 2025-04, which does the following:
i. Reconfigures the land uses on the subject property; and
ii. Amends the Circulation Element to realign the “K” Avenue Collector alignment to follow the Sunnyside Avenue alignment between Lovers Lane and Road 148.
2. Introduce for first reading Ordinance No. 2026-07 prezoning the subject property to R-1, R-M-2, R-M-3, and QP, which shall become operative upon the effective date of Annexation No. 2025-04.
3. Adopt Resolution No. 2026-51, initiating proceedings for Annexation No. 2025-04 which will complete the following:
i. Initiation of Proceedings for Annexation No. 2025-04 a request by D.R. Horton to annex approximately 78.11 acres into the City Limits of Visalia; and
ii. Authorize the detachment from County Service Area No. 1 and Consolidated Water District; and
iii. Authorize the City Manager to sign and enter into a Pre-Annexation Agreement.
It is standard practice for staff to recommend the upholding of a Planning Commission action. Furthermore, if approved by the City Council, staff will file the annexation application with LAFCo.
The recommendation to land use and zoning designations will facilitate the development of the Clements Ranch subdivision.
Summary:
D.R. Horton has filed entitlement applications for two parcels totaling ±78.11 acres, located outside of City Limits and within the Tier II urban development boundary, on the east side of Lovers Lane just north of Caldwell Avenue. The project site is currently a mix of fallowed and farmed land listed as prime farmland/farmland of statewide importance. Entitlements for this project are described further below.
General Plan Amendment No. 2025-04 seeks to reconfigure the land use designations on the property to align with their proposed development. Additionally, D.R. Horton is seeking to amend the circulation diagram of the Circulation Element to realign the “K” Avenue collector currently shown as a straight-through from Lovers Lane to where the SCE Rector Substation is located (see Exhibit A collector street realignment, and Attachment A of Resolution No. 2026-50 for proposed land use reconfiguration).
Annexation No. 2025-04 is a request to prezone these parcels consistent with their proposed land use designations and annex them into the Visalia City Limits. Because the property is currently outside the City limits, approval of the General Plan Amendment, prezoning, and annexation each require separate legislative actions. The proposed prezoning is required by Government Code section 56375(a)(7) as a condition of annexation and will become operative upon the effective date of Annexation No. 2025-04. The annexation itself is subject to approval by the Tulare County Local Agency Formation Commission.
Background Discussion:
General Plan Amendment, Reconfiguration of Land Uses
The applicant proposes to reconfigure the existing land uses on the subject property to create more squared off land use designations (see Attachment A of Resolution No. 2026-50). The Medium Density Residential portion of the property is proposed to be relocated to the northeast corner of the property, and the High Density Residential portion to the northwest. Low Density Residential is proposed on the south side of the proposed Sunnyside Avenue alignment. The existing configuration of the High Density Residential land use is flag shaped and does not realistically represent a developable area. Squaring off the shape would result in a more developable site. Staff supports the reconfiguration as it continues to locate the more intensive land uses along major streets. For purposes of the No net loss provisions of the Housing Crisis Act, the proposed configuration of general plan land use designations would not reduce residential capacity. While staff supports the reconfiguration of land use designations, staff request that the Tentative Subdivision Map record a notice on lots abutting or adjacent to the High Density Residential land use a disclosure notice to inform potential buyers of this high density residential land use designation and the expected development which will accommodate multi-family development when a land use entitlement is brought forth for approval.
General Plan Amendment, “K” Avenue Collector Realignment
The “K” Avenue Collector alignment as depicted in the General Plan’s Circulation Element carries the Collector along the San Joaquin Railroad line, terminating at Road 148. However, upon further review, the SCE Rector Substation is regrettably located in the future “K” Avenue alignment. Given the unlikelihood that SCE would relocate an important and consequently prohibitively expensive piece of infrastructure, both staff and Planning Commission concur and support the applicant’s request to designate Sunnyside Avenue as the new “Collector” alignment further south. As depicted in the aerial photograph (Exhibit A), a residence is located at the eastern edge of the Sunnyside alignment, nearest Road 148. While these alignments are schematic in nature and do not represent the “locked-in” final alignment, staff felt that the proposed realignment was enough of a departure to warrant an amendment to the General Plan Circulation Element.
Annexation and Prezone
The subject property is not located in the Visalia City Limits. In order for the City to apply its land use jurisdictional rules and regulations, the land must be annexed into City limits and assigned zoning designation(s). The Annexation is supported on the basis that the proposed uses would be consistent with Visalia General Plan Land Use Element Policy LU-P-21, which allows for the annexation and development of residential land to occur within the Tier II Urban Development Boundary when it is consistent with the City’s Land Use Diagram, as it is proposed to be amended. The site will be pre-zoned to R-1, R-M-2, R-M-3, and QP, consistent with the subject property’s proposed General Plan land use designations (as determined by Table 42 of the Housing Element), and the exhibit can be found in Attachment “A” of Ordinance No. 2026-07. The City supports the annexation as the City has capacity to serve the Project and represents a logical expansion of City limits. Since the property would be served by City services, the City would request that the property be detached from County Service Area No. 1 and the Consolidated Water District.
General Plan Consistency with Land Use Element Policies
The project is consistent with Visalia General Plan Land Use Element Policy LU-P-21, which states that the city should “Allow annexation and development of residential, commercial, regional retail, and industrial land to occur within the Urban Development Boundary (Tier II) consistent with the City’s Land Use Diagram”. The proposed site is within the County of Tulare and is adjacent to and consistent with existing developed residential sites to the north and west. Existing utility infrastructure (i.e., water, sewer, and stormwater) can be provided to accommodate the project at buildout. Furthermore, the site is located within the Tier II Urban Development Boundary (UDB), which allows for immediate development of a project site upon its successful annexation. Note the City of Visalia met General Plan residential land use thresholds for expansion into the Tier 2 UDB in July 2021.
The project is also consistent with Policies LU-P-55 and LU-P-56. These policies allow for residential development consistent with the Low and Medium Density Residential designations at a density range between 2 to 10 and 10 to 15 dwelling units per gross acre, respectively. The proposed development will be developed at residential densities consistent with these land use designations and their respective zoning districts. These policies are intended to facilitate “single-family detached housing” and “small-lot single family”. The proposal meets the intent of the policy, providing a development compatible with residential areas to the north and west, with lot sizes comparable to surrounding lots, at a location that transitions smoothly with agricultural areas to the south and east.
Planning Commission Public Hearing
The Planning Commission conducted a hearing on June 8, 2026, to consider the general plan amendment, prezone, and annexation. The only public comment received was from D.R. Horton. The Planning Commission was unanimous in their recommendation that City Council approve the general plan amendment, prezone, and annexation.
Fiscal Impact including annual maintenance and operating costs: Approval of these entitlements does not, by itself, result in a direct fiscal impact to the City. Should the Clements Ranch subdivision ultimately be developed, future development would be subject to applicable impact fees, assessments, and ongoing municipal service obligations.
Prior Council Action: On June 18, 2026, D.R. Horton filed an appeal of the Planning Commission’s approval of Clements Ranch Tentative Subdivision Map No. 5606, Tentative Parcel Map No. 2025-13, and Conditional Use Permit No. 2025-24, with respect to conditions regarding curb, gutter, sidewalk, and related frontage improvements along Lovers Lane and sidewalks within the proposed gated subdivision. The appeal was noticed for public hearing on the July 20, 2026, City Council agenda.
Recommended Motion (and Alternative Motions if expected):
recommendation
1. I move to approve Resolution No. 2026-46, adopting Initial Study / Mitigated Negative Declaration prepared for General Plan Amendment No. 2025-04, and Annexation/Prezone No. 2025-04.
2. I move to approve Resolution No. 2026-50, approving General Plan Amendment No. 2025-04.
3. I move to introduce the first reading of Ordinance No. 2026-07 for Prezone No. 2025-04.
4. I move to approve Resolution No. 2026-51, to initiate proceedings for Annexation No. 2025-04, authorizing the detachment of property from County Service Area No. 1 and Consolidated Water District, and authorize the City Manager to enter into a Pre-Annexation Agreement between the City of Visalia and the property owners.
Alternatives: The City Council may, in lieu of the recommended motion specified above, consider any of the following alternatives:
1. Deny the General Plan Amendment and Annexation;
2. Refer the matter back to Planning Commission; or,
3. Continue the matter to a future City Council hearing.
CEQA Review: An Initial Study and Mitigated Negative Declaration (MND) was prepared for the project. Following the required 30-day public review period, the City Council adopted the MND and Mitigation Monitoring and Reporting Program by Resolution No. 2026-46, finding that implementation of the identified mitigation measures would reduce all potentially significant environmental impacts to a less-than-significant level.
Deadline for Action: 07/20/2026
Attachments:
1. Exhibit A - Proposed Circulation Element Changes
2. Resolution No. 2026-46 - Initial Study and Mitigated Negative Declaration
3. Resolution No. 2026-50 - General Plan Amendment No. 2025-04
4. Ordinance No. 2026-07 - Prezone Exhibit
5. Resolution No. 2026-51 - Annexation No. 2025-04
6. Planning Commission Staff Report - June 8, 2026
Strategic Goal: Indicates which City Strategic Goal(s) this item supports. Check all that apply.
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