INTRODUCTION

State law requires that all cities and counties prepare a comprehensive, long-range general plan for the physical development of the jurisdiction. The plan is the constitution for the City's development, and governs all land use regulations, including zoning.

The General Plan has the following purposes:

• To identify the community's land use, transportation, environmental, economic and social goals and policies as they relate to land use, conservation and development.

• To enable the City Council and the Planning Commission to establish long-range conservation and development policies.

• To provide a basis for judging whether specific private development proposals and public projects are in harmony with these policies.

• To inform citizens, developers, decision makers and other jurisdictions of the ground rules that will guide development and conservation within the Novato Area of Interest.

The Novato General Plan is a statement of the community's vision of the future. It is a long-range and comprehensive plan that coordinates all major components of the community's physical development for the next twenty years. Because the Plan is long-range and comprehensive, it is general. It serves as a framework for public and private development, and establishes requirements for additional planning studies where greater specificity is needed.

The "build-out," or full development, allowed by the General Plan is based on current projections of population and employment growth over the next twenty years. It is possible, however, that the total amount of development allowed by the Plan will not be constructed over this 20-year period, due to changes in economic conditions and other factors.

State law requires that General Plans be internally consistent. Accordingly, the objectives, policies, and programs for each topic area in this Plan relate to those in other topic areas.

The Plan has been prepared in accordance with State law (Government Code). State law provides a basic framework of requirements with considerable latitude for communities to shape their General Plans to local conditions (Gov. Code 65300.7). The State has also prepared Guidelines (Office of Planning and Research, November 1990) to suggest methods of General Plan preparation. The Guidelines are technically helpful, but are not binding; many issues and ideas in the Guidelines are not applicable to Novato and are not addressed in this Plan.

This revision of the Novato General Plan replaces the plan adopted in 1981, the last time the City comprehensively revised its General Plan.

2. ORGANIZATION AND CONTENT OF THE PLAN

General Plan Elements

The General Plan consists of text, diagrams, and maps, along with objectives, policies and programs. It is organized into nine chapters covering all of the elements required by State law. In addition to the mandated topics, Novato has included four optional chapters: Community Identity, Economic Development and Fiscal Vitality, Human Services, and Public Facilities. IN Table 1 presents the relationship of the chapters to the State-mandated elements.

IN Table 1: Relation of General Plan Chapters to State-mandated Elements
Mandated Elements	Novato General Plan Chapter
Land Use Element	Land Use Chapter
Circulation Element	Transportation Chapter
Housing Element	Housing Chapter
Conservation Element	Environment Chapter
Open Space Element	Environment Chapter
Safety Element	Safety Chapter
Noise Element	Safety Chapter
	Economic Development and Fiscal Vitality Chapter (optional)
	Human Services Chapter (optional)
	Public Facilities and Services Chapter (optional)
	Community Identity Chapter (optional)

The Plan's nine chapters are briefly summarized as follows:

Chapter I: Land Use. Establishes land use designations with types and intensities of use and sets policies and programs regarding growth management, annexation, and the City's Sphere of Influence.

Chapter II: Transportation. Contains policies for the roadway system, Level of Service standards, transit, pedestrian and bicycle trails, transportation for the mobility-impaired, and ways of managing transportation demand, taking into account the relationship between land use and transportation.

Chapter III: Housing. Includes policies and programs to increase the variety and types of housing in the City, emphasizing infill sites, increased density, and mixed uses Downtown; and a discussion of housing needs and programs to provide additional housing for special groups.

Chapter IV: Environment. Includes the State-mandated open space and conservation elements. Emphasis is on identifying and protecting environmentally sensitive areas such as the Bayfront areas, maintaining ample open space and parks to meet the City's needs, and preserving urban separators.

Chapter V: Safety and Noise. Includes the State-mandated safety and noise elements and contains policies and programs to protect the community from injury, loss of life, and property damage resulting from natural disasters and hazardous conditions; to protect the community from exposure to hazardous materials transportation, storage, and disposal; and to reduce the adverse effects of noise.

Chapter VI: Economic Development and Fiscal Vitality. Addresses the economic and fiscal needs of Novato. Policies and programs are directed at broadening the City's employment base, increasing retail sales tax revenue, and implementing an economic development strategy.

Chapter VII: Human Services. Addresses the community's needs for child care, services for senior citizens, youth programs and a variety of human services.

Chapter VIII: Public Facilities and Services. Discusses public facilities such as water, storm drainage and schools.

Chapter IX: Community Identity. Discusses urban design guidelines to ensure that new development is attractive and contributes to Novato's unique sense of place. This chapter contains a section specifically relating to the Downtown, as well as programs to preserve historic resources and to develop a public art program.

Appendix A: Novato Neighborhoods, Appendix B: Reference Material, and the Glossary are not adopted parts of the General Plan and are included to assist the reader in using the plan. Similarly, the Background Reports for the General Plan listed in the bibliography are not adopted parts of the General Plan.

Goals, Objectives, Policies, and Programs

Goals, objectives, policies and programs are the essence of the Plan and are defined below:⁽²⁾

• Goal: An ultimate purpose expressing community values toward which the City will direct effort.

Section 6 of this Introduction contains goals for Novato that were adopted by the Novato City Council on September 29, 1992.

• Objective: A desired result or accomplishment related to a broader goal.

• Policy: A statement of principle or guiding action that implies a clear commitment. A direction that the City elects to follow in order to meet its goals and objectives.

• Program: An action or strategy carried out in response to adopted policy to achieve a specific objective.

Background Information

Explanatory text is included throughout the General Plan in order to provide additional information about policies and programs, or to describe how a program might be implemented. Explanations are printed in italics in order to differentiate them from policy language which commits the City to specific action.

Additional explanatory material is available in separately published documents that provide information for the General Plan. The Existing Conditions Background Report contains information and analysis for each of the topic areas covered by the General Plan. It is a reference document that provides the factual basis for General Plan policies. The Environmental Impact Report (EIR) determines the type and extent of environmental impacts that would result from implementation of the General Plan. It is a program-level analysis, and identifies requirements for more detailed environmental analysis that may be required for specific projects considered in the future. Several other background reports prepared for the General Plan revision are listed in the bibliography.

3. GEOGRAPHIC SCOPE OF THE PLAN

The Plan establishes policies for all lands within the Novato City limits and its Sphere of Influence. The Plan includes an Urban Growth Boundary, approved by the voters in 1997, to encourage planned, managed growth.⁽³⁾

A larger area was identified as Novato's Planning Area in the past, because of the City's interest in its watershed lands and activities outside the Sphere of Influence including Redwood Landfill and Olompali State Historic Park. Some of the boundaries of special districts serving Novato also extend beyond the City's Sphere of Influence. The City's choice not to adopt land use designations and other policies for lands outside the Sphere of Influence does not signify a lack of interest in those areas. This Plan identifies an "Area of Interest" outside the Sphere of Influence. The General Plan includes some discussion of City concerns in the "Area of Interest," but does not include specific policies.

If the City chooses to adopt policies for a larger Planning Area in the future, a comprehensive study of the area would be necessary prior to a General Plan amendment. Studies sufficiently detailed to allow preparation of policies for a larger area were not conducted as part of the present General Plan revision. The policies of the Marin Countywide Plan apply in all lands outside the City limits.

4. THE GENERAL PLAN PROCESS

The City decided to update its General Plan in 1991. An extensive public participation program took place to ensure that the revised Plan reflected the concerns and views of the community. Key milestones of the public participation program included the following:

• The General Plan Steering Committee (GPSC), comprised of members of the public, the Planning Commission and the City Council, was established by the City Council to facilitate public participation. The GPSC held over thirty meetings and workshops.

• A community survey of residents and business people was carried out to identify their concerns and viewpoints on key issues.

• A leaflet on the General Plan revision was sent to all residents and business people in Novato.

• A series of community workshops on General Plan issues was held.

• A Vision and Goals Statement was adopted by the City Council on September 29, 1992.

• A detailed description of the plan alternatives was included in the local newspaper. This was followed by public meetings on the Plan Alternatives, and public hearings before the Planning Commission and City Council. This series of public meetings concluded with selection of the Preferred Alternative which was then used in drafting the General Plan.

• Planning Commission/City Council workshops on the Draft General Plan were held.

• Public hearings were held by the Planning Commission and the City Council certifying the Environmental Impact Report and adopting the General Plan.

The result of this process is a General Plan that reflects the concerns and values of the residents and business people of Novato. It is a plan that seeks a balance among the economic, environmental and social needs of the community.

5. ADMINISTERING THE PLAN

Implementing the Plan

Although the General Plan covers a long-range period, it is not intended to be cast in stone. This General Plan revision is based on estimates of future growth and development. As time passes, certain assumptions made in the General Plan may no longer be valid, due to changing circumstances or new information. Cities should monitor the relevance of their General Plans to ensure that they remain in touch with their evolving communities. The California Government Code (§ 65400[b]) requires each planning department to report annually to the City Council "on the status of the plan and progress in its implementation, including the progress in meeting its share of regional housing needs determinations." The report on housing needs is made to the State Department of Housing and Community Development (HCD).

Every five years the City should review the entire General Plan to determine whether it still reflects community concerns and goals. The Housing Element is required to be reviewed every five years according to a schedule established by HCD. The next revision of the Housing Element is scheduled for July 1997.

The General Plan is implemented by the City staff in making administrative decisions; by actions of the Planning Commission and City Council; by the City's zoning and subdivision ordinances, specific plans and redevelopment plans; by the City's Capital Improvement Program; by actions of other agencies and districts; and by actions of developers and other private entities. The Zoning Ordinance, all subdivision map approvals, and all public works projects must be consistent with the General Plan. In some cases, programs in the General Plan will require changes to the City's current land use regulations.

Amending the Plan

State law permits up to four general plan amendments of mandatory elements per year (Government Code § 65358[b]). The City's procedures for filing a general plan amendment are available at the Community Development Department. To ensure consistency and compatibility with the Plan, general plan amendments initiated by the City or other public agencies must follow the same notice procedures and requirements that are followed for amendments initiated by private organizations and individuals.

6. VISION AND GOALS FOR NOVATO

The Novato City Council adopted the following statement of Vision and Goals for Novato on September 29, 1992. This statement provides the framework for the General Plan.

Vision

The citizens of Novato view the City as a "small town" in character, now and in the future. They are proud of its beautiful setting and environment and want to preserve those physical attributes and incorporate them into its designs for the future. The hillsides, wetlands, bayfront, streams, woodlands, and open space corridors are among the highly prized features of Novato's natural environment which Novato seeks to preserve, protect, and restore where needed. Novato's future built environment should complement its natural environment.

Novato's character is defined by the safe, quiet neighborhoods where single-family homes predominate. Townhouses, condominiums, apartments and mobile homes provide a mix of housing in the Downtown area and along the freeway. Old Town captures the small town image Novato strives to retain. As part of the City's Downtown, it typifies the heart of a small town by offering buildings that link Novato's past and its future. Throughout Novato the type of structures that predominate should be buildings which harmonize with their physical surroundings.

It is important that new development within the community reflect quality of design and compatibility with the existing community character. New development must also provide the proper balance and mix of non-residential development and housing with a variety of types and prices that meet the community's needs. It is crucial to plan how best to develop the remaining land for the benefit of the entire community.

The community has demonstrated its willingness to pass bond measures to pay for better services, public improvements and open space rather than attempt to achieve this only through new development.

Hamilton Field is the largest remaining property left for development in Novato. It should be planned so that the development beneficially integrates into the rest of the community. Development should address Novato's jobs, housing and transportation needs while preserving wetlands and other biotic resources. In keeping with long-standing City policy based on voter direction, there shall be no aviation uses.

Our town exhibits a great deal of community pride. The community is supportive of its citizens and wants services provided in an amount and manner that meet the needs of all its residents. The increasing educational level and standard of living of the average resident has made for a broader economic base of support. At the same time the family, ethnic and economic characteristics of Novato's households are changing. Increasingly, they are comprised of single parents, smaller families, and seniors, with a greater disparity of incomes. These are changing the demands on human services such as counseling and homeless shelters.

We like our small, independent businesses and want the business community to thrive. We recognize that a strong and diverse economy is important to provide an adequate tax base for the City's fiscal health as well as providing jobs for its residents. The community wants to attract major employers and retailers to Novato, but doesn't want to lose the locally owned and operated businesses that make up a part of Novato's small town character. New commercial ventures that provide goods and services which are not already in adequate supply in town should be encouraged. Ideally, Novato's future economic development should attract a variety of businesses that can provide a range of job opportunities suitable for residents to work within the community, thereby reducing out-commuting and traffic congestion.

Congestion on the freeway and local streets is a major concern in Novato. Increased traffic is weighed very heavily as a constraint by the community when new development is proposed. The community wants solutions to transportation problems which reduce the number of cars on local streets and the freeway and improve public transit.

Goals

The following 13 goals form the foundation of what is intended to be achieved by the Novato General Plan.

1. Preserve and improve the quality of life in Novato. Conserve and where appropriate restore the natural environment and strive for high quality in the built environment that complements the natural environment.

2. Retain and promote the small town character of Novato including preservation of the historic features and landmarks.

3. Keep Novato relatively compact in physical size by establishing firm urban limit lines. Provide areas where land uses, densities and intensities create a gradual transition from the developed suburban area to the surrounding rural area. Coordinate with the County to maintain rural land uses within the Novato sphere of influence.

4. Maintain and revitalize Downtown Novato as the heart of the community.

5. Preserve, protect and enhance the natural setting throughout the community, including creeks, hillsides, ridgelines, woodlands, wildlife, native plants, wetlands and open space.

6. Preserve bay front lands and diked wetlands for agriculture, resource restoration, conservation and recreation.

7. Increase job opportunities and income of residents by encouraging a diversified local economy. Foster the economic vitality of Novato businesses, the City of Novato and other local governmental agencies by encouraging a healthy economy which provides for diversity of economic enterprises.

8. Provide for a variety of housing opportunities through new construction and maintenance of existing housing for an economically and socially diverse population, while preserving the character of the community. Low and moderate income housing of all types (including mobile homes, mobile home and recreational vehicle parks) will be given special consideration.

9. Coordinate transportation, economic and land use planning to help provide effective transit services which reduce dependence on the single-occupant automobile.

10. Encourage local job opportunities to avoid the need to commute out of Novato for employment.

11. Manage growth by requiring the coordination of development with adequate infrastructure, public facilities, public services and promoting conservation, reuse and recycling strategies while meeting the needs of the community with the limited land available for development.

12. Provide and maintain greater recreational, educational, (including the Indian Valley Campus (IVC) of Marin Community College, and cultural opportunities for all segments of the community. Pursue all efforts with community and neighborhood organizations, nonprofit organizations, for profit organizations, and public agencies to provide care and services, including medical, counseling, recreational, educational, cultural, shelter, and housing opportunities to meet the needs of Novato's citizens.

13. Protect the integrity of residential neighborhoods from conversion and/or intrusion of incompatible land uses. Create transition buffers separating incompatible land uses.

Work on the General Plan continued following adoption of these goals in 1992. As a result of continuing efforts to prepare the Plan, two important additional themes of the Plan emerged, as follows:

Maintain the character of existing residential neighborhoods. In predominantly developed areas, the Land Use Designations Map largely reflects existing conditions.

Emphasize infill rather than annexations. To encourage a compact, efficient City and discourage sprawl, the future growth of Novato will be based on more infill projects - development that occurs on individual vacant parcels of land located within the developed portions of the City, and less by annexation of large tracts of vacant land outside City boundaries.

These two themes may appear to some readers of the Plan to be in conflict. Though local experience has demonstrated the possibility of infill development threatening neighborhood character, this need not be the case. Policies in the Land Use and Community Identity chapters establish policies for Plan implementation that seek to bring these themes into harmony by describing the elements of compatible development.

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