City of Redlands

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1.0     SETTING AND ORGANIZATION OF THE GENERAL PLAN
1.10   Redlands: Past, Present, Future
1.20   The 1972 General Plan
1.30   Public Participation in the Plan-Making Process
1.40   Nature and Scope of the General Plan
1.50   Using the General Plan Text and Diagram
1.60   Organization of the General Plan
1.70   Keeping the General Plan Current
1.80   Planning Context
1.90   Themes of the General Plan

1A.0   PRINCIPLES OF MANAGED DEVELOPMENT
1A.10 Principle 1
1A.20 Principle 2
1A.30 Principle 3
1A.40 Principle 4
1A.50 Principle 5
1A.60 Principle 6
2.0     GROWTH MANAGEMENT ELEMENT

1.0     SETTING AND ORGANIZATION OF THE GENERAL PLAN

1.10     Redlands: Past, Present, Future
From citrus boom town to the Victorian good life in California to threatened total absorption by the Southern California metropolis -- Redlands has maintained a strong image in a region and state where sameness is battering the defenses of freestanding towns. The City's site must have been an easy choice for founders Judson and Brown when they laid out the streets in 1881. Views, the railroads, the climate, ample water from the Bear Valley Reservoir and the beauty and profit of citrus brought Easterners with the time and money to create a beautiful city. By the time a catastrophic freeze struck in 1913, Redlands was a city of 20,000 with most of its architectural and cultural environment in place. When the pace of development resumed in the 20s, Redlands' quality image was the attraction.

Today's residents feel strongly about preserving Redlands' character and setting. New projects are debated, mistakes are remembered, and growth initiatives and open space bonds have been approved. During the 1980s, other Inland Empire communities experienced the growth pressures Redlands can expect during the next two decades. The General Plan describes the City its present residents believe should emerge.

1.20     The 1972 General Plan
This General Plan replaces a 1972 General Plan that was prepared at a time when General Plans had far less political and legal stature than they do today. The 1972 Plan sought to protect agriculture from premature encroachment, but did not envision any permanent open space other than parks and flood control areas at buildout (calculated at 160,000 persons). Major General Plan amendments occurred in conjunction with the adoption of the East Valley Corridor Specific Plan (1989), which increased employment capacity while reducing residential capacity, by the Southeast Area General Plan amendment (1987) which reduced density in San Timoteo and Live Oak canyons, and by numerous smaller changes.

1.30     Public Participation in the Plan-Making Process
Organized re-thinking of Redlands' future has been underway since 1987. Redlands 2000, a committee of 85 volunteers, conducted a survey (1,856 responses) and held discussions over an eight-month period. The Committee's report makes recommendations spanning the spectrum of local government issues. In 1988 the City conducted a Citizen Viewpoint Survey. The two surveys reached a self-selected 7 to 9 percent of Redlands households.

When work on General Plan revision began, the City Council appointed a 21-member General Plan Citizens Committee charged with making the decisions needed to prepare a revised draft General Plan for public hearings by the Planning Commission and City Council. Committee members (see list following title page) represent all geographic sectors of the City and a diverse spectrum of economic and cultural interests. Liaison members representing the Planning Commission, City Council, and other City commissions participated in meetings, but did not vote on issues. Opportunities for members of the public to address the Committee have been provided at all meetings.

As the Draft General Plan began to take shape, neighborhood meetings were scheduled throughout the City and Planning Area to explain the process and to solicit comment. The neighborhood meetings were well attended, and numerous comments on the proposed Draft General Plan were provided. Many of the citizens' concerns have been incorporated into the policies of the Draft General Plan. In addition to the neighborhood meetings, a number of community organizations requested presentations of the Draft General Plan. Presentations were made to the Redlands Chamber of Commerce, Redlands Kiwanis Club, Rotary Club, Optimist Club, and students at the University of Redlands.

1.40     Nature and Scope of the General Plan
A City's General Plan has been described as its development constitution -- the set of policies within which development regulations and decisions must fit. The General Plan is a statement of the community's vision of its long-term or ultimate physical form and development policies.

State law requires each city and county to adopt and maintain a General Plan. Actions relating to zoning, subdivision approval, housing allocations, and capital improvements must be consistent with the General Plan.

The Redlands General Plan is not simply a compendium of ideas, data and wishes: it consists of a diagram (a drawing that shows arrangement and relationships) and carefully worded policies, accompanied by explanations needed to make the reasons for the policies clear. The Plan has three purposes:

1.     To enable the Planning Commission and City Council to reach agreement on long-range development policies;

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

3.     To allow other public agencies and private developers to design projects that are consistent with City policies, or to seek changes in those policies through the process of amending the General Plan.

The Plan must be:

• Long-range: However imperfect our vision of the future is, almost any development decision has effects lasting more than 20 years. The Redlands General Plan is geared to ultimate development of the Planning Area.
• Comprehensive: It must coordinate all major components of the community's physical development. The relationship between land-use intensity and traffic is most obvious.
• General: Because it is long-range and comprehensive, the Plan must be general. The Plan's purpose is to serve as a framework for detailed public- and private-development proposals. It establishes requirements for additional planning studies where greater specificity is needed before the City can act on development proposals.

The General Plan is implemented by the decisions of the Planning Commission and City Council and by the zoning and subdivision ordinances, specific plans, redevelopment plans and the City's capital-improvement program.

The zoning ordinance includes detailed use classifications and standards. The zoning map must be consistent with the General Plan map, but it will not be identical to it. Specific Plans also must be consistent with the General Plan.

1.50     Using the General Plan Text and Diagram
The Plan text distinguishes adopted policies from information describing the reasons for a policy. Guiding Policies are the City's statements of its goals and philosophy. Implementing Policies represent commitment to consistent actions. Implementing Policies are as specific as is appropriate given the City's current level of knowledge and consensus on each issue. Adopted policy statements are printed in roman type; explanatory material appears in italics.

The General Plan Diagram (GP Section 4, Figure 4.1) depicts the desired ultimate land use and trafficways network. The Diagram must be used in conjunction with the Plan text. The Land Use Classifications (GP Section 4.0) explain the legend on the Diagram and specify density and intensity ranges for each category. A glossary at the end of this volume defines technical terms.

Where land is subdivided and largely built-out, the Diagram's use designations follow parcel boundaries or natural features.

Text policies may limit the density or intensity of development on a particular site in ways not apparent from the Diagram. For example, General Plan policies protecting natural habitat, or preserving steep slopes, and other policies may prevent designated maximum density or intensity from being reached on some parcels. Regardless, the City has no obligation to approve projects at the maximum General Plan density or intensity. Residential density ranges are intended to bracket several zoning districts to be mapped at different locations within a General Plan classification. General Plan land use designations are applied to built-up areas that have been developed over time under changing regulations with a variety of densities and intensities. Consequently, the General Plan recognizes that nonconforming uses may already exist within a given land use designation and does not require their removal.

Commercial and industrial intensity standards in the General Plan Land Use Classifications represent theoretical maximums that, when combined with buildout assumptions, form a basis for determining traffic capacity and utilities service requirements. Zoning regulations that achieve the same result may use different measures.

1.60     Organization of the General Plan
California's General Plan Law is a product of the incremental nature of the legislative process. If literally followed, it creates confusion as to where some topics should be located and some duplication among the seven mandatory Plan elements. Fortunately, Government Code 65301(a) provides that a General Plan may be adopted in any format deemed appropriate by the legislative body as long as all topics are covered. The exception is the Housing Element which is required by State guidelines to contain extensive mandatory data and analysis as well as a five-year plan for meeting housing goals and objectives.

The content of the seven State-mandated elements (land use, circulation, open space, housing, conservation, safety and noise) as well as the optional elements of the Redlands General Plan is summarized below. Optional elements are noted in parentheses:

• Growth Management Element (Optional) incorporates policies for the amount and rate of growth and the timing of public improvements.
• City Design and Preservation Element (Optional) establishes policies for visual design at the citywide scale and policies for preservation of architectural resources.
• Land Use Element establishes land use classifications, sets densities and intensities for development and creates a pattern of land uses (including open space) illustrated by the General Plan Diagram.
• Circulation Element contains policies for freeways, arterials, collector streets, trails, bikeways, transit, transportation systems management, railroads, Redlands Airport, and utility corridors. A system of trafficways is illustrated on the General Plan Diagram.
• Housing Element Summary is an excerpt from the Housing Element, published separately, that includes all adopted policies designed to meet five-year housing needs for all income levels. The complete Housing Element also includes extensive data and analysis required by State law.
• Open Space and Conservation Element includes policies for management of four categories of open space lands, including parks, and prescribes policies for conservation of both natural and cultural resources. Parks and open space to be preserved are illustrated on the General Plan Diagram.
• Health and Safety Element (Optional Air Quality Element) consists of policies for water quality preservation and protection from fire hazards, drainage and flooding, seismic, geologic, and soils hazards, wind hazards, magnetic fields, airport aviation safety, and emergency management. Air quality policies are from a model Air Quality Element prepared for San Bernardino County cities.
• Noise Element projects future traffic noise and sets policies for mitigation of noise from all sources.
• Human Services Element (Optional) includes policies for senior services, youth services, and health services.
• Economic Development Element (Optional) provides a framework to develop and adopt policies and actions which affect the City's economy.

1.70     Keeping the General Plan Current
All public works projects, subdivision map approvals, and zoning text or map changes and Specific Plans must be consistent with the General Plan. From time to time, changes in policy as well as unforeseen opportunities or needs will require amendment of the General Plan. In an effort to prevent casual or automatic General Plan amendments, State law allows each mandatory element to be amended not more than four times per year, although there is no limit to the number of changes made during each amendment. Most requests are likely to be for map changes to the General Plan Diagram, but each must be screened to determine effects on text policies. An example would be the effect of a change of use on the General Plan's target housing mix.

1.80     Planning Context
Planning Area/Planning Sectors
Redlands is a city of 66,301 (1994) at the head of the San Bernardino Valley, 60 miles east of Los Angeles. Its Planning Area is bounded on the north by the Santa Ana Wash, the City of Highland, and the San Bernardino Mountains, on the east by the Crafton Hills and the City of Yucaipa, on the south by the Riverside County boundary and The Badlands, and on the west by the City of Loma Linda and the City of San Bernardino (San Bernardino International Airport). GP Figure 1.1 shows the regional location of the Redlands Planning Area.

Consistent with State law (Govt. Code 65301 (a)) Redlands has established a Planning Area boundary encompassing 52 square miles including territory outside its boundaries "which in its judgment bears relation to its planning." Within this boundary is the Sphere of Influence (SOI) defined as the ultimate service area established by the San Bernardino County Local Agency Formation Commission (LAFCO). The SOI could be expanded to include the entire Planning Area. Planning boundaries are shown on GP Figure 1.2.

The City's authority to regulate development is limited to the corporate limits, but San Bernardino County General Plan policies commit the County to support annexation of land designated for urban development.

The Planning Area is divided in seven planning sectors to facilitate description. (See GP Figure 1.3 Planning Sectors and Traffic Analysis Zones.) Planning sectors are aggregations of the 73 Traffic Analysis Zones (TAZs) which are the data units used for land use and traffic analysis.

General Plans of Adjoining Jurisdictions
The plans of agencies that set development policy adjoining the Redlands Planning Area or within it have obvious effects on the Redlands General Plan and are described below.

San Bernardino County. As revised in 1993, the County plan supports City policies within the Redlands Sphere of Influence, although entitled but unbuilt projects are inconsistent with the Redlands General Plan. The County's General Plan states that consideration will be given to designate sphere of influence areas on the County's land use maps as Special Planning areas. Also, efforts will be made to utilize City standards for development in these areas. The County plan, which formerly would have held a population of more than 50,000 in the Mentone and Crafton sectors now includes substantial acres at rural living densities of 5 and 10 acres per housing unit. The circulation element, which has not been revised, designates Crafton Avenue as a major arterial extending to the Greenspot Road and Garnet Street as a minor arterial extended south along the base of the Crafton Hills.

City of San Bernardino. West of Mountain View Avenue the General Plan adopted in June 1989 calls for residential development at 14 units per acre adjoining I-10 Freeway, nine per acre along most of the Mountain View frontage, and heavy industry along the Santa Ana River. The area is highly developed.

San Bernardino International Airport. The property is currently being marketed for airport and industrial re-use by the Inland Valley Development Agency which collects property tax increment from an area that includes the unincorporated 'donut hole' in the East Valley Corridor portion of the Redlands Planning Area.

City of Highland. The Santa Ana River Wash separates Redlands and Highland, which incorporated in 1987. Significant pressure to develop mineral extraction operations in the wash, as well as potential development to build into the flood plain, may be a source of conflict with the City of Redlands. Both cities should work closely with each other and the County Flood Control and Water Conservation District to preserve natural resources and ensure public safety. The Circulation Element of its first General Plan proposes eastward extension of Base Line Street which would turn south across the Santa Ana Wash to connect to Crafton Avenue as proposed by the San Bernardino County Circulation Element.

City of Yucaipa. The City of Yucaipa adopted a General Plan in September of 1992. Of particular interest to the City of Redlands is the Planned Development (PD) land use designation for the area south of the I-10 freeway and east of the Live Oak Canyon Road, which Yucaipa has zoned for a master planned development which may mix residential and commercial uses. Adjacent to the City of Redlands, in the Crafton Hills area, Yucaipa has approved a 59 lot PD fronting Bryant Street and Mill Creek Road and has dedicated open space to conform with the Crafton Hills Conservancy proposal. The City also adopted a Hillside Slope Ordinance in July of 1991 which restricts development on properties with an average hillside slope of 15% or greater. Crafton Hills Drive, a limited access collector, is a proposed link between Redlands and Yucaipa. Within Yucaipa, recorded Tract 12222 proposes a connection of Crafton Hills Drive with Sand Canyon Road. The City of Redlands is currently studying Wabash to locate the western terminus of Crafton Hills Drive.

City of Loma Linda. Redlands' westside neighbor proposes a mixed use, Hotel/Retail development north of Barton Road and residential development to the south with single-family detached subdivision densities declining as the slope increases. A firm boundary between the Redlands and Loma Linda spheres of influence was established in 1990. Loma Linda's General Plan is presently under revision and the use of about 600 acres adjoining Redlands has not been designated at this time. Currently, a residential designation has been used for development proposals for this area at 2.7 units per acre. However, Loma Linda is investigating a residential specific plan which may consider up to 5-6 units per acre. This may have potential conflict with the Redlands Land Use Plan. Another possible dispute could arise over the alignment of San Timoteo Canyon Road. SANBAG has proposed five alternatives for connection from the East Valley Corridor to Moreno Valley area. Both jurisdictions will need to work with the regional agency to resolve alignment issues regarding this roadway.

Riverside County. The Riverside County line is an arbitrary boundary to the Planning Area, running a few feet either side of Live Oak Canyon Road for several miles east of San Timoteo Canyon Road. Oak Valley, a 10-square-mile "new town" approved in 1988 by Riverside County extending along the County line and Beaumont, would have about 45,000 residents and 34,000 jobs if built-out. This project has been experiencing financial difficulties due to the current economic slowdown. A golf course, but no residential units, has been built as of 1995. Riverside County's Multiple Species Habitat Conservation Plan is an unadopted draft plan still under revision and downsizing. This plan could affect areas to the west of Oak Valley adjoining the Redlands Planning Area with possible preservation of the Badlands.

City of Moreno Valley. The City of Moreno Valley is located in the County of Riverside and may extend its sphere of influence and/or city limits to adjoin the City of Redlands sometime in the future. The proposed designation may be hillside residential or rural residential which can have densities ranging from one-half acre to ten acres.

City of Calimesa. The City of Calimesa is located in the County of Riverside and has city limits and sphere of influence areas that adjoin the City of Redlands to the south of Live Oak Canyon Road. Calimesa's General Plan, adopted in 1994, designates this area as a natural resource to the community and region. Development within the natural resource categories is limited to protect and to retain the natural environment. The areas adjoining the Redlands Planning Area are designated Open Space Residential (OSR) and Open Space (OS). These designations are generally consistent with land uses proposed for Live Oak Canyon.

Southern California Association of Governments (SCAG). The Regional Comprehensive Plan and Guide (1989) serves as the basis for housing allocations that must be incorporated in the Redlands Housing Element. The Regional Mobility Element, incorporated into the Regional Comprehensive Plan, affects funding for major transportation projects which are important to Redlands. SCAG calls for a 3.4 percent average annual increase in housing in the East San Bernardino Valley between 1990 and 2010, but projects a 4.1 percent average annual increase in employment.

SCAG requires local agencies to meet the requirements of several regional plans aimed at reducing impacts on various issues, including but not limited to, growth (Jobs/Housing/Population), transportation, air quality, energy, water resources, and waste management. These are briefly described below.

1989 Growth Management Plan
The purpose of the Growth Management Plan (GMP) is to encourage local land use actions which could ultimately lead to development of an urban form that will help minimize development costs, save natural resources, and enhance quality of life in the region. Goals of the GMP aim at enabling individuals to spend less income on housing, enable firms to be more competitive, minimize public and private development costs, preserve open space and natural resources, attain mobility and clean air quality, avoid economic and social polarization, and accommodate a diversity of life styles. The GMP is concerned with achieving a balance between the availability of jobs and the provision of housing on a sub-regional basis. The GMP classifies the San Bernardino Valley area as a jobs poor/housing rich region. Consistency with this plan is discussed in the Housing Element.

Regional Mobility Element (RME)
This element is the principal transportation policy, strategy and objective statement of SCAG. It proposes a comprehensive strategy for achieving mobility and air quality mandates. The RME lists the planned improvement to transportation facilities that the County Transportation Commission, the state, and other agencies have committed to fund over the next twenty years to provide better mobility of people and goods. In terms of impacts resulting from the Redlands General Plan update, the relevant portions of the RME state that:

• adequate capacity must exist in the subregion transportation network to absorb said development,
• that funds must be generated to pay for required improvements, and
• that all measures must be taken to reduce person trips, vehicle trips and peak hour traffic.

The RME is further discussed in the Traffic Technical Appendix of the General Plan Master Environmental Assessment.

Regional Housing Needs Assessment (RHNA)
The Department of Housing and Urban Community Development (HCD) is required to provide SCAG with their determinations of existing and projected housing needs by economic group. These determinations identify the SCAG region's share of the statewide need for housing and are intended for use in developing a new regional housing needs plan. Currently, the State has suspended the mandate to prepare regional housing needs plans and contends that SCAG may wish to prepare a 1995 regional housing needs plan. In response to this suspension, SCAG has used the same projections in 1989 and extended the time-frame of five years to the year 1996. Consistency with current RHNA numbers is discussed in the Housing Element. When HCD terminates the suspension, SCAG will review their regional housing stock and update their needs accordingly.

1989 Hazardous Waste Plan
The need for development of county and regional plans was triggered by state and federal laws that mandated the phase-out of landfill disposal of untreated hazardous wastes by the 1990's. The Hazardous Waste Plan of 1989 was prepared under the direction of the Southern California Hazardous Waste Management Authority (SCHWMA). This plan is designed to assist the region's counties and cities, the regional councils of government, and the state, in their individual efforts to plan for current and future hazardous waste management requirements. The plan facilitates the locating of facilities needed to manage hazardous waste generated by the member jurisdictions and promotes hazardous waste disposal sites in industrial areas where such waste is generated. Consistency with this plan is discussed in Section 7.24, Waste Management and Recycling.

1989 Air Quality Plan
Air quality impacts in Southern California have been a concern due to the continued degradation of clean air. This plan identifies transportation, land use and energy conservation measures aimed at reducing air pollution and conserving the environment. A determination of the project's consistency with AQMP is based on whether the proposed project meets conformity criteria including whether the:

• project improves the region's jobs/housing balance,
• project demonstrates that vehicle trips and vehicle miles generated have been reduced to the greatest extent feasible, and
• EIR demonstrates that the project will not have a long-term negative impact on regional air quality.

The proposed project, as mitigated, is deemed consistent with the AQMP in that it is not defined by the AQMP as a significant project.

1989 California Integrated Waste Management Act (AB 939)
Assembly Bill 939 (California Integrated Waste Management Act) was passed by the California Legislature in 1989 to address the solid waste issue. As initially approved, this act requires local governments to prepare comprehensive plans to reduce the amount of solid waste generated in their jurisdictions and disposed of in all landfill or other means by 25 and 50 percent by the years 1995 and 2000, respectively. This act addresses issues associated with meeting solid waste management goals in Southern California. Various regulatory changes have occurred since that time amending the requirements of the initial Bill. Consistency with this plan is discussed in Section 7.24, Waste Management and Recycling and EIR Section 16.8, Waste Management.

1.90     Themes of the General Plan
The General Plan includes a city design and more than 100 policies that elaborate six broad themes:

A Freestanding City. City limits are all but invisible in most of the Southern California Metropolis. Redlands is one of the few cities that still has a chance to maintain highly perceptible edges. The Santa Ana Wash on the north, Crafton Hills on the east, and Live Oak and San Timoteo canyons on the south. The west edge is not so clearly defined. Its continued visibility will depend largely on preservation of citrus groves at the most prominent locations.

Citrus Heritage. Maintaining citrus groves within the Planning Area as an aesthetic asset to the City and a reminder of Redland's beginnings as a major citrus producer is another one of the Plan's goals.

Small Town Feeling. Always number one in opinion surveys of communities in urban California, this trait is taken to mean uncrowded, friendly, small scale, and with a strong presence of nature. The General Plan provides for two communities. The East Valley Corridor will be handsome, but clearly not small town. South of Interstate 10 at Orange Street, a downtown scaled to three stories maximum, bordered by historic residential neighborhoods and a classic small university campus create a different world.

Sense of History. Landmark buildings and modest bungalow neighborhoods, the Zanja, and citrus groves are anchors that pull against the constant demand to declare everything old "obsolete." The Plan offers continuity with the past as a major ingredient of Redlands' spirit.

Quality in North and South. As in many cities, public and private amenities have not been evenly distributed in Redlands. The goal of this General Plan is to evenly distribute amenities throughout the City.

Revenues to Support Facilities and Services. Themes that lift the spirit will prevail only if the funds to operate a quality city are available. From the Smiley brothers' time to the present, Redlands donors and taxpayers have been willing to pay for quality, and new development must be asked to contribute a fair share toward maintaining the tradition. Jobs in the East Valley Corridor are expected to enhance both the City's fiscal health and the incomes of Redlands' residents.

1A.10     Principle One
The cost of infrastructure required to mitigate the effects of new development shall be paid by that new development.

(a) Development Fee Policy - In accord with the provisions of California Government Code Sections 66000 et seq., all development projects as defined therein shall be required to pay development fees to cover 100% of their pro rata share of the cost of any public infrastructure, facilities or services, including without limitation police and fire services, necessitated as a result of such development. The City Council shall set and determine development fees sufficient to cover 100% of the estimated cost of such public infrastructure, facilities and services based on appropriate cost-benefit analyses as required by the provisions of California law.

(b) Socio-Economic Cost/Benefit Study and Findings Required- Every development project proposal requiring a General Plan Amendment, Zoning Amendment, Subdivision Map, Specific Plan or, for projects involving structures larger than 5,000 square feet, Conditional Use Permit approval, shall submit a socio-economic analysis and cost/benefit study, which shall also be included in all environmental documents submitted to the extent permitted by law, identifying the source of funding for necessary public infrastructure and reflecting the effect of such development on the City, as part of the application process. The City Council shall publish notice of and hold at least one public hearing at which the public may appear and be heard to consider the socio-economic cost/benefit study. Approval of the development project shall only occur if the socio-economic study finds and determines to the satisfaction of the City Council that the development project 1) will not create unmitigated physical blight within the City or overburden public services, including without limitation the sufficiency of police and fire protection, and 2) the benefit of the development project to the City outweighs any direct cost to the City that may result. The City Council may, however, approve a development project for which the socio-economic study fails to make the required findings or determinations if the City Council finds and determines upon a 4/5ths vote of its total authorized membership that the benefits to the City from the development project outweigh the negative socio-ecnomic effects that may result.

(c) Impacts of New Development on Public Schools Shall be Mitigated - A mandatory component of the socio-economic cost/benefit studies shall be an analysis of the effect of the proposed development on public schools facilities and resources, and shall include proposed measures to mitigate any identified adverse impacts on school facilities to the greatest extent permitted under California law.

1A.20     Principle Two
Development within the planning area and sphere of influence of the City of Redlands shall conform to development standards within the City.

(a) Development Agreements - All development agreements entered into by the City and developers pursuant to California Government Code Sections 65864 et seq. after the Effective Date of this initiative measure as defined in Section 3 hereof, shall conform to the policies contained in the Redlands General Plan.

(b) Extension of Public Utilities Outside the City Limits - No extension of City provided utility services to areas outside the City limits shall occur until such areas are properly annexed to the City, except that utility services may be extended to areas outside the City limits without prior annexation if all of the following conditions are met:

1.     The area to be served is not contiguous to the City of Redlands; and,

2.     The City and the land owner have entered into a properly recorded and binding pre-annexation agreement establishing covenants running with the land that assure full compliance with all development standards of the City of Redlands, payment of all capital improvement and other development fees which would be applicable to the property if it were within the City limits at the time of extension of such services, and immediate processing of annexation to the City at the City's request; and,

3.     The land owner agrees as a condition of extension of utility facilities to serve the proposed development to pay the full cost of such extension of such utility facilities.

1A.30     Principle Three
Land use classifications set forth in the Redlands General Plan provide for an appropriate range of densities for residential development and intensity of commercial and industrial development in the City of Redlands.

(a) Number of Land Use Classifications and Density Standards Shall Not Be Increased - The density standards set forth in Paragraph 4.40, "Residential Land Use Classifications," of Section 4.0, Land Use Element, of the Redlands General Plan shall not be increased, and no new residential land use classification shall be added, without a vote of the people.

(b) Prohibition on Transfers of Density - In order to assure that development occurs in a rational way, no transfer of residential development rights from lands other than those designated for single family residential shall be permitted, and then such transfers of single family residential density shall only be permitted to create or preserve agricultural, open space, school or park uses.

1A.40     Principle Four
Agricultural uses of land are important to the culture, economy and stability of the City of Redlands and shall be preserved to the greatest extent possible consistent with the will of the people as expressed in Proposition R and Measure N, and consistent with the policies of the State of California set forth in Government Code Section 51220.

1A.50     Principle Five
Preservation of San Timoteo Canyon as a water conservation, recreational, equestrian and wildlife refuge resource for residents of the City of Redlands is essential to the health, safety and general welfare of the community. Development in this area shall only occur in a manner that preserves the area in as natural a state as possible, whether such development is for residential, commercial or flood control purposes.

1A.60     Principle Six
Limitations on traffic levels of service and use of designated roadways, restrictions on permanent outdoor advertising signs and the proliferation of billboards, imposition of reasonable noise standards in residential areas and control of slope densities are essential to managing growth within the City by preventing undue urbanization and its attendant urban blight, the degradation of public services and the over-intensive development of land.

(a) Levels of Traffic Service throughout the City Shall Be Maintained - To assure the adequacy of various public services and to prevent degradation of the quality of life experienced by the citizens of Redlands, all new development projects shall assure by appropriate mitigation measures that, at a minimum, traffic levels of service are maintained at a minimum of LOS C throughout the City, except where the current level of service is lower than LOS C, or as provided in Section 5.20 of the Redlands General Plan where a more intense LOS is specifically permitted. In any location where the level of service is below LOS C at the time an application for a development project is submitted, mitigation measures shall be imposed on that development project to assure, at a minimum, that the level of traffic service is maintained at levels of service that are no worse than those existing at the time an application for development is filed, except as provided in Section 5.20b.

(b) Collector and Local Street Standards Shall be Maintained - No development project shall be approved which will generate traffic volume on residential collector streets or local residential streets in excess of the standards set forth in the Redlands General Plan at Sections 5.32a and 5.32b. Roadways shall be designed and designated for use in accord with the standards set forth in GP Figure 5.3 of the Redlands General Plan.

(c) Circulation Patterns Shall Protect Residential Neighborhoods from Increased Traffic Congestion - Traffic circulation patterns shall be established and maintained within the City in a manner that protects the character of residential neighborhoods as set forth at Sections 5.30i, 5.30j and 5.30k of the Redlands General Plan. Major infrastructure improvements within the City designed to accommodate regional traffic needs shall be designed, constructed and financed in a manner which discourages increased traffic flows through residential neighborhoods, encourages traffic flows to existing freeway systems and makes prudent use of federal and local taxpayer dollars. The City Council shall coordinate with the San Bernardino Association of Governments (SANBAG), the Inland Valley Development Authority (IVDA) and the City of San Bernardino with regard to all Santa Ana river crossings, except the Orange Street crossing, to assure the development of California Street/Mountain View Avenue as a major arterial providing access to the San Bernardino International Airport.

(d) Designated Scenic Highways within the City Shall be Maintained - Where improvement of any scenic or historic drive, highway or roadway is required, the City shall take all action authorized by California law to ensure that those roadways retain the characteristics which justify their designation as scenic or historic roadways, including without limitation, capacity restrictions.

(e) Permanent Outdoor Commercial Signs Shall Be Limited in Size - To accommodate the need for permanent outdoor commercial signs in a manner that provides the least intrusion on the community and the least risk of visual blight, no permanent outdoor commercial sign shall be approved that exceeds 120 square feet in size except by variance and/or conditional use permit approved by a four-fifths (4/5) vote of then entire authorized membership of the City Council. No "reader boards" or "billboards" shall be permitted.

(f) Noise Standards in Residential Areas Shall Be Established to Protect Residential Use of that Land - Among the most damaging aspects of high density residential development is a degradation of residential noise standards. Accordingly, noise standards must be stringent enough to assure residents reasonable quietude in their homes.

(g) Slope Density Limitations Shall Be Maintained - To preserve the hillside vistas and character of the City of Redlands, no development project shall be approved in the Hillside Overlay areas that is inconsistent with the slope density standards set forth in Section 4.42m of the Redlands General Plan."

2.0    GROWTH MANAGEMENT ELEMENT

The General Plan provides for buildout of the Redlands Planning Area. Growth management policies apply to development within the City of Redlands and state the City's position regarding development in the presently unincorporated portions of the Planning Area. The policies are intended to implement the Plan's land use proposals, maintain adequate public services, and ensure fiscal balance during the buildout period.

Growth-Rate Limitation: Measure N, a zoning ordinance that amended Proposition R, allows a maximum 400 dwelling units to be added to the City each year. Up to 50 of the units are to be single-family homes on existing lots, with the remainder to be allocated according to a point system.

Measure N, a zoning ordinance, provides that sewer or water service may be extended to an additional 150 units per year (no carry-over) within the Sphere of Influence, consistent with the City's General Plan.

Density Limitation: Under Measure N, a zoning ordinance, no land designated by the General Plan as urban reserve as of June 1, 1987 is to be redesignated for a higher density than one dwelling unit per 14,000 square feet of net site area, except by a four-fifths vote of the City Council with findings of "no significant adverse environmental impact."

Current City policy that specifies a maximum density on slopes of 15 to 30 percent at one unit per two and one-half acres and, on slopes exceeding 40 percent, one unit per 10 acres. On slopes between 30 and 40 percent, required site area increases approximately proportionally from five acres to 10 acres per unit depending on slope and soil type.

Annexation: The City has prepared a plan for the ultimate development of the Sphere of Influence and approves annexations only if they are consistent with the Plan.

Continued development of the Planning Area will be influenced by demographic characteristics within the City and surrounding environs including the cities of San Bernardino, Loma Linda, Highland, Yucaipa, Calimesa, and unincorporated lands.

While growth limitations aim to control development at a slow rate, urban expansion of the Planning Area will continue and help support the population with additional jobs and housing. The following is a brief overview of the Planning Area regarding population, housing and employment. For additional detailed information on these topics, please refer to the Land Use and Housing Elements.

Population

According to the 1990 Census, the County of San Bernardino had a population of 1,418,380. The Department of Finance updated this figure in 1994 to 1,591,800. In 1990, the City of Redlands had a population of 60,394. As of 1994, this figure increased to 66,301.

According to the Census and the Department of Finance, Population Growth for the City of Redlands and San Bernardino County, is shown below between 1970-94 in Table 2.1.

As can be seen, population in the City of Redlands has grown over the last twenty-four (24) years. Based on Department of Finance data, the average annual growth rate between 1980-90 and 1990-94 was 3.8 and 2.4 percent, respectively. Based on existing population, projected number of dwelling units and persons per household, although it is impossible to predict the exact population of the City of Redlands under the provisions of this General Plan it is estimated that the City of Redlands could have a population of 101,644 people at buildout. It is anticipated, however, that implementation of this growth management element and other provisions of the General Plan will reduce the likely number of residents at buildout to approximately 90,000.

Regionally, from 1970 to 1990, the County of San Bernardino had an average annual growth rate of 44.9 percent.1 As of 1994, the County of San Bernardino had a population of 1,591,800.2 According to the Southern California Association of Governments' (SCAG's) Regional Comprehensive Plan and Guide, adopted in January of 1995, it is estimated that the County of San Bernardino will have a population of 2,469,000 people by the year 2010.

Housing
According to the 1990 Census, the Planning Area (City of Redlands and Sphere of Influence) had a total of 26,362 dwelling units. Between 1991 and 1994, the City of Redlands recorded an increase of 544 dwelling units, an increase of 2.0 percent, bringing the total to 26,906.3 It is projected that total housing units for the City of Redlands at buildout of the General Plan could be as many as 36,414. It is anticipated, however, that implementation of this growth management element and other provisions of the General Plan will significantly reduce the likely number of dwelling units at buildout to approximately 32,000.

According to the 1990 Census, the County of San Bernardino had a total of 474,737 dwelling units. Between 1991 and 1994, the County of San Bernardino recorded a decrease of 23,384 dwelling units, bringing the total to 451,353. Although housing units were constructed within the County, the number of dwelling units decreased due to annexations by other cities. It is projected that total housing units for the County of San Bernardino in the year 2010 will be 916,000.

According to the Department of Finance, the persons per household in 1990 for the City of Redlands was 2.61 and increased to 2.76 in 1994. Compared to the County of San Bernardino for the same years respectively, persons per household were 2.89 and 3.10.

Table 2.2, Housing Growth for the City of Redlands and County of San Bernardino, shows figures for changes in housing between 1990-94.

Employment
The majority of employment opportunities within the Planning Area are currently associated with agriculture, retail and professional/office. The number of jobs actually within the Planning Area are estimated to be lower than the number of dwelling units.

Employment numbers for the City of Redlands for 1990 were calculated using existing square footages for commercial and industrial uses and multiplied by conversion factors taken form the RIVSAN CTP Model Consistency Checklist. In 1990, the City of Redlands had approximately 20,549 employees. Employment figures for 1994 were calculated using the same method. In 1994, the City of Redlands had approximately 26,483 employees. For the year 2010, employment projections were calculated using SCAG data from the RIVSAN CTP Model. It is estimated that the City of Redlands will have approximately 57,199 employees by the year 2010.

According to the Southern California Association of Governments' Regional Comprehensive Plan and Guide, the County of San Bernardino had approximately 488,000 people employed in 1990. This figure increased to 526,400 by the year 1994, an increase of 8.0 percent. It is projected that the County of San Bernardino will employ approximately 888,000 people by the year 2010.

Table 2.3, Employment Growth for the City of Redlands and County of San Bernardino, shows figures for employment growth between 1990-94.

Overall, the City of Redlands will continue to accommodate its population by providing sufficient housing and employment opportunities within the Planning Area. This decrease in growth is anticipated to help the City of Redlands balance housing with the number of jobs so as to maintain consistency with the Growth Management Policies in the Regional Comprehensive Plan and Guide prepared by the Southern California Association of Governments. The following are guiding and implementing policies aimed at controlling growth.

Guiding Policies: Growth Management

2.0a   Development within the Planning Areas shall be consistent with the net density of development as provided for in the General Plan.

The General Plan is designed to accommodate "ultimate development" of the Sphere of Influence. This does not mean that the General Plan should never be changed; however any modification should be consistent with the overall themes, goals, and policies of the General Plan.

2.0b   Provide for expansion of housing and employment opportunities while avoiding deterioration of the quality of life associated with rapid growth.

2.0c   Encourage annexation to the City of all land developed or to be developed within the Redlands Planning Area.

San Bernardino County General Plan policies support annexation of land designated for urban development.

2.0d   Encourage programs that will enable concurrent provision of necessary urban services prior to approval of development projects requiring services.

Implementing Policies: Growth Management

2.0e   Encourage and promote orderly development and growth of urban areas while maintaining and encouraging the best possible use of agricultural land, protecting it against premature encroachment of non-agricultural development. Consider the costs of extending urban facilities and services in the review of urban development.

2.0f   Support San Bernardino County in implementation of policies LU-9d. and e. of the County General Plan as follows:

"d.   Support City annexations/incorporations of urban designated lands.
e.   Recognize and implement growth control limits adopted by cities as they apply to spheres."
LU-9 e.    (Support annexations/incorporations of urban designated lands), and
LU-9 f.    (Recognize and implement growth control limits adopted by cities as they apply to spheres) are commitments essential to implementation of the Redlands General Plan.

   1 1970, 1980, 1990 Census.
   2 Department of Finance, California Annual Population and Housing Data, Demographic Research Unit,
      January 1994.
   3 First American Title Ins., Dataquick Information Network Report, March 1995.