HomeMy Public PortalAboutOpen Space Committee (4) Truckee General Plan Update
Town Council
and Planning Commission Workshop
Workshop 2: Open Space and Conservation, Community Character
6:00 p.m. — 10:00 p.m., Thursday, November 13, 2003
AGENDA
6:00 Welcome -Mayor Ted Owens
6:10 Introduction -David Early, Design, Community &Environment
6:15 Presentation: Open Space and Community Character
David Early, Design, Community &Environment
•
6:40 Breakout Session:
Small Group Discussion of Open Space and Community Character
Policy Questions
8:10 Reports Back from Small Groups
David Early, Design, Community &Environment
8:30 Planning Commission and Town Council Discussion and Direction
9:45 Public Comment
9:55 Next Steps: Workshop 3
David Early, Design, Community &Environment
10:00 Meeting Close
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General Plan Workshop
November 13, 2003
Open Space, Conservation and Community Character
The General Plan Workshop on November 13, 2003 will address two major topics: Open Space and
Conservation, and Community Character. Issues surrounding the establishment and preservation of
open space, including its attendant values of natural resource preservation,scenic value,and recreational
opportunities were identified during Phase I of the General Plan Update process as being of critical
concern to Truckee residents. Similarly, questions of community character - the aspects that make
Truckee a unique and special place, including the quality and character of its neighborhoods and open
space areas, and the connections between them, were expressed by many as lying at the heart of the
sense of place and local community for Truckee's citizens.
The November 13 workshop will focus on a set of key policy questions and issues for each topic area
that will be the subject of discussion by the public and members of the Town Council and Planning
Commission. Identification of these issues was a two-fold process which included review of the most
important issues identified during the Phase I process as well an examination of the existing General
Plan's Guiding Principles, Goals, and Policies, in order to focus on the specific areas where existing
policies need to be strengthened or supplemented. The input and direction received at this workshop
will provide important guidance as the Town moves forward to prepare the update to the Conservation
and Open Space Element, and the new Community Character Element of the General Plan.
A series of background papers has been prepared to provide background and supplemental information
for the November 13 workshop, and to present the key questions that will be the focus of discussion at
the workshop. Most of the papers consist of a background or discussion_section, followed by the
related question or questions to be addressed. While review of this material in advance of the workshop
is invited and encouraged, please note that this information will also be distributed as a handout packet
to all participants on the night of the workshop itself.
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Types of Open Space
Open Space, broadly defined, refers to places that are essentially free of built development. The term
can encompass a wide range of open space types, each of which has different characteristics and
functions,and in which different types of activities and uses are allowed.
During the community visioning workshops held in Phase I of the General Plan Update process, open
space preservation was identified as a key issue of concern to the public. Providing a clear definition of
different types of open space was identified as an important starting point for prioritizing the types of
open space that should be preserved and enhanced in Truckee.
The following list describes a variety of open space types, including many that are found in and around
Truckee today. These types can be seen to represent a continuum ranging from the most undeveloped
or wilderness type to the most "town-like" in character. While each open space type is presented as
categorically distinct for the purposes of the definition, it is recognized that some open space areas
might be seen as falling under more than one category, or will contain uses described under more than
one open space type.
-r: Wilderness: Wilderness is the most "natural" or least developed
w t,''.' open space type. It consists of large tracts of land that are closed to
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yuse by motorized vehicles, with virtually no development apart
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k '� �,� ;�.`'��a��r-• from minimally improved hiking trails. This land is generally
.' t�� + ' under public ownership. Many of Truckee's important scenic and
b. isy" tee + ' . " y, visual resources, such as mountain peaks and ridgelines, and large
.11,2-4,--,,a1' ,�K ' , s:14 areas of forested lands,are contained within these areas.
Resource Open Space: This category includes land that is r"---7.--771?----77 1
minimally developed and usually covers a wide area. Uses in these � ,.., -
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areas focus on the land's resource value, includingsuch activities as
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cattle grazing, forestry, or mineral extraction. Recreational use of •k4-- 2`c •p p .:r'
this land, with minimal development of facilities such as trails and r .„ ,,1
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campgrounds are allowed where appropriate, although it is . 3.,014. 00_,-sons,..3:„0..-,,,,,y
generally secondary to the resource uses that predominate. These
areas may be under public or private ownership.
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Although important scenic resources can be found within these areas, some of the particular resource
extraction activities, such as timber clear-cutting or large scale aggregate mining may create an
undesirable visual character.
Habitat Preservation Areas: Preservation of significant biological resources and habit is central to the
definition of these open space areas which generally encompass relatively large areas where sensitive
habitat areas are located, including important riparian, wetland or
forest habitat. Important scenic areas- and values arelues • i p' E r ' -ifrequently associated with these minimally developed areas. While A; '� "�. a� �,. t.}
the degree of human access mayvarydepending on the nature and `;+ ' d #4 F'+ s.." :*,t
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sensitivity of those resources, any development allowed in these - ... z„m..,t- c r ..
areas is secondary to the goals of habitat preservation. Where 4 , ' ",� ,,,,-.
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allowed, development is limited to facilities for passive recreation .mots---'¶i i e %.-"-_ ".
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, and enjoyment of the lands, such as hiking or cross-country ski i - ••”---;.-.T4'11,'- '*_
trails, or interpretive facilities. In some cases, these open space areas will have a linear form,such as a
river corridor or wildlife migration route. Non-vehicular paths may be sited along such open space
corridors, forming important greenways and trail links between larger, non-contiguous open space
- areas, or between development areas.
- Limited Development Recreation: These open-space areas are focused on
y -' -rj,1 providing recreational opportunities that require less intensive improvement
---, ? or development. In general, these areas are smaller than the three open space
xr , types described above, and more likely to be adjacent to developed areas of the
`y = Town. Uses in limited development recreation open space areas might include
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3. golf courses, equestrian facilities, fly fishing, ski areas, developed snowmobile i ,.
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- - and off-road vehicle areas, and campgrounds. These areas are most commonly
under private ownership, but may also include public facilities (e.g. a
- - P L ''=Sr,. municipal golf course). .... . ....-
- Parks: This category encompasses a number of different types of publicly-owned, active open space _.
areas, including the following:
—7—'-- i Regional Park: This open space type is more intensely
''k''^' y' i - developed with facilities than the limited development
1lj; X11 apr _ ; -recreation areas described above, A broad range of facilities,
,'r},1 A F1 I,.'11rfi l intended to serve the wider region, are provided in these areas.
`- ,! These facilities will encompass a both active and passive uses;
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ry ` 1 �� rr -12� ' these might include picnic areas and informal playing fields,
- *v a. �. formal ball fields, playgrounds,amphitheater,rodeo grounds
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and concessions. Typically encompassing a several-acre area, these parks may also have certain portions
dedicated to habitat preservation and less-intensely developed passive recreation facilities:''' - • .
Community Park: This type of open space park is primarily dedicated to organized sports activities,
oriented towards serving the entire town community. Facilities provided might include soccer fields,
baseball diamonds,swimming pool,skate park,tennis courts or basketball courts.
Neighborhood Park: As its name implies, neighborhood parks are small, public open space areas
intended to serve as a neighborhood or community facility. Amenities provided might include some
recreational sports facilities such as a basketball hoop or play field, as well as a playground or tot lot and
picnic area.
Community Gathering Place: These open space areas are the smallest +c,k,,� %' '
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and most "town' oriented public open spaces intended as a focal point
for the entire community. Centrally located in the downtown or h' � '
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another important community area, they are a place for community . /:}}i.�g
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events and celebrations, a site for public concerts or a farmers market .;t r, '
Examples of such spaces are a town square,mini-park or civic plaza. ;•_1 • _ 'C.'
Questions:
• If public open space areas are established in Truckee, what type of open space
should be prioritized? Where should they be located? -
• Does Truckee need additional parks or limited development recreation areas?
If additional parks are needed in Truckee, what types and where should they
be developed? -
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Open Space Establishment and Maintenance trr.: •
Creating additional public open space has been identified as a priority for many Truckee residents; as
the framework for development and conservation in Truckee, the General Plan can help define the role
that the Town and others might play in achieving this goal. Some of the mechanisms that could be • : .
employed would involve little or no cost to the Town, others, such as direct purchase of land, would _.
require funding. Maintenance of newly established open space areas would also involve direct costs to
the Town, funding for which would need to be identified. The Town has recently established an Open
Space Committee, which is exploring the viability of a future bond measure that might pay for open
space acquisition and maintenance in Truckee.:,. ., . '
- The following list represents a range of strategies that could be used to establish open space areas in the
Town:
Transfer of Development Rights (TDR): The General Plan and Development Code can permit
subdivisions that allow'transfers of residential development rights from one parcel to another, so that
development that would otherwise be allowed on one parcel (sending site) is transferred to a different,
more appropriate location (receiving site). In this way, desired open space in an area can be preserved.
Eligibility criteria for the sending site (including desirability for open space preservation) and different
criteria for the receiving site would be established. If the transfer is approved, the Town is granted a nh• '
conservation easement in perpetuity on the sending site(s). A major objective of the TDR is open space
preservation.
Purchase of Fee Interest In Land: The simple purchase of land, where acquiring the "fee interest"
means obtaining full ownership.
Purchase of Land Without Development Rights: The Town can buy property in such a way that the - •
seller retains the residential development rights for later transfer, or sale and transfer, to:another
property where the development can occur. The purchase price of the land is.then much less than it
would be if the development rights remained attached to the land. The Town may take ownership in a
TDR sending site, after the TDR development is platted on the receiving site, when public ownership
of the land rather than just a conservation easement would be advantageous. ••
Purchase of a Conservation Easement (also called the purchase of development rights): Where orre,o
public ownership of the land itself is not essential to the public interest, the Town may, acquire an . -
interest through a deed of conservation easement in gross. Conservation easements usually serve two
primary purposes: to reduce the amount of development that can occur on the property and/or to
assure that the property and its environmental, cultural and/or open space values are preserved.and
managed to meet a public policy objective. A conservation easement is tailored to the specific property
to be covered, runs with the land in perpetuity unless otherwise provided in the deed of easement,
leaves the land in private ownership,and usually does not permit public access. Conservation easements
are especially well-suited to preserving prime agricultural land.
•
Bargain Sale: This is a purchase in which a landowner sells property to the Town at a price below the _ -- -
fair market value. The purchase can be either fee interest or a conservation easement. Usually.the
landowner can take a tax deduction (treated like a charitable contribution) for_the difference between
the fair market value, as determined by a certified appraisal, and the sale price. -
Purchase of Land With Leaseback: As part of the land purchase contract the Town agrees to lease the
land back to the seller for a specified time for continuation of agriculture, grazing or other ongoing use
that would retain the open space values of the property.
Donation of Fee Interest or Conservation Easement: In this case the landowner donates land or
deeds a conservation easement to the Town and uses the value of the donation as a tax deduction.
Intergovernmental Transfers (lease or patent): The Town may lease open space acreage from special
districts, local, state or federal government agencies. An example of a site in Truckee that might be
appropriate for such a transfer is the Department of Fish and Game property along the Truckee River • --
west of South River Street.
Intergovernmental Cooperation
The Town may work cooperatively with the Nevada or Placer Counties on open space preservation
near the town limits. These efforts may result in joint purchase of open space by the town and the
County or Counties. Additionally, the Town may work with the counties to develop
intergovernmental agreements (IGAs) for master plans of future land uses in areas of the county near n a
the town. An IGA may have an open space preservation component, or it may simply identify where
annexation and urban development may occur during the term of the agreement. -- _ - -
Question:
• How should the Town establish and maintain permanently iprotected open
- space? -
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Open Space Requirement for New Development
Under the 1996 General Plan, new development in the Open Space Recreation (OSR), Residential
Cluster (RC-5 and RC-10),Residential, and Planned Community (PC) designations is either required or
-strongly encouraged to include the preservation of significant amounts of land in open space uses.-
The existing General Plan defines open space as "land that may be under public or private ownership,
is essentially unimproved, and is devoted to any of the uses defined in the Conservation and Open
— Space Element." These open-space uses include natural resource preservation, managed resource
production(e.g.mineral extraction), areas for public safety (such as steep slopes or wildfire areas), scenic
preservation,and recreational uses, including developed public recreational amenities such as parks, and
private facilities such as golf courses. -
•
At workshops held during Phase I of the General Plan 'Update process, many community members
expressed the opinion that Truckee has allowed too many golf courses to be developed in recent years.
In particular, allowing golf courses to fulfill the open space requirement is seen by many as having
favored private golf course development over other open space types of greater environmental and
community value, including those offering publicly-accessible recreation, scenic resources, and diverse . - •
.wildlife habitat.
•
Truckee currently has three private golf -•
courses: Tahoe Donner, Coyote Moon.and "r t
Ponderosa; two more are planned as part of i 3
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development at Old Greenwood and Gray's a
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Crossing (PC-2). Beyond the existing and k ' to ? 'le Sui, r' .- . -
planned development, opportunities for , YL?
additional golf courses in Truckee are limited. L = r + ' +
An 18-hole championship golf course can :01.41711-• j_
require up to 200 acres of relatively flat land,
and there are no such sites available in the OSR or remaining Planned Community areas. , A : :
development application recently submitted for the 280-acre area just east of Glenshire, the only--
location that could have accommodated a new golf course, includes 172 acres of open space,and no golf
course.
Questions:
♦ What types of open space should count towards the open space requirement
for new development?
♦ Should new golf courses be allowed under the new General Plan? If so, under
what conditions?
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Clustered Development - -
Clustered Development is a term that traditionally refers to the practice of grouping a particular
development's structures on a portion of total available developable land, reserving a significant amount
of the site's total acreage as protected open space. This definition has most often been applied to
development in rural or semi-rural areas, in association with development strategies designed to permit
a certain level of development while preserving as much area in open space as possible for agriculture,
recreation or wildlife habitat.
The 1996 General Plan contains a series of Goals and Policies that promote clustered development
within the Town limits. Most large development is required to include clustering, in order to ensure
that it creates permanently protected open space areas that connect the-built portions of the Town
together. Although clustering is a requirement, the General Plan provides little direction on which
types of clustering are most appropriate or desirable. The typical pattern of clustered development that
exist in Truckee today, described below as the Rural Suburban or Linear Rural Suburban Clustering
types, continues to be reflected in plans for new development. This pattern consists of "pods" of
housing distributed across a majority of the buildable portion of a project site, interspersed with open
space areas and greenways. _
While this approach has successfully preserved some large open space within the Town limits, it has
been suggested that a more refined definition of clustering be included in the General Plan Update. In
particular, the type of rural residential development that the current clustering concept has promoted
has been criticized by some as contributing to a form of "rural sprawl," with low-density rural
residential development spread out across a landscape of fragmented and discontinuous open space and
habitat areas.
•
Clustered Development Types
A range of clustered development types which might be appropriate for different areas of Truckee is
described below. Included among them are both the "typical" clustered development common in
Truckee and many other rural residential and mountain communities, as well as other types that
emphasize centralized, clustered mixed-use neighborhoods, clustered infill development, and the
preservation of large, contiguous blocks of open space to the degree possible.
Rural Clusters: This type of clusteringconsists of small clusters of two to six dwellings, each situated
on a large lot, with the primary dwelling on each parcel located in proximity to the dwellings on the
other parcels. The majority of the remaining portion of each parcel is left undeveloped,and transitions ci
into wider open space areas beyond. This type of clustering is most appropriate in areas where a io..7-
predominately
:-predominately rural character is to be maintained.
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Rural Suburban Clusters: This type of clustering is characterized by larger"pods" of 10-30 dwellings
organized around a cul-de-sac or loop road. Each pod is linked by connector streets, but separated from _ .,Ln se'
other clusters by undeveloped open space. Trails and greenways may link the pods across these open
space areas. Within each pod, houses are sited so that the non-built area of each parcel is adjacent to the
greatest degree possible.
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Linear Rural Suburban Clusters: This type of clustering is similar to the Rural Suburban Clusters
described above, but with larger and more elongated "pods", and intervening open space arranged in a
linear pattern. This is typical of the development pattern seen in Glenshire and Tahoe Donner.
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Medium Density Residential Cluster: This type of clustering is focused on a smaller single site,
developed primarily with housing, although it may also contain a civic element such as a common -
open space courtyard or a community center. All development is constrained to a small portion of ..„,„„_-_,7i,
the project site with the remainder in common open space. Housing may be attached, as_a
townhouse block or blocks, series of duplex or triplex units, or detached as single family homes on , -
small lots. The cluster site may or may not be sited in proximity to essential services. ' -
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Neighborhood Cluster: This type of clustering consists of an integrated mix of residential and •
commercial uses, developed at a density sufficient to keep as much of the potentially developable land
in large, contiguous blocks of open space as possible. The neighborhood area is oriented towards
other nearby neighborhood areas, and/or major transportation and transit links, so as to optimize
connections between them.
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Questions:
• Where in Truckee is new development consisting of clustering interlaced with
open space appropriate?
• Where in Truckee is development focused around centralized, neo-traditional
neighborhoods appropriate?
•
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3. Community Center • _
4. Community Swimming Pool - -
5. Donner Lake Boat Launch Facility
6. Donner Lake Public Piers
7. Donner Memorial State Park
8. Glenshire Park ,
9. Meadow Parki '
10. RiverView Community Sports Park 1
II. Shoreline Park
12.Truckee River Regional Park
13.Veteran's Building
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•
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