Adopted Downtown Precise Plan - January 31, 2023

B ConnectOrinda Plan (2019)

Acknowledgements

City of Orinda City Council

Inga Miller, Mayor

Darlene K. Gee, Vice Mayor

Latika Malkani, Councilmember

Brandyn Iverson, Councilmember

Janet Riley, Councilmember

City of Orinda Planning Commission

Ann Parnigoni, Chair

Willy Mautner, Vice Chair

Robert Hubner, Commissioner

Marian Jelinek, Commissioner

Lina Lee, Commissioner

John Lynn Smith, Commissioner

City of Orinda Project Staff

David Biggs, City Manager

Drummond Buckley, Planning Director

Mayank Patel, Senior Planner

Winnie Mui, Associate Planner

Darin Hughes, Assistant Planner

Osa Wolff, City Attorney Consultant Teams

Economic & Planning Systems, Inc.

Environmental Collaborative Opticos Design, Inc.

PlaceWorks

Questa Engineering

Rincon Consultants, Inc.

Chapter 1: Existing Conditions

1.1 Plan Overview

What is the Downtown Precise Plan?

The Downtown Precise Plan (DPP) documents the City of Orinda’s long-range planning priorities for Downtown Orinda. The plan establishes comprehensive guidance for downtown growth management and development decision-making by offering a cohesive downtown vision that will be implemented through future development, policymaking, and programs.

As a statement of policy in the form of text, maps, and graphics, the DPP will be used to guide public and private actions that shape Downtown Orinda. The DPP provides decision makers with information and an outcome-driven framework for making informed decisions affecting the long-range social, economic, and physical growth of the downtown. It also serves as a resource regarding the conditions of Downtown Orinda as well as the policies and regulations in place at the time of the plan’s adoption.

The DPP document is non-regulatory and does not itself affect the General Plan or zoning. The content herein will be used to guide future General Plan and zoning text and map amendments. The draft Objective Design Standards appendix of the DPP will ultimately become adopted as Chapter 6 following the amendments to create development standards that will regulate and support mixed-use and residential development for properties in the Theatre and Village districts.

Focus of the DPP

The DPP performs the following functions:

• Provides a backdrop of existing conditions to serve as a baseline for future understanding of progress;

• Establishes a Vision Statement and Guiding Principles to describe the community’s intent for the future of Downtown Orinda;

• Coordinates efforts around land use policy in the Downtown Commercial and Downtown Office zoning districts;

• Establishes a framework to stimulate and manage Downtown housing production in coordination with the 6th Cycle Housing Element;

• Establishes a framework for private and public implementation programs;

• Details the history of and guides revitalization efforts for the daylighted portion of San Pablo Creek;

• Projects the potential impacts of and mitigation strategies for DPP-supported development; and

• Recommends urban design standards to meet overall development goals and objectives (to be adopted in the future as Objective Design Standards).

Where the DPP applies

The DPP applies to a 146.3-acre Project Area as outlined in Figure 1–1. It focuses particularly on 77 parcels totaling approximately 50 acres within the Downtown Commercial and Downtown Core zones in the Theatre District and Village District. It does not include the Orinda BART station.

Figure 1–1 Project Area – Zoning Districts

City of Orinda Planning Department

Source:

1.2 Plan Process

1.2.1 Plan proposal overview

As a part of the downtown planning continuum, the City Council expressed an interest in pursuing revisions to downtown development standards by enacting a new, stand-alone downtown plan— the Downtown Precise Plan (DPP). After close consideration at the January 7, 2020 City Council meeting, the Council directed Planning staff to manage the project in-house and issue an RFP and/or request for qualifications (RFQ) for specific tasks as necessary. This officially kicked off the DPP process.

Plan Orinda: The DPP, Housing Element, & Safety Element

The DPP was developed in coordination with two other plans that pertain to the community as a whole and to downtown: The 6th Cycle Housing Element update, and the Safety Element update.

Every 8 years, by State law, local jurisdictions in California must update the housing elements of their general plans. The cornerstone of this process is the Regional Housing Needs Allocation (RHNA), which establishes a minimum number of units for each jurisdiction that must be accommodated in the policies, actions and development standards contained in each housing element.

The City of Orinda’s 5th Cycle Housing Element was adopted in 2015 and based on a total RHNA allocation of 227 units. For the 6th Cycle Housing Element, Orinda’s RHNA numbers were established at 5 times higher than the allocation stipulated by HCD/ABAG for the City’s 5th Cycle housing element. Certain sites within the DPP Project Area are being used to accommodate some of the housing capacity as RHNA opportunity sites (see Figure 1–2), enabling the 6th Cycle Housing Element to refer to the DPP development standards and policies, enabling the potential units allowed by new densities proposed by the DPP to be counted toward the State-mandated RHNA numbers. This also enabled streamlining of the required environmental review for both the DPP and the 6th Cycle Housing Element. Accordingly, these efforts were coordinated under the mantle Plan Orinda, which encompasses:

1. The Downtown Precise Plan;

2. The 6th Cycle Housing Element update;

3. The Safety Element update required simultaneously with the Housing Element update; and

4. The Environmental Impact Report required for the DPP, the Housing Element update, and the Safety Element update.

Mixed-Use General (35’ max. height)

Creek/ PGE easement

Ground floors: predominantly shopfronts

Ground floors: shopfronts, dooryards, terraces and forecourts

Figure 1–2 Regulating Plan: Density & 6th Cycle Housing Element Opportuntity Sites

New civic space (publicly accessible, location and size to be determined)

New civic plaza

55 units/acre

Pedestrian passage/ promenade

Frontage road

Pedestrian access to BART

30 units/acre

25 units/acre

6th Cycle Housing Element Site

Project boundary

San Pablo Creek (daylighted)

San Pablo Creek (culverted)

Not part of the Project Area

Precise Plan boundary Area excluded from Precise Plan (BART parking)

BART line

BART Line

BART Station

BART station

Objective Design Standards

Orinda, CA

February 2021

1.2.2 Public engagement

The status of the Downtown Precise Plan was maintained on the city’s Plan Orinda website (www.planorinda.com) throughout 2021 and 2022 providing public updates and notifications of upcoming events and engagement opportunities.

The DPP was built upon discussions through a series of online workshops as well as public input from 2020 and 2022 downtown surveys. Most public engagement was conducted remotely from March 2020 onward due to the ongoing global COVID-19 pandemic, presenting unprecedented challenges in restricted public engagement opportunities; however, the digital format of the numerous workshops, public meetings, and surveys enabled new flexibility as it became clear that public comment could be, and often was as residents adapted to a new normal in civic communication, made asynchronously.

Above 2021 Project update published in the City’s publication, The Orinda Way

Right Word map samples of the 2020 Online Survey results presented at the second community workshop in June 2022

PG&E Transmission

This meeting was instrumental public’s expectations power lines. Suggestions issue had been raised of the public. PG&E representatives possible issues, solutions,

Line Discussion (June

instrumental in gauging the around the Downtown Suggestions for dealing with this many times by members representatives discussed solutions, and associated

These meetings, held with the Downtown Planning & Housing Element Subcommittee, the Planning Commission, and finally the City Council, included the presentation of the updated Vision & Guiding Principles draft chapter. During the meetings, staff received public comment and Subcommittee/Planning Commission/City Council feedback on the community’s vision and goals for downtown. The San Pablo Creek memo was also presented to the City Council. These meetings illustrated the need for a Guiding Principle that would serve to guide the community’s vision for sustainability and climate adaptation – the community’s first ever adopted stance on its role in addressing climate change.

Draft Vision & Guiding Principles Presentation (Subcommittee) (July 18, 2022)

Draft Vision & Guiding Principles Presentation (Planning Commission) (August 9, 2022)

Draft Vision & Guiding Principles Presentation (City Council) (September 6, 2022)

1.3 Plan Organization

Following this introduction, the Downtown Precise Plan is organized into four chapters, with a fifth chapter to be adopted upon the future amendment of the General Plan.

Chapter 2: Existing Conditions

The Existing Conditions chapter offers a snapshot of the community profile and economy; major land-uses and features; adopted policies, regulations, and plans; downtown characteristics and property conditions; circulation; and natural features and infrastructure. This chapter serves to record a baseline against which future progress may be measured, and to set the context for the rest of the DPP.

Chapter 3: Vision & Guiding Principles

The Vision & Guiding Principles chapter details the intended outcomes of the DPP and provides a framework for guiding future policy related to the downtown. It describes the envisioned form that the future downtown area will take, establishes a series of principles that guide the city’s efforts toward specific outcomes, and details supporting goals and specific policies that will achieve these intended results. As an aspirational vision of a downtown Orinda that serves the needs of Orindans present and future, this chapter serves as the heart of the document.

Chapter 4: San Pablo Creek

The San Pablo Creek is daylighted across approximately 12 parcels, but existing structures are oriented toward Orinda Way with little to no public access to the underutilized creek. This chapter serves as a central place that documents the history of San Pablo creek restoration efforts and provides a guidebook for future restoration efforts. The intent is for future restoration efforts to result in a publicly-accessible natural amenity that connects areas of the downtown with nearby trails and enhances the downtown’s charm while maintaining or enhancing stormwater capacity and natural habitat.

Chapter 5: Utilities, Services, & Infrastructure

This chapter provides an overview of existing conditions and discusses potential impacts upon utilities, services, and infrastructure that would occur as a result of development generated by the DPP. This information is presented as a summary of the DPP-specific information contained within the Environmental Impact Report prepared for the DPP, the 6th Cycle Housing Element update, and the Safety Element update.

This chapter furthermore discusses the development constraints posed by the PG&E transmission lines running through downtown and the challenges associated with previously-proposed mitigation strategies.

Appendices

The DPP includes several appendices that add detailed subject-specific information and context for the DPP. These are:

A: Draft Objective Design Standards When adopted, this draft chapter is intended to implement the vision of the DPP in relation to private development in current Downtown Office and Downtown Commercial zoning districts. The development standards are intended to be objective and clearly communicate the design intent of the DPP’s vision, and to streamline the development proposal review and entitlement process. The standards therein are intended to govern the physical form, character, and uses of private development and public realm elements such as civic spaces. This chapter also introduces a Style Guidelines framework that will provide architectural style guidelines and recommendations deemed appropriate for downtown buildings.

B: ConnectOrinda Plan (2019) Adopted in November 2019, this plan guides development for the public realm of Downtown Orinda, detailing streetscape, creek, and transportation improvement projects that beautify, improve travel through, and preserve the uniqueness of downtown Orinda for people traveling by all modes. ConnectOrinda also identifies opportunities to connect the Village District, Theatre District, and the area in between to make it safer and more convenient to walk, bike, and drive within these areas. This chapter may effectively be considered the public realm portion of the DPP.

C: San Pablo Creek Restoration and Trail Concept Memo This memo provides an overview of the San Pablo Creek history, existing conditions, and various restoration proposals. It provides a trail alignment and creek restoration concept. This memo provides additional detail to the information presented in Chapter 4: San Pablo Creek.

D: Economic Development Feasibility Memo This memo evaluates the financial, economic, and fiscal implications of residential mixed-use redevelopment concepts for the DPP project area.

E: Downtown Redevelopment Potential Memo This memo evaluates real estate market conditions affecting the redevelopment potential of Downtown Orinda.

F: Downtown Public Engagement Surveys Details of public opinion surveys and interviews regarding Downtown Orinda, 2020 - 2022.

1.4 Plan Programs

Adoption of the DPP is just the beginning of the work directly related to the plan. Accountability for ensuring the Plan’s impact on Downtown development and implementation programs will be an ongoing process. The following programs are recommended by Staff as the next steps in the lifecycle of the DPP.

1. Consider appropriate amendments to the General Plan to reflect the vision and guiding principles of the DPP including, but not limited to, the amendments in Table 1–A on the following page.

2. Amend the Orinda Municipal Code to codify the draft Objective Design Standards (ODS) included as Appendix A of the DPP. At the same time, amend the General Plan land use map and the Land Use Element to reflect the draft Objective Design Standards.

3. Amend the Orinda Municipal Code to codify the proposed allowable residential uses, minimum retail requirements and other land use requirements as outlined in the Draft Objective Design Standards.

4. Continue public outreach to Orinda residents, downtown property owners, prospective owners, and businesses regarding the content and goals of the DPP and the status of the necessary municipal code and General Plan amendments.

5. Assess development proposals within the scope of the DPP utilizing the goals and policies of the Vision & Guiding Principles chapter to evaluate and consider consistency with the community’s vision for Downtown.

6. Provide periodic progress updates at public meetings summarizing DPP-related development.

Table 1–A Existing/Proposed General Plan Policies - Proposed Amendments

Existing/Proposed General Plan Policies with Proposed Amendments Identified as Track Changes General Plan Section Topic

In downtown Orinda, amend the municipal code, the zoning map, and the Downtown Inset General Plan map to permit vertical and horizontal mixed use with multifamily densities of between 25 and 50 dwelling units to the acre as contemplated in the 6th Cycle Housing Element of the General Plan as well as the Downtown Precise Plan and the related Draft Downtown Objective Design Standards. [to be determined] Mixed Use, Multifamily

Favor retail services needed frequently by residents by limiting the amount of office space in predominantly retail areas. Ground floor office space in retail areas should be discouraged. serve Lamorinda uses and generally not exceed retail space on any one lot.

Limit development at the Orinda BART station to ground level and underground parking. Encourage BART to develop additional ground level parking on off-site properties.

Maintain current boundaries between commercial and adjacent single-family residential areas as indicated on the Downtown Inset General Plan map. The Plan does not envision any expansion of the land area designated for commercial or office use.

Site proximity to the BART terminal should not be used to justify a reduction in the standard requirement(s) for onsite parking, unless a Transportation System Management contract is made with the City.

For commercial and office projects, enhance architectural compatibility in each sector of downtown by establishing design districts that provide guidelines and a review process for site layouts, architectural design, alterations, landscaping, and signs. Sloping roofs are encouraged on new buildings in districts where such features are common. For mixed use and multifamily projects, adopt objective design standards that ensure quality architectural design and treatment and reduction in perceived mass with minimum articulation criteria.

Enact regulations that will ensure appropriately-scaled small-scale low-lying buildings by limiting height to 35 feet (generally not more than two stories) for commercial and office projects with no residential uses and total floor area to a limited percent of lot area and up to 35-45 feet in height for residential and residential/commercial mixed-use projects, as identified in the 6th-cycle Housing Element of the Orinda General Plan and the Downtown Precise Plan.

2.1.3B Downtown: Guiding Policies Retail, Office

2.1.3C Downtown: Guiding Policies Parking, BART

2.1.3D Downtown: Guiding Policies Commercial, Office

2.1.3H Downtown: Guiding Policies Parking, BART

2.1.4A Downtown: Implementing Policies Design

**re-output for higher quality

2.1.4C Downtown: Implementing Policies Design

Enact regulations that will ensure that the central business area will be predominantly retail and residential/commercial mixed-use. and which permit only a limited amount of offices that favor local use needs.

Encourage property owners to make more intensive use of the San Pablo Creek sides of their buildings by planning for a publicly-accessible designating creekside pathway "private street" with public access parallel to the creek and other publicly-accessible pedestrian amenities as shown in the ConnectOrinda Streetscape Master Plan and Downtown Precise Plan that would provide an alternative connection for shoppers who must turn on and off Orinda Way and/ or. Work with community groups, property owners, and grant sources to fund and implement restoration of enhance and preserve San Pablo Creek as contemplated in the Downtown Precise Plan with landscaping, pathways, and other pedestrian amenities, consistent with its primary purpose as flood control

A pedestrian/ bicycle- only path should be provided along the creek easterly of Camino Pablo that is separated from the "private street" proposed for that area where feasible as contemplated in the Downtown Precise Plan.

2.1.4E Downtown: Implementing Policies Retail

2.1.4K Downtown: Implementing Policies Creek

2.2.2J Open Space and Parks: Guiding Policies Creek

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Chapter 2: Existing Conditions

January 31, 2023

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2.1 Setting

Orinda is situated within a group of secluded valleys surrounded by a distinctive backdrop of rolling hills and mature trees. Its unique, semi-rural setting is located approximately 15 miles east of San Francisco, and transitions into the neighboring communities of Moraga and Lafayette, which are located immediately to the south and east, respectively. Collectively, these three jurisdictions make up the tri-area known as Lamorinda. Blanketed by a canopy of trees, the city encompasses approximately 13 miles and is characterized by large residential lots and winding, rural streets. Today, Orinda is home to a population of 19,478 (California Department of Finance, 2022).

Figure 2–1 Regional Setting

City of Orinda Planning Department

Source:

2.1.1 Downtown Orinda

Located at the geographic center of the city, Downtown Orinda is split by California State Route (SR) 24 and the Orinda BART Station. The city’s downtown comprises two distinct districts: the "Village DIstrict” and the “Theatre District.” The Village District makes up the northern portion of Downtown Orinda and encompasses 24.10-acres, while the Theatre District makes up the southern portion of Downtown Orinda and encompasses 13.08-acres. The Village District has a more suburban development pattern within the City’s Downtown Commercial (DC) District and is abutted by the City’s main civic spaces, including the community center, library, and city hall. The Village District also consists of two affordable senior housing projects. A channelized and partially culverted San Pablo Creek, fenced off from public access, flows behind the businesses located in the Village District. In contrast, the Theatre District has a primarily traditional “main-street” look and feel. The Theatre District is anchored by the Orinda Theatre and associated Theatre Square outdoor retail/office complex and parking garage.

The Village District

The Village District is characterized by service and convenience retail, offices, and surface parking along Orinda Way and Camino Sobrante. The city’s only grocery store, Safeway, is located near the intersection of Camino Pablo and Camino Sobrante. The eastern side of Orinda Way contains the city's main public spaces and civic buildings, including Orinda Community Park, Orinda Community Center, Orinda Library, and City Hall. A few churches,

two affordable senior housing projects comprising a total of 217 units (150 in Orinda Senior Village; 67 in Monteverde), and some office buildings can also be found on the eastern side of Orinda Way. The library includes an auditorium used for events and public meetings. A plaza with a small cafe (Cafe Teatro) connects the library to the community center. Collectively, these public spaces are often referred to as the “civic center.”

Between April and November, a portion of Orinda Way in front of the Orinda Community Park is closed each Saturday for the Orinda Farmers Market. Similarly, every Thursday between February and October, the parking lot serving the Orinda Community Center is closed off from the hours of 5:00 p.m. to 8:00 p.m. to host the Thursday night food truck event. The event is operated by Taste of the World Market (TOW) and has been well-received by the community since the pilot program commenced in mid-2017.

The Theatre District (The Crossroads)

The Theatre District is characterized by a mix of entertainment, service, convenience, and office uses. This area generally contains smaller-scale buildings in a traditional downtown setting. This part of downtown is more pedestrian-friendly with sidewalks that make the area more conducive to walking than other parts of Downtown Orinda. The buildings are adjacent to the sidewalk with no setbacks, creating a more interesting downtown experience for the pedestrian. Most notably, the Theatre District is anchored by the mixed-use Theatre Square complex that supports retail, restaurants, and office. Generally, adjacent uses include the Orinda BART Station to the west, office and single-family residential to the north and east, and a multifamily residential complex to the south. In addition to the 1941 Orinda Theatre, the Theatre District is also home to Casa Orinda, Contra Costa County’s oldest continuously-operating restaurant, which has been in business since 1932.

The Theatre District (aka “The Crossroads”) generally contains smaller-scale buildings in a traditional downtown setting. The area has a more pedestrianfriendly environment with sidewalks that make the area more conducive to walking than other parts of Downtown Orinda. The buildings are adjacent to the sidewalk with no setbacks, creating a more interesting downtown experience for the pedestrian. Theatre Square and the iconic Orinda Theatre serve as the core to “The Crossroads” area of downtown. Image Source: cityoforinda.org

Figure 2–2 The Village & Theatre Districts – Major/Key Features

Source: City of Orinda Planning Department

2.2 Community Profile & Economy

2.2.1 Population characteristics

As of 2019, Orinda has a population of 19,078, an increase of 8.1-percent since 2010 (2019 American Community Survey). The 2019 median age in Orinda is 48.7, significantly higher than the median age of California (36.3) or the San Jose-San Francisco-Oakland region (38.1). Orinda’s age distribution skews toward an aging population, with a 25% increase in population of residents aged 65 or older from 2010 to 2019. Notable, however, is an influx among residents aged 15-34, which has experienced a 33% increase in population over the same period, suggesting a trend of younger couples or professionals choosing to settle in Orinda. The racial composition of the community is 72.0-percent white, 16.4-percent Asian, 5.3-percent Hispanic or Latinx, 1.2-percent black or African American, and 5.2-percent “other.” 16.8-percent of the population is foreign-born.

Orinda’s racial and ethnic diversity increased moderately between 2010 and 2019. However, the racial and ethnic composition of the city, as documented by the 2015-2019 ACS, differs significantly from that of the county and the Bay Area. About 72.0 percent of Orinda residents were white, contrasted with 39.3 percent and 43.8 percent for the Bay Area and county, respectively.

The Census Bureau defines Hispanic/ Latinx ethnicity separate from racial categories. For the purposes of this graph, the “Hispanic or Latinx” racial/ethnic group represents those who identify as having Hispanic/Latinx ethnicity and may also be members of any racial group. All other racial categories on this graph represent those who identify with that racial category and do not identify with Hispanic/Latinx ethnicity.

Orinda’s population is distributed among 7,167 households (Association of Bay Area Governments Housing Element Data Package, 2021). Seventy-three percent of households are headed by a married couple, 4.7-percent by a “female head alone,” and 1,4-percent by a “male head alone (ACS 5-Year Data [2015-2019]).”

2.2.2 Housing characteristics

Orinda contains 7,194 housing units, of which 90.1-percent are owner-occupied. According to ACS data, the 2020 owneroccupied median home value in Orinda was $1.5+ million (with 38-percent valued at over $2 million) and the median gross rent was $2,371. The ACS data also indicates that 4.5-percent of homes in Orinda are vacant as compared with a 6-percent vacancy in the region. The average number of rooms per house in Orinda is 7.4 as compared to 5.1 for the region. Fifty-one percent of the housing units in Orinda were constructed before 1960, 29.1-percent were constructed between 1960 and 1979, 12.4—percent were constructed between 1980 and 1999, and 7.5-percent have been constructed since 2000. Ninety-five percent of Orinda’s housing consists of single-family homes.

The city’s multi-family units are located downtown and comprise the two low-income senior projects at 2 Irwin Way (Monteverde Senior Apartments) and 20 Irwin Way (Orinda Senior Village) as well as a condominium complex (73 Brookwood Road) near the Theatre District. The Vista Verde Senior Housing project at 10 Irwin Way, approved by City Council on August 16, 2022, is projected to begin construction in 2023.

Table 2–A Housing Units in Downtown Orinda

Source: City of Orinda Planning Department

The Monteverde Senior Apartments project has received acclaim for its design, which responds to the terrain and the community’s aesthetic.

*Approved by City Council on August 16, 2022 with projected construction beginning in 2023.

2.2.3 Income & education characteristics

At $223,217, the median household income in Orinda is not only among the highest in the Bay, but in the nation. Orindans between 25 and 64 have a median income of $250,000, whereas those 65 and older have a median income of $112,222. Twentythree percent of Orinda’s households report self-employed income.

Levels of education attainment in Orinda are also among the highest in the Bay Area, with 83-percent of those over 25 years of age having earned a bachelor’s degree or higher (as compared to 44-percent for the region). Of those with higher education, 28-percent have master’s degrees, 14-percent have professional (e.g., law

or medicine school) school degrees, and 7-percent have doctorate degrees. Over 90-percent of Orinda children in grades K-12 are enrolled in public schools and 97-percent are enrolled in private schools at the preschool level.

Over 90% of Orinda children in grades K-12 are enrolled in public schools.

Image source: https://www.gen7schools.com/

2.2.4 Jobs in Orinda

Fifty-nine percent of Orindans participate in the labor force (meaning they either work or are looking for work). From 2015 to 2019 the unemployment rate in Orinda remained low at approximately 2-percent. In 2020, unemployment spiked to 5.6-percent, which is largely attributed to the COVID-19 pandemic, though this had fallen to 3-percent by 2021. To travel

to their place of employment, 59-percent of Orindans drive, 22-percent take public transportation, 1-percent bike or walk, and 17-percent work from home. Overall, nearly a fifth of the workers work and live in Orinda. The average commute time for all workers is 36 minutes.

approximately 5,622 people work at businesses and organizations within Orinda. The largest employer in Orinda is the Orinda Union School District. Major employers within the study area include the city government, Safeway, BevMo!, and larger firms occupying office space in locations such as the Pine Grove Center at 4 Orinda Way.

According to Metropolitan Transportation Commission (MTC) 2015 data,

Figure 2–3 Jobs in Orinda

Source: Transportation Analysis Zone 2015 data (MTC)

2.3 Project Area

2.3.1 Population characteristics

The 146.3-acre Project Area for the Downtown Precise Plan (DPP) does not include the Orinda BART station, which is anticipated to be analyzed as part of a future planning effort. The City’s General Plan (1987) includes the following land-use classifications for downtown.

1. Business and Professional Offices;

2. Community Business;

3. Public and Semi-Public; and

4. Residential: Multi-family.

The focus of the DPP is the Business and Professional Offices and Community Business land-use classifications, which correspond to the Downtown Office (DO) and Downtown Commercial (DC) Zoning Districts, respectively. Together, the parcels within the DPP’s focus area comprise a total of approximately 50 acres.

Orinda’s Downtown Precise Plan focuses on 77 parcels, which total approximately 50 acres.

Image Source: ESRI; City of Orinda Planning Department

Figure 2–4 Project area

Source: City of Orinda Planning Department

Figure 2–5 General Plan Land-Use Classifications

Source: City of Orinda Planning Department

Figure 2–6 Zoning Districts

Source: City of Orinda Planning Department

2.3.2 Ownership & vacancy

Many of the properties in downtown have been owned by the same families for generations. In some cases, the resulting trusts controlled by multiple family members may complicate or even suppress any interest to activate change. As seen in the Project Area figure, the parcel sizes and shapes vary considerably. The average lot size of the downtown is 0.65 acres, or approximately 28,000 square feet, with 63 parcels each less than one acre, indicating significant spatial constraints that may also pose a challenge for market-based zoning.

Vacant buildings and parcels not currently in development

10 & 20 Avenida de Orinda. The Avenida de Orinda contains the only fully vacant building and vacant lot in downtown, located at 10 and 20 Avenida de Orinda, respectively. Formerly the Phair’s department store, the vacant structure is approximately 14,850 square feet in size and has not been in use for more than two decades. This building and parcel is not currently within a project pipeline, although it has been subject to community concern for its disuse and neglect since the store ceased operations. The Phair’s parking lot, located at 10A Avenida de Orinda, sits on the opposite side of Avenida de Orinda and is still in use. This separate legal parcel is currently under the same ownership as the parcel housing the Phair’s structure.

Vacant buildings and parcels in the development pipeline

25A Orinda Way. An early iteration of a mixed-use project was approved in 2016, with a new submission received by the City in 2020. A final iteration of an 18,287 square-foot, mixed-use building was approved by the Planning Commission on June 14, 2022. The project will include 1,200 square feet of ground-floor retail, a 2,800 square foot fitness facility, a 2,555 square foot market hall with individual food stalls, and a ground floor exterior plaza. A mezzanine level and second floor would have 9,560 square feet of office uses.

31 Orinda Way. The former Bank of America was vacated during 2020 and purchased in 2022 by local developers. An application is currently under review for a mixed-use building incorporating more than 4,000 square feet of ground-floor restaurants, as well as a second story addition with more than 4,000 square feet of office uses. This project proposes to house multiple restaurant tenants with some shared areas, including a rear deck with outdoor dining and bar areas facing the San Pablo Creek.

On January 11, 1994, the Orinda City Council designated the Phair’s building as an historic landmarks. Today, the building has been vacant for more than two decades.

Image Source: https://mhsmirador.com

Figure 2–7 Vacant Parcels

Source: City of Orinda Planning Department

2.3.3 Major land uses: Commercial

As of January 27, 2020, approximately 314,723 square feet of ground-floor commercial space has been identified in downtown. Including the vacant Phair’s building, this ground-floor commercial space had a vacancy of approximately 11-percent. Rent for ground-floor commercial space varies between $1.50

per square foot for older properties to approximately $4.00 per square foot for spaces in Theatre Square. Figure 2–8 notes the different use categories along with their total square footage. Additionally, Figure 2–9 details the different use categories currently serving both the Theatre District and the Village District.

Note: This

does

Figure 2–8 Downtown Orinda – Commercial uses (and vacancy) and their share of ground-floor retail space.

chart

not include vacant parcels within (10a and 20 Avenida De Orinda; 25A Orinda Way) the DPP Project Area. Source: Bruce Burrows; City of Orinda Planning Department

Figure 2–9 The Village & Theatre Districts – Commercial Uses Square Footage

Source: Bruce Burrows; City of Orinda Planning Department

2.3.4 Competitive commercial markets

This section examines nearby commercial areas with respect to size, type, age, condition, access, tenant mix, and level of activity.

Lafayette

Of the three cities that comprise the Lamorinda community, Lafayette has, by far, the liveliest and most robust downtown commercial core. Downtown Lafayette primarily stretches along a single road, Mount Diablo Boulevard, and benefits from its centralized, accessible location within the Lamorinda region. Most of Orinda is within five miles and less than 10 minutes by car or transit of downtown Lafayette. The downtown includes a mixture of local and chain retail and restaurant options. Chain operations include Whole Foods, Trader Joe’s, and Chipotle, whose market area typically exceeds that of a city the size of Lafayette. The presence of these larger chain businesses suggests a regional draw (particularly within the Lamorinda area) and any additional location in the area would detract from the existing establishments in Lafayette. Though many Orindans have expressed an interest in attracting these types of businesses for supporting daily needs in Downtown Orinda, it is unlikely that they would select Orinda for a new location given the short distance between the two downtowns.

Moraga

The Town of Moraga’s downtown core is similar to Orinda’s Downtown. Like Orinda, Moraga’s downtown is divided into two geographically distinct focal points: 1) The Moraga Center and 2) The Moraga Commons. The Moraga Center resembles the Orinda Village area as a post-war pattern of shopping center development, featuring approximately 220,00 square feet of retail dominated by Safeway, and approximately 200,000 square feet of office space. The Moraga Commons is located approximately one mile to the northeast and, like Orinda’s Theatre District, features streetscape-fronted retail anchored by a pre-war, single-screen theatre. The Moraga Commons, however, is largely organized along a single side of the street, with the opposite side largely composed of surface parking.

As with those residents of Orinda who live close to Lafayette’s downtown, some residents of Orinda live closer to downtown Moraga than to Orinda’s own downtown. Like Orinda, Moraga has identified retail leakage as an issue and the Moraga Center Specific Plan (2006) notes that 75-percent of the taxable purchases made by Moraga residents were out of town. Given these factors, and the similar makeup of primarily locally-serving businesses, Moraga can be viewed as a peer competitor with Orinda for both attracting new businesses and drawing Orinda residents to shop and dine.

Rockridge (Oakland Neighborhood)

Located approximately 3 miles west and within a 15-minute drive of most of Orinda, the Rockridge neighborhood in the City of Oakland contains a thriving community business district. Like Lafayette, the commercial heart of Rockridge is centered along one main thoroughfare, College Avenue. Rockridge features more than 80 restaurants, cafes, and retail stores, most of them boutique and locally-serving. The Rockridge Market Hall, which features multiple small gourmet market shops, is a particularly popular food marketplace for many Orinda residents and was frequently cited in resident surveys as the type of business Orinda residents would like to see in Downtown Orinda. There are relatively few chain-type retail or restaurant establishments in Rockridge. Because Rockridge is located so close to Orinda and features a high concentration of well-regarded local establishments, it serves as a draw for many Orindans seeking dining and shopping options.

Walnut Creek

Walnut Creek’s primary downtown commercial center is located near the junction of Highway 24/I-680, about seven miles due east of Orinda. Unlike the Lamorinda and Rockridge downtown centers, Walnut Creek is a regional-sized commercial destination that features large-scale national chain stores in addition to locally-serving retail establishments and restaurants. Its downtown center features Broadway Plaza, an upscale regional mall with approximately 776,000 square feet of retail floor area, including such national retail chains as Nordstrom, Macy’s, and Neiman Marcus, as well as national restaurant chains like PF Changs. The downtown also features large national chain retail and restaurant options, including Target and The Cheesecake Factory, as well as a high concentration of auto dealerships. The downtown also features an 18-screen Cinemark theatre chain, which represents the only large multiscreen cinema offering in the region. Because Walnut Creek’s downtown is of a much larger scale, it is not necessarily a direct peer competitive market to Downtown Orinda. Its diverse mixture of commercial businesses does, however, result in a high frequency of visits from Orinda residents who feel they lack options within Downtown Orinda.

2.3.5 Major land uses: Office

The City’s data on office uses was last updated circa 2016 and therefore may not reflect the most current conditions. Since 2016, however, there have been few material changes to office use conditions. Orinda’s office market is limited in size and scope. Located primarily in the Downtown Office (DO) zoning district, office uses are concentrated along Santa Maria Way and Altarinda Road in the Village District, and along Moraga Way, Vashell Way, and Davis Road in the Theatre District. The prominent Theatre Square complex in the Crossroads features second-floor office uses on top of the ground-floor retail and restaurant uses. The office uses are primarily locally-serving and are primarily concentrated in the medical and dental professions, as well as tax and accounting services, real estate and brokerage firms, and other related business services. Generally, office spaces are located within 0.5-mile of the Orinda BART Station, making them readily accessible for both auto and transit commuters.

Architecturally, the office buildings in downtown reflect the “semi-rural” characteristics of the city and are generally two and three-stories in height. A few downtown properties feature secondfloor office spaces located over groundfloor retail spaces. In these instances, the square footage of the office spaces has not been verified. Smaller office buildings are accompanied by at-grade parking in most locations, while some larger office buildings have attached parking structures.

In addition to office uses in the DO District, there are numerous office uses and

locations within the DC District. Based on the most recent data (2016), there is 172,663 square feet of office space within the DC district, all of it either designated Class B or C space. The office uses are sometimes located in two-story, mixed-use buildings, where retail uses are located on the ground floor, and office uses are located on the second floor. Approximately 41,100 square feet of second-floor office use is located in Theatre Square. Additionally, the most recent iteration for the project at 25A Orinda Way (located in the Village District) proposes 9,675 square feet of Class B/B+ office uses on the second floor to complement the 9,675 square feet of retail and restaurant uses proposed on the ground floor. The project also proposes a 4,800 square-foot mezzanine space that would serve as flex office or retail.

Office spaces in Orinda tend to be kept mostly up-to-date and in good condition. This is primarily a function of typically high occupancy, whereby current owners and tenants maintain the property in optimum condition. Some tenant-improvement projects have taken place in the last few years. For instance, office buildings on Brookwood Road and Altarinda Road have been improved to reflect tenant changes

that include mostly medical-related office uses. The office buildings themselves are an attractive mixture of Spanish, ranch, and contemporary architectural designs, though some incorporate mid-century elements, including flat roofs and a mixture of wood and stucco finishes. Their low building heights and limited density is currently in scale with adjacent downtown retail uses.

Given the limited size of both the DO and DC zoning districts, and the fact that most of the current office space within these districts is occupied, there is little room for substantial office growth in the Project Area under current conditions. This limited potential is further impacted by the City’s existing downtown development standards, which limits building heights to 35 feet and requires substantial off-street parking. Additionally, irregular lot configurations and natural features (i.e., San Pablo Creek), and easements (i.e., PG&E transmission lines) leave little room for physical growth. Additionally, the City’s land-use policies, discussed later in this report, strongly favor retail, restaurant, and related commercial uses (“Class A” uses) as opposed to office uses (“Class B” and “Class C”) in the DC District.

What are Office Building Classes? Office

buildings are classified according to their quality of construction, their age, and the amenities they provide a workforce, though this classification can be somewhat subjective depending upon the private firm performing the classification and the standards of local markets.

Class A office buildings are typically newer or newly-renovated steel-frame-constructed buildings with steel pan/concrete flooring. Class A spaces provide a myriad of modern amenities for the workforce and visitors, including fitness centers, leisure areas, dining options, daycare, valet/concierge services, and security services.

Class B office buildings include codecompliant buildings with newer generation office improvements (Class B+) as well as buildings that may not have completed building code-compliant upgrades and/or have older generation office finishes (Class B-). This class tends to have some amenities, albeit less robust than Class A office buildings.

Class C office buildings are residential-tooffice conversions or older, outdated, or under-maintained office buildings. These tend to contain few amenities that may include parking or break rooms, and are typically more affordable for small, independent businesses.

2.4 Adopted Policies, Regulations, & Plans

Both the existing Orinda General Plan and the existing Orinda Zoning Ordinance support mixed-use development in downtown. Mixed use (upper-floor residential over ground-floor retail or office uses) is explicitly allowed by the Zoning Ordinance in the DC District. The DPP will continue the planning efforts for downtown to determine the type, extent, and density of housing that would be appropriate in the Project Area. Concurrently, the DPP will also explore the types of zoning standards that could facilitate such development.

Orinda City Council concerning longrange development policies.

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

3. To allow other public agencies and private developers to design projects that are consistent with City policies.

Orinda’s General Plan consists of statemandated elements organized into four sections:

1. Land Use and Circulation (includes Land Use, Circulation, Open Space, Parks, Schools, and Utilities elements);

2. Housing;

2.4.1 General Plan

Orinda’s General Plan: 1987-2007 is the first general plan to have been developed within the community of Orinda after its incorporation in 1985. The General Plan was adopted to give local citizens primary control over land-use planning and community development to preserve Orinda’s semi-rural character. The General Plan contains policies and objectives that serve as the foundation for regulations that govern Orinda’s development. These development regulations are implemented through the Orinda Municipal Code (OMC).

Orinda’s General Plan has three primary functions:

1. To document agreement between the Orinda Planning Commission and the

3. Environmental Resources Management; and

4. Conservation, Safety, and Noise.

As the consensus “blueprint” for future development in Orinda, the General Plan was intended to cover the 20-year period from 1987-2007. Since its adoption in 1987, Orinda’s General Plan has undergone minor revisions and the state-required updates to the Housing Element. While the spirit and intent of the General Plan may continue to resonate with the community, some of its policies may not fully reflect and respond to today’s needs.

2.4.2 Land-Use Element

As noted earlier, the focus of the DPP will be the Business and Professional Offices and Community Business land-use classifications. The General Plan states that development in the Business and Professional Office land-use designation should take on the “village character” and provide “office suites suitable for office uses supporting local community residents and business, rather than regional offices.” Similarly, the General Plan states that retail stores and services in the Community Business land-use designation should primarily be locally-serving.

2.4.3 Safety Element

California requires that all local governments update their Safety Element in conjunction with a Housing Element update in order to address the risk of fire for land classified within the Very High Fire Hazard Severity zones. THe current Safety Element was adopted in January 2023 alongside the 6th Cycle Housing Element.

2.4.4 Housing Element

Beginning 1969, California requires that all local governments adequately plan to meet the housing needs of everyone in the community. California Government Code Section 65580 declares that the availability of housing is of vital statewide importance. The code acknowledges that cooperation is required across all levels of government to adequately address housing needs. To accomplish the appropriate provision of housing, local governments must adopt plans and regulatory systems that provide opportunities for housing development, considering economic, environmental, and fiscal factors.

Orinda, like other local jurisdictions, is required to update its Housing Element every eight years to move towards meeting the state’s total and affordable housing goals. The Housing Element includes goals, policies and programs to direct decisionmaking around housing. The current 6th Cycle Housing Element plans for the period of 2023 to 2031 and was adopted by the City COuncil on January 31, 2023.

RHNA. One vital driving force behind the Housing Element is the need to meet or exceed the Regional Housing Needs Allocation (RHNA). For the Bay Area, including Orinda, the RHNA is allocated

by the California Department of Housing and Community Development via the Association of Bay Area Governments (ABAG). ABAG allocates housing production goals for cities and counties based on their projected share of the region’s household growth, the state of the local housing market and vacancies, the jurisdiction’s housing replacement needs, among other criteria.

The RHNA is a minimum projection of additional housing units needed to accommodate projected household growth of all income levels by the end of the housing element’s statutory planning period. For the 6th Cycle Housing Element, Orinda is required to plan for 1,359 units during the 2023-2031 planning period at certain densities, 587 units of which must be affordable to lower-income (extremely low, very low-, and low-income) households, 215 must be affordable to moderate-income households, and 557 for above-moderate income households. To meet these needs, the City, through the DPP, will require increased residential densities in the Downtown Commercial and Downtown Office zoning districts to accommodate 342 units.

2.4.5 Downtown Policies

Orinda’s City Council has set the future of Downtown Orinda as a high priority. As such, the community will have an opportunity, through the DPP process, to revisit the existing General Plan policies in the interest of updating the downtown development standards. Furthermore, as a small, mature, “semi-rural” community straddling a major transportation corridor, it is likely that Orinda will need to respond to the State’s pressure for change.

Table 2–B highlights some of the more pertinent existing downtown policies, some of which may be implemented or furthered through the DPP, and others which may warrant amendment or replacement in conjunction with adoption of the DPP. The Housing Element policies can only be changed in conjunction with the next cycle Housing Element (i.e., in 2023.). Please refer to this report’s appendices for a more thorough list of the existing General Plan policies pertaining to Downtown.

Table 2–B Existing General Plan Policies (Select) Source: City of Orinda General Plan (1987-2007)

- D

In downtown Orinda, new commercial development shall be limited to providing goods and services for local use and other small specialty retail stores.

In downtown Orinda, new office development shall be limited to offices generally supporting local residents and businesses.

2.1.1 - I Consideration should be given to the adoption of a density transfer ordinance.

A

Enhance the "village character" of downtown. Large, highly visible parking lots characteristic of strip shopping centers are inconsistent with village character.

- B

Favor retail services needed frequently by residents by limiting the amount of office space in predominantly retail areas. Office space in retail areas should serve Lamorinda uses and generally not exceed retail space on any one lot.

Maintain current boundaries between commercial and residential areas as indicated on the Downtown Inset General Plan map. The Plan does not envision any expansion of the land area designated for commercial or office use.

Businesses that generate heavy traffic such as financial institutions should front arterial streets. Small buildings should buffer adjoining residential areas.

- H

Site proximity to the BART terminal should not be used to justify a reduction in the standard requirement(s) for onsite parking, unless a Transportation System Management contract is made with the City.

- A

- C

Enhance architectural compatibility in each sector of downtown by establishing design districts that provide guidelines and a review process for site layouts, architectural design, alterations, landscaping, and signs. Sloping roofs are encouraged on new buildings in districts where such features are common.

Enact regulations that will ensure small-scale low-lying buildings by limiting height to 35 feet (generally not more than two stories) and total floor area to a limited percent of lot area.

Enact regulations that will ensure retail or specified service occupancy of space within the retail shopping area now occupied by those uses, by all new ground-floor space, and by all office uses which convert to retail.

2.1.4 - E

Enact regulations that will ensure that the central business area will be predominantly retail and which permit only a limited amount of offices that favor local use needs.

Public parking structures are a permitted land use in the downtown provided that they are adequately screened from public view.

In cooperation with the merchants and property owners, develop a plan for Orinda Way that will consolidate driveways, include a landscaped street median if feasible, and enrich the street's landscape character.

Encourage property owners to make more intensive use of the San Pablo Creek sides of their buildings by designating a "private street" with public access parallel to the creek that would provide an alternative connection for shoppers who must turn on and off Orinda Way and/or enhance and preserve San Pablo Creek with landscaping, pathways, and other pedestrian amenities, consistent with its primary purpose as flood control.

Land Use & Circulation

Implementing

2.1.4 - P Pursue formation of a parking assessment district.

Retain creek and wildlife access corridors as open space for preservation of natural resources, consistent with flood control. Land

&

- D

Guiding Policies 2.3.1 - A Permit new development only when adequate transportation systems and parking are provided.

Implementing

2.3.2 - S

Where structures are permitted, they shall be designed to blend with and permit the natural environment to be maintained as the dominant visual element.

Work with PG&E to prepare and implement a long-term program for reducing the impact of power transmission towers and distribution poles on Orinda's landscape. Housing New Housing Production

Use & Circulation Utilities: Guiding Policies 2.2.4 - A

1.2 - Design Quality

Apply high standards of quality and design to all housing development in the city. Where multifamily or mixed-use housing is constructed, it should respect the context of the site and its surroundings and make a positive contribution to the character of Orinda.

Housing Downtown Action 3.A Study the feasibility of mixed-use development at appropriate densities. Housing Housing Opportunity Sites

3.3 - Mixed-Income Housing Encourage large scale residential developments to include a mix of unit types, including smaller units and units that are affordable to lower and moderate-income households.

Housing Housing Opportunity Sites

Housing Housing Constraints

Environmental Resources

3.4 - Downtown Residential Use

Continue to allow multi-family residential uses above the ground floor within Orinda's Downtown Commercial zoning district

Safety Element: Implementing Policies

Housing Housing Constraints

Housing Fair Housing

Environmental Resources

Conservation Element: Guiding Policies

4.1 - Development Standards

4.2.2 - E

Ensure that the development standards expressed in the City’s zoning regulations support the types of uses and activities listed as permitted or conditionally permitted in the Zoning Ordinance, including housing.

Land development shall be consistent with the natural carrying capacity of nearby creeks, streams, and other waterways.

4.4 - Development Flexibility Consider flexibility in development standards, such as reduced parking requirements for senior housing, in order to accommodate additional affordable units and reduce housing costs.

5.1 - Equal Housing Opportunity Continue to promote equal housing opportunity for all Orinda residents and others seeking housing in the city, regardless of race, religion, marital/family status, ethnic background, or other arbitrary factors.

4.1.1 - N Encourage the undergrounding of power lines and replacement of utility towers with single poles.

Environmental Resources

Conservation Element: Implementing Policies 4.1.2 - E

Preserve drainage easements along creeks in order to protect adjacent buildings from flooding and to preserve valuable riparian vegetation. Where riparian vegetation has to be disturbed for construction, re-vegetation with local riparian species is required. The City shall develop design policies for development near creeks.

Environmental Resources Safety Element: Guiding Policies 4.2.1 - C Development shall be located away from flood-prone areas unless flood risks can be mitigated.

Growth Management

Implementation Policies and Program for Capital Projects 5.4.3 - D

All new development projects shall contribute to or participate in the improvement of the parks, fire, police, sanitary, water, and flood control systems in proportion to the demand generated by project occupants and uses as determined by the City.

2.4.6 Zoning regulations Intent

The City’s zoning regulations, Orinda Municipal Code (OMC) Title 17, were adopted in 1999 with miscellaneous amendments approved since that time. Downtown is covered by OMC Chapter 17.8, which includes the following statement of intent:

A. Create every opportunity for the downtown area to function as a vital, thriving yet traditional Main Street area, serving local needs and providing for specialty retail activities, consistent with the general plan;

B. Create a vibrant community center by encouraging a variety of businesses which will create pedestrian interaction and pedestrian-scale activities. Emphasize uses which involve pedestrian spaces, including outdoor dining, garden settings, walkways and seating areas;

C. Encourage areas of distinctive character by identifying preferred uses and development standards unique to these locations;

D. Regulate development so as to achieve a vibrant community center over time. All development, including incremental development, small building additions or increases in intensity of existing land uses, shall be consistent with this goal;

E. Establish incentives, such as additional building height, higher floor area or broader range of permitted uses to help achieve a vibrant community center;

F. Discourage and eventually terminate nonconforming office uses in retail spaces;

G. Establish development standards which define desired character, but which allow and encourage flexibility in how this character is to be achieved, including standards involving building heights, setbacks, site planning, building bulk/mass, landscaping, parking, lighting and architecture, as presented in the downtown design guidelines;

H. Protect adjoining residential areas from inappropriate or disruptive commercial or office activities;

I. Encourage parking solutions which will serve long-term needs and will minimize the adverse effects of parking, traffic and circulation on the function and viability of downtown;

J. Encourage activities and development which will showcase the creek, where possible, for low-intensity pedestrian-oriented activities and strolling;

K. Provide for multifamily housing, including affordable housing, in downtown areas, consistent with the housing element of the general plan.

Downtown Commercial (DC) District

The DC District is adjacent to the DO, PS (Public, Semi-Public, and Utility), PR (Parks and Recreation), RM (Residential Multifamily), and RL-20 (Residential Low-Density—20,000 square feet) districts. For context, please see Figure 2–6 on page 31.

The DC District corresponds to the Downtown - Community Business land-use. Per the General Plan, this classification “includes retail stores and services needed frequently by residents, a very limited amount of personal service offices, and small specialty retail stores. Retail services are defined as businesses primarily serving the local needs. Types of establishments to be permitted are to be determined by ordinance.”

Source: Orinda General Plan (1987 – 2007) [Chapter 2: Land Use and Circulation]

DC Uses

Retail- and office-uses are allowed by right in the DC District. Temporary uses are allowed with a Temporary-Use Permit as detailed in OMC Chapter 17.37. Government offices and facilities are allowed with a Use Permit as detailed in OMC Chapter 17.31. Multi-family dwellings are also allowed with a Use Permit, provided that the dwellings are built at a density that does not exceed 10 units per acre and are part of a mixeduse development. All other uses are

prohibited. Additionally, excluding tenant improvements, any new construction, additions, and replacement construction in the DC district require a Use Permit to assure compliance with the intent of OMC §17.8.1.

Table 2–C summarizes the three general classes of non-residential uses in the DC District where those uses are permitted by right, permitted only with a discretionary Use Permit, or prohibited. Generally, OMC §17.8.5 encourages retail and restaurants on the ground floor throughout downtown

and encourages service uses to be located in secondary areas (i.e., areas that do not have frontage on primary retail corridors), and requires most office uses to be located above the ground floor. Medical and realestate offices are allowed on the ground floor in secondary areas with a Use Permit. For more information on specific uses and use restrictions, please see OMC §17.8.5 (G) and §17.8.5 (H).

Per OMC §17.8.4., multi-family dwellings are allowed in the DC District with a Use Permit, provided that the dwellings are built at a density that does not exceed 10 units per acre and are part of a mixed-use development

Image source: City of Orinda Planning Department

Table 2–C Existing DC Uses and Permit Requirements

Source: OMC Title 17

Use Class Description

Retail sales and restaurants, restaurants with take-out, and restaurants with outdoor dining.

Space Utilization & Permit Requirements

Type 1 (Ground-Floor Retail): Permitted

Class A

Take-out restaurants and outdoor dining are subject to additional regulations set forth in OMC §17.8.5(I).

Type 2 (Secondary Ground Floor): Permitted

Type 3 (Non-Ground Floor Retail): Permitted

Class B

Personal care, personal development services (excluding health care), and business and automotive services, including service stations, if the use will tend to create substantial pedestrian interaction with surrounding businesses (including but not limited to beauty parlor, barber shop, fitness center, dry cleaners, travel agency, dance, music and martial arts studio) and retail financial institutions such as banks, savings and loans, credit unions and free-standing automatic teller machines.

Type 1 (Ground-Floor Retail): Use Permit Required

Type 2 (Secondary Ground Floor): Permitted

Type 3 (Non-Ground Floor Retail): Permitted

Class C Office uses compatible with a village atmosphere such as medical and professional offices, real estate sales and financing.

Type 2 (Secondary Ground Floor): Use Permit Required

Type 3 (Non-Ground Floor Retail): By R ight

Figure 2–10 The Village & Theatre Districts – Type 1 and 2 Spaces

Source: OMC Title 17; City of Orinda Planning Department

DC Standards

The following table specifies the development standards prescribed for properties in the DC District.

Table 2–D Existing DC Development Standards Source: OMC §17.8.6

Downtown Office (DO) District

Like the DC District, the DO District is adjacent to the PS, RM, and RL-20 Districts. Additionally, the northwestern boundary of the DO District boundary abuts Orindawoods, which is a PD (Planned Development) District consisting of townhomes. The specific purpose of the DO District is to provide sites for professional uses that offer services primarily to the needs of Orinda residents and visitors and for businesses at appropriate locations, consistent with the general plan and subject to development standards that ensure consistency with adjoining land uses.

The DO District corresponds to the Downtown – Business and Professional Offices land-use classification, and according to the General Plan, “type of offices to be permitted at specific zones are to be determined by ordinance.”

Source: Orinda General Plan (1987 – 2007) [Chapter 2: Land Use and Circulation]

DO Uses

Offices for all forms of business, for the services of licensed professionals, and for government uses and facilities are permitted in the DO district by right. Limited manufacturing is permitted as an ancillary use in medical and dental practices. Temporary uses are allowed with a Temporary-Use Permit as detailed in OMC Chapter 17.37. Clubs and other private associations, educational facilities, residential congregate care for elders, convalescent facilities, and day care facilities are subject to a Use Permit as detailed in OMC Chapter 17.31. Commercial marijuana land uses and outdoor cultivation of marijuana are a prohibited use in the downtown office district.

DO Standards

The following table specifies the development standards prescribed for properties in the DO District.

Table 2–E Existing DO Development Standards Source: OMC §17.8.9

Signage

Commercial signage in the downtown area is regulated by OMC Chapter 17.8 (Signs). The Downtown Design Guidelines, which are described later in this report, also offer design guidance on signage type and installation. Per OMC §17.18.2, the objectives of the sign code are as follows:

A. Reduce traffic and safety hazards through proper location and design of signs;

B. Conveniently direct persons to various activities and enterprises in the City;

C. Prevent uncontrolled sign competition which is costly to business and visually unattractive to the community;

D. Enhance the appearance and economic value of the community by regulating the quantity, size, type, location, design and maintenance of signs;

E. Encourage signs that are compatible with adjacent land uses and that preserve the semirural character of the City;

F. Encourage high-quality design with a minimum of clutter;

G. Encourage signs that are well designed and pleasing in appearance; and

H. Provide a reasonable and constitutional system of sign control.

While the sign code is fairly complex, some key metrics are:

A. A Type 2 sign permit is a master sign program for a multi-tenant building, and for certain single-tenant buildings.

B. A Type 1 sign permit is required for a sign that conforms with a previously-approved master sign program, and for certain single-tenant buildings.

C. A Type 1 sign permit is ministerial and must be granted within 10 days of application, whereas a Type 2 requires a discretionary approval.

D. Freestanding signs may not exceed a height of 6 feet and an area of 20 square feet in area.

E. Wall signs may not exceed 6-inches in thickness. The maximum area for ground floor wall signs may not exceed 0.5 square feet for each linear foot of building frontage except on a secondary frontage, where the maximum is 0.25 square feet per linear foot of frontage. Above the first floor, every 1 square foot of signage is counted as 1.5 square feet of the total permitted sign area.

F. One projecting sign is allowed per tenant or occupant, with a maximum of 5 square feet, 3-foot height limit, 4-inch thickness, and a projection of no more than 3.5 feet from the building face.

Image

Downtown Design Guidelines

The City’s Downtown Design Guidelines (DDG) were adopted in 1990 and incorporate general recommendations for both architecture and, to a lesser degree, streetscape and signage, with specific recommendations for 11 different “districts” throughout downtown. The purpose of the DDG is to “assist property owners, developers, and designers in creating projects which are consistent with a character the community wants to preserve and perpetuate.”

An excerpt from the City of Orinda Downtown Design Guidelines.

source: Downtown Design Guidelines (1990)

2.4.7 Fire safety

In 2009, the California Department of Forestry and Fire Protection (CAL FIRE) designated the Contra Costa County lands (unincorporated area) east of the Project Area and city limits as a Very High Fire Hazard Severity Zone (VHFHSZ). Also, in 2009, via Ordinance 2009-01, the MoragaOrinda Fire District (MOFD) designated the area just east of the Village District, between Camino Pablo and the city limits as a VHFHSZ. MOFD’s designation also included portion of the Orinda BART Station. On June 17, 2020, MOFD adopted Ordinance 20-02, which designated most of Orinda, including a significant portion of the Project Area, as a Wildland-Urban

Interface Fire Area (WUI). Neither the VHFHSZ nor WUI designations prohibit development; however, both designations trigger heightened fire-resistant building code standards for new structures.

The primary evacuation route for any fire near or in Orinda is Highway 24. As such, Camino Pablo, Moraga Way, and Highway 24 onramps within the Project Area serve as fundamental components of any evacuation. According to the MoragaOrinda Fire District (MOFD), Camino Pablo to State Route (SR) 24 is the primary wildfire evacuation route through Downtown Orinda. In the event of an evacuation, all

lanes of Camino Pablo north of SR 24 would be unidirectional in a southerly direction and all lanes of Camino Pablo south of SR 24 would be unidirectional in a northerly direction.

More information on fire safety in Orinda may be found in the 2023 Safety Element of the General Plan, Figure 2–11 shows the wildfire evacuation route as well as the VHFHSZ and WUI designations in relation to the Project Area.

Image source: https://www.mofd.org/

Figure 2–11 shows the wildfire evacuation route as well as the VHFHSZ and WUI designations in relation to the Project Area.

Wildfire protection and disaster preparedness is a leading priority for the community.

Figure 2–11 Wildfire Evacuation Route and Fire Hazard Severity Zones

Source: MOFD; CAL FIRE

2.4.8 Streetscape plans

Over the course of its history, the City has embarked on a few planning efforts to improve Orinda’s downtown streetscape, including the 2000 Orinda Way Streetscape Master Plan and the 1998 Crossroads Beautification Plan. A portion of the Orinda Way plan was completed in 2001, with the help of grant funds, as part of the “Heart of Orinda” project. In addition to these streetscape plans, in 2011, the City adopted a Bicycle, Trails and Walkways Master Plan which includes some discussion of the downtown area.

Adopted on November 19, 2019, the Downtown Orinda Streetscape Master Plan—ConnectOrinda—is the City’s latest planning effort pertaining to downtown streetscape improvements. ConnectOrinda was the summation of a year-long community process to identify streetscape and transportation projects that beautify, improve travel through, and

preserve the uniqueness of downtown for people traveling by all modes. The goal of ConnectOrinda was to identify projects with broad community support, particularly those that can be delivered in the next five years. Its main objectives were to:

9. Connect the two sides of downtown for all users.

10. Support future pedestrian access along San Pablo Creek.

11. Preserve Orinda’s unique sense of place.

12. Beautify Downtown Orinda.

13. Build consensus for the final plan through robust community engagement.

14. Produce grant-eligible projects.

The public art recommendations within ConnectOrinda helped inspire residents to take action in beautifying Downtown through recent public art initiatives.

Source: ConnectOrinda Plan (2019)

In addition to recommending near-term projects and streetscape design guidelines, ConnectOrinda investigated, albeit at a high level, eight long-term transportation infrastructure improvements to make walking and bicycling between the Village District, the Theatre District, and to the BART station area safer, more convenient, and more inviting. ConnectOrinda calls for a comprehensive transportation study to understand how all modes of transportation serve downtown, including BART. This study would consider the needs of all modes of transportation and recommend improvements that would create a desired balance between each for transportation efficiency. In this way, ConnectOrinda is an important component of the DPP.

An excerpt from the ConnectOrinda Plan highlighting the community’s thoughts on which streetscape beautification projects to pursue.

Source: ConnectOrinda Plan (2019; Appendix B)

2.5 Arts & Cultural Resources

2.5.1 Historic assets

Designated Historic Landmarks

Orinda Bridge

Orinda Way and Camino Pablo

Marking the northernmost entrance to the Village District, the Orinda Bridge was constructed by the County Highway Division in 1920 to ensure a permanent crossing over the San Pablo Creek to the original site of Orinda Village, which consisted of Casa Verana, the firehouse, the general store, and a riding academy. The bridge is made of concrete and its side walls are painted white with the year “1920” marking one pillar.

Orinda Community Center/Orinda Union School

28 Orinda Way

For nearly a century, the facility has been the principal center of educational, cultural and recreational activities in Orinda. Designed by well-known school architect Harold W. Weeks, the building is an example of 1930's era small town school architecture, replete with decorative color tiles and classic facade. Originally built in 1924 as the Orinda Union School, the structure was extensively rebuilt in 1939 with support of the Federal Works Agency of the U.S. Public Works Administration. The rock

wall in front of the Community Center extending to the northern boundary of the property is included in the historic landmark designation. The Community Center also now hosts the large metal art deco “ORINDA” sign, circa 1940’s, which received historic landmark designation in 1994.

Phair's Store, formerly the Orinda Store

10 Avenida de Orinda

This now-vacant building once served as a general store, post office, beauty salon, and overall hub of life for people living in Orinda from 1925 to 1941. It was operated as Phair's Store after Ewart Phair assumed control in 1941 and continued to the late 1990’s as a general store. Vacant and falling into disrepair for more than two decades, Phair’s is often held by long-time Orinda residents as a symbol of both the decline of downtown Orinda and a potential for future revitalization efforts to recapture the vibrant communal character of Orinda’s past.

Historic Mural Map of Orinda

On the exterior wall to the left of the Orinda BART Station entrance

The Historic Mural Map of Orinda is a rectangular, approximately 9' tall by 23' wide mural based on a 1975 painting by well-known Bay Area artist Lonie Bee. It identifies 26 significant buildings and

sites in and around Orinda. Classes and community groups once began their historical education of Orinda by reviewing the location and description of the buildings and sites on the mural. Due to significant weathering, a reproduction produced in 2012 now preserves the mural’s legacy at the Orinda Community Center.

deLaveaga Station & Bryant Station Site

Bates Boulevard & Davis Street

The deLaveaga Station, constructed in 1890, with its distinctive gabled roof with flared eaves, is the only remaining station of the California & Nevada Railroad (1884-1900). The Bryant Station was the eastern terminus of the railroad and is commemorated through an historical marker. The railroad stretched 23 miles from Oakland to the Bryants (Orinda) via Oak Grove (El Sobrante). It transported people into the country for pleasure and relaxation, and also returned materials such as fruits and vegetables for canning, hay and grains, and powder for manufacturing.

MURAL 53 | Ink Dwell This mural featuring locally native flora and fauna alongside a street map of the City was painted in 2022 on the south wall parking garage entrance of the library by Bay Area artist Jane Kim. The artwork was funded by the Friends of the Orinda Library to educate residents and beautify Downtown Orinda.

2.5.2 Public art

The Art in Public Places Committee (APPC) promotes public artwork in Orinda by sponsoring loaned artwork, providing educational workshops hosted by the artists, and offering tours of artists’ studios and workplaces to foster appreciation for how the artwork is developed. APPC also raises funds for the purchase of some artwork for permanent civic display. Artwork, managed through the APPC’s “ArtSpace Orinda” program, is typically loaned for a one-year period, and is sometimes acquired for permanent installation by the City. As of December 2022, the inventory includes 18 works owned by the City and 15 works on loan. The artwork, which is primarily sculptural, is displayed in public spaces in both the Village and Theatre Districts areas. On the Village District side, artwork is displayed in the civic center area, immediately east of the Project Area, as well as at City Hall. In the Theatre District, installations are available in the form of artistic seating along Moraga Way.

Multiple murals have proliferated downtown since 2020 through the initiatives of local organizations. Inspired by ConnectOrinda’s call for placemaking through murals, the Friends of the Orinda Library coordinated, sponsored, and donated a large-scale mural celebrating Orinda’s native plants and animals by artist Jane Kim. Another art program, Artify Orinda, was developed in 2020 by the Lamorinda Arts Council and leverages local artists to paint San Francisco Bay Area flora and fauna over blank walls and public infrastructure. To date, Artify Orinda has sponsored 10 completed projects in the downtown districts.

To find out more about the artworks seen on these pages and throughout Downtown Orinda, visit APPC's ArtSpace Orinda Artworks page at www.artspaceorinda.org/artworks .

2.6 Circulation

2.6.1 Access

Regional access to Downtown Orinda is provided by State Route (SR) 24, a designated Scenic Highway. Local access to downtown is provided by Camino Pablo, Orinda Way, Moraga Way, Santa Maria Way and other local roadways. The main commercial streets are Moraga Way in the Theatre District and Orinda Way in the Village District. The Land Use and Circulation Element of the City’s General Plan provides roadway classifications for public roads. Table 2–F and Figure 2–12 present the roadway classifications within the Project Area.

Figure 2–13 shows the existing and proposed pedestrian and bicycle improvements based on the City’s Bicycle, Trails, and Walkways Master Plan (2011) as well as the City’s proposed capital improvements.

The City’s Capital Improvement Plan for Fiscal Years 2021/2022 to 2024/2025 includes the following recently-completed projects that benefit the Project area:

Camino Pablo Bicycle Route Corridor Improvements. Improved, upgraded, and closed gaps in bicycle facilities along the Camino Pablo Bicycle Route corridor through Downtown Orinda between El Toyonal and Moraga Way. These improvements included: installation of bike loop detectors; improvement to traffic signals; reduction of a concrete island and extension of the existing Class II bicycle lane on Camino Pablo and Orinda Way; bicycle lane upgrades between

the SR 24 off-ramp and the Orinda BART Station from Class III to Class II; application of “green paint” to conflict zones; and installation of sharrows at the Theatre Square area leading to/from the Saint Stephen’s Trail. Orinda Way Pavement Rehabilitation. Performed pavement rehabilitation/ maintenance of Orinda Way through the Village District, specifically between Camino Pablo to the north and the Orinda Way culde-sac to the south, near the Pine Grove Business Complex and Shell Gas Station. The improvements also involved required upgrades for ADA curb ramps and ADA

Table

2–F General Plan – Roadway Classification

parking spaces. Construction was completed in 2021.

Camino Pablo Traffic Calming. These improvements along Camino Pablo between Monte Vista Road and Bear Creek Road encourages motorists to travel at the speed limit as they enter Downtown Orinda and make their way to Wagner Ranch Elementary. The traffic calming improvements included modifying lane markings to reduce width of travel lanes, creating buffers between bicyclists and vehicles, and improving bicycle transition at intersection approaches.

Bryant

Camino

Camino

Moraga

Figure 2–12 General Plan – Roadway Classification

Source: City of Orinda General Plan (1987 – 2007)

Figure 2–13 Pedestrian and Bicycle Improvements – Existing and Proposed Source: Bicycle, Trails, and Walkways Master Plan (2011); City of Orinda – Proposed Capital Improvements

2.6.2 Parking

Street parking in and around downtown is free (no meters) and time-restricted anywhere from 1 to 4 hours, the exception being some residential areas near downtown with no time restrictions. In addition to increasing enforcement of on-street parking hours, the City has two parking permit programs:

3. The Brookwood Road Residential Parking Permit Program (started in 2018); and

4. The Altarinda Road Pilot Employee Parking Permit Program (2019).

Both programs are intended to address BART commuter overflow parking into the downtown and single-family residential neighborhoods as well as the limited availability of parking for downtown employees.

The Orinda BART Station has 1,302 parking spaces, all of which are surface parking spaces. Prior to the COVID-19 Pandemic, BART estimated that parking at the Orinda BART fills at 7:30 a.m. during weekdays. At the time of the DPP’s adoption, BART ridership from the Orinda BART Station had more than doubled from the lowest ridership numbers at the height of the pandemic; however, weekday parking at the BART station is still well below capacity.

To accommodate various modes of travel, BART converted a small amount of vehicle parking to motorcycle and motorized scooter parking in 2020. As trends unfold, BART may consider converting more vehicle parking to motorcycle and motorized

scooter parking. Additionally, 36 BikeLink bike lockers located at the station provide secure, on-demand bike parking at the station.

Between the Theatre District, the Village District, and BART, there are 3,232 vehicle parking spaces downtown. Off-street parking tends to be readily available on both sides of downtown. A 2018 parking utilization study conducted for the ConnectOrinda Briefing Booklet found both on-street and off-street parking in the Village District to be less than 85-percent during peak hours (85-percent parking utilization is a threshold commonly used as a maximum for ideal parking efficiency, transportation system efficiency, and parking availability). The Theatre District off-street parking utilization was also found to be below 85-percent; however, on-street parking utilization exceeded 85-percent around peak lunch hours and in the early afternoon (the parking occupancy study did not count occupancy after 5 p.m.).

Further investigation into parking conditions may also be warranted in the future within the framework of understanding long-term changing transportation patterns post COVID 19 pandemic.

Figure 2–14 Parking Spaces in Downtown Orinda

Source: ConnectOrinda Briefing Booklet (2018); BART (2020)

Figure 2–15 The Village District – Weekday Parking Utilization by Time of Day Source: ConnectOrinda Briefing Booklet (2018)

Figure 2–16 Theatre District – Weekday Parking Utilization by Time of Day Source: ConnectOrinda Briefing Booklet (2018)

2.6.5 Transit

County Connection’s Bus Route 6 services Orinda, Lafayette, and Moraga between 6:00 a.m. and 8:00 p.m. Monday through Friday, with peak/off-peak intervals of 30 and 60 minutes, respectively. Weekend service is more limited, with the route running every 75 minutes Saturday and Sundays between 9:30 a.m. and 5:30 p.m.

The Orinda BART station is currently served by the Yellow line, which runs between the Antioch and SFO/Millbrae BART stations. On weekdays, train service in Orinda begins shortly after 5:00 a.m. and concludes at approximately 1:00 a.m, in 15- to 30-minute intervals. Weekend service runs in 20to 25-minute intervals, beginning after 6:00 a.m. on Saturdays and at approximately 7:30 a.m. on Sundays, and running until approximately 1 a.m.

Additionally, Orindawoods, a planned-unit development east of the Village District, operates a BART shuttle for its residents.

Based

on monthly ridership data for October 2022, a weekday average of 1,102 riders entered the Orinda BART station.

Image source: City of Orinda Planning Department

Figure 2–17 Downtown Orinda – Transit Routes and Stops

Source: County Connection; BART

2.7 Natural Features & Infrastructure

Downtown Orinda is located in a small valley formed by San Pablo Creek and surrounded by steep terrain to the east and west. To the south, downtown is bounded by East Bay Municipal Utility District’s (EBMUD) Siesta Valley Recreation Area. There are trails extending through this property which are accessible to the public with a permit. To the north, well-established residential neighborhoods border downtown. As a result, there is not much opportunity for downtown expansion beyond the current commercial and office districts. Further, key constraints to development in downtown include San Pablo Creek, Pacific Gas and Electric’s (PG&E) high-voltage electrical transmission lines, and aging infrastructure. The following subsections provide a more detailed discussion on how these elements challenge the DPP.

2.7.1 San Pablo Creek

San Pablo Creek is an urbanized perennial creek that flows through the DPP Project Area. In 1958, the creek was straightened out and channelized to accommodate the construction of Camino Pablo, which connects Orinda to SR 24 and El Sobrante. San Pablo Creek is culverted below SR 24

and Camino Pablo. The creek daylights for approximately 1,500 feet, near the intersection of Camino Pablo and Santa Maria Way, before entering a culvert (behind the former Bank of America building) that continues under the Safeway parking lot. A noticeably short segment

also daylights just northwest of Avenida de Orinda.

See Chapter 4: San Pablo Creek for more in-depth consideration of the Creek and a review of proposed plans for creek development within the Project Area.

The community has repeatedly expressed a strong desire to have access to a restored San Pablo Creek in the Village District.

Image source: City of Orinda Planning Department

Figure 2–18 Downtown Orinda – San Pablo Creek (day-lighted portion)

Source: City of Orinda Planning Department

Source: https://msc.fema.gov

Figure 2–19 Downtown Orinda – Flood Risks

2.7.2 Special geographic features

The Siesta Valley Recreation Area, an EBMUD Watershed open space, is located west of Camino Pablo. It is clearly visible from many parts of the Village District and from the Orinda BART Station. It can be accessed from downtown Orinda via the De Laveaga trailhead just northwest of Camino Pablo and Santa Maria Way, although there are no crossing points that facilitate pedestrian connectivity with the trailhead. The EBMUD Watershed open space is managed through the East Bay Watershed Master Plan.

2.7.3 Utilities

Utilities in Orinda are provided by PG&E (electricity and gas), Central Contra Costa Sanitary District (sewer), and East Bay Municipal Utility District (EBMUD; water). These agencies do not have offices in Downtown Orinda. A more detailed description and analysis of existing utilities is available in Chapter 5: Utilities, Services, & Infrastructure.

2.7.4 Transmission lines

There are two sets of high-voltage electric transmission lines running through downtown. These transmission lines ultimately connect to the Sobrante (Bear Creek Road) and Moraga

(Lost Valley) Pacific Gas and Electric (PG&E) Due to North American Electric Reliability Corporation (NERC) safety regulations, nothing may be built below the transmission lines and within PG&E’s easements around those lines. A more detailed description and analysis of the existing utilities is available in Chapter 5: Utilities, Services, & Infrastructure.

2.7.5 Public roadways and storm drains

When the City incorporated in 1985, it took over approximately 93 miles of paved, publicly-maintained roads and roughly 17 miles of publicly-maintained storm drain pipes and culverts from Contra Costa County (County). With available funds, primarily the Gas Tax, County Sales Tax Return-to-Source, and grant funds, the City was able to repair and maintain the most heavily-travelled roads (arterials, collectors, and school routes) in a generally good condition. However, by 2004, most of the City's residential roads had deteriorated badly, and it was clear that available funding was insufficient. As a result, the City established the Citizens’ Infrastructure Oversight Commission (CIOC) to study the problem and recommend solutions. In July 2012, a ten-year, multi-phase funding plan was approved by the City Council and real progress on improving the residential roads began in 2013, with voters approving a half-cent sales tax in November 2012 to be effective through 2023. In 2020, Orinda voters approved an additional half-cent sales tax through Measure R, augmenting and extending the previous half-cent sales tax through 2041 for an estimated $2.4 million in revenue per year for storm drain repair and roadway maintenance among other essential services including wildfire prevention and disaster preparedness. The CIOC was decommissioned, and a new Supplemental Sales Tax Oversight Commission (SSTOC) was established to provide recommendations and report on City expenditures related to Measure R-funded programs, services, and projects.

Repairs to all of the City’s public residential roads that were in poor condition were completed at the end of 2022. Similarly, it is anticipated that the city’s arterial and collector roads will be repaired (to a good or “very good” category) by the end of 2024. For additional information, please refer to the City’s Road and Drainage Repairs Plan (December 17, 2019). This Plan has been utilized for the roadway paving restoration work (and the underlying storm drain pipes) which the above-mentioned Bond and Incremental Sales Tax measures have funded. The restoration work consisted of full depth reclamation, dig outs, mill and fill (and/or “overlay”) paving and surface treatments (microsurfacing and slurry seal). Now that the work outlined in the Plan has, for the most part, been completed, in order to maintain the roadways in good condition, ongoing “routine” paving work is required. This ongoing maintenance work is accomplished through an annual CIP paving project, with street selection primarily based on a pavement management computer-based program (“StreetSaver”).

In January 2017, the failure of a corrugated metal pipe culvert under Miner Road caused a sinkhole which resulted in the closure of a section of Miner Road for several months. Prompted by this incident, the City initiated an assessment of storm drain pipes, with the larger diameter pipes as the highest priority. The City retained an engineering firm to perform field inspections, create a prioritization algorithm, and estimate repair/replacement costs, which were presented as the 2019 Storm Drain Repair Plan. In conjunction

with this work, the City used ESRI’s ArcGIS (Geographic Information System) to compile a geodatabase that maps the storm drain pipe locations, shows the size, material and inspection history. This has allowed a reliable way to manage and update the storm drain facility records. The GIS tools also allow tabulation of various pipe data to aid analysis and estimates of repair work.

The 2019 Storm Drain Repair Plan showed that roughly $30 million will be needed to repair or replace public storm-drain pipes that are likely to fail over the next 10 years. Of that estimate, approximately $9.6 million was estimated to be needed over the near term (defined as 3 to 5 years in the 2019 Storm Drain Repair Plan) to perform selected CCTV inspections and to repair or replace the storm-drain pipes found to have the highest risk of failure (“Category A”). The Category A pipes have been organized into groups of projects and budgeted in the CIP, with the highest priority projects underway as of 2022. Also related to the storm drainpipe repair program is the San Pablo Creek Culvert Repair (CIP Project #4187), which is funded for $4.2 million to repair this 1,300 lineal feet double box concrete culvert that runs parallel to Camino Pablo in the Orinda Village District.

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Downtown Orinda is a vibrant, welcoming, and accessible destination that is home to a variety of restaurants, specialty businesses, and diverse housing options that serve the Orinda community; celebrates Orinda’s history and semi-rural heritage while supporting new, high-quality development that breathes life and beauty into the downtown; espouses community stewardship of the natural environment; promotes lively, interconnected entertainment spaces to celebrate the arts and bring people together through events and performances; fosters responsible growth by supporting a dynamic employment center and managing safe, multimodal transportation; and upholds the dignity and safety of all who use the downtown.

Above, the Downtown Vision Statement describes what our community hopes the downtown will become in the long-run. It visualizes a future in which the common goals and aspirations of Orindans have been successfully pursued. The vision statement helps decision-makers direct future policy and development that supports achievement of the vision.

Guiding Principles are the essential areas of current action and future improvement that direct our community’s focus and efforts toward achieving its overarching vision. Each guiding principle for downtown Orinda is accompanied by a more specific long-range vision of how the community might take shape around the principle if it is diligently acted upon.

Goals are more focused objectives that support the achievement of the guiding principles. Within the DPP framework, a goal is the community’s aspiration for a specific future condition. Each guiding principle is supported by two to four specific goals.

Policies are specific statements of the City's approach and commitment to a particular goal. If each goal is considered to be an objective the community hopes to achieve within the downtown, the specific supporting policies are the ways in which the City will work to achieve the goal.

The ensuing pages are organized into nine guiding principles and their subordinant goals and policies.

Revitalize the Downtown Economy

A strong sense of cooperation and mutual support exists between the members of the business community, downtown property owners, and the City. The needs of cherished long-time businesses are reflected in downtown decision-making, enabling their resilience and continued service within the community. Newer businesses find support and resources for starting up operations in Orinda. The business environment is well-networked through downtown business and professional organizations.

Foster a healthy business environment through careful planning, guided private development, and public investment.

Support reinvestment and encourage business growth and retention.

Promote an environment for small business resiliency. Encourage the creative inclusion of small and micro-retail in larger development sites that create a diverse range of economically accessible commercial space options for business owners.

Study evolving market demand and maintain a critical assessment of Orinda’s entrepreneurial ecosystem in order to guide public and private investment and allocate resources accordingly.

As resources allow, explore innovative business-friendly initiatives and programs enacted by peer cities and towns.

POLICY 1.1.4

downtown development standards and projects.

Educate the community on available grant funding opportunities and small business resource programs.

Improve business startup processes and small business access to resources, supportive infrastructure, and business networking opportunities. Explore opportunities to streamline business startup processes.

Seek innovative strategies to improve the local public digital infrastructure, including cell, fiber, and wi-fi networks.

Enhance the City’s coordination with the business community and downtown property owners throughout the public engagement process for proposed

Support the development of downtown groups and networking activities for professionals and entrepreneurs.

Cooperate with the Orinda Chamber of Commerce. Expand partnerships between the City and community organizations in order to provide events and seminars benefitting business connections.

Enable and Attract a Diversity of Land Uses

Orinda houses a diverse mix of independent businesses that exemplify Orinda’s small-town character. Orindans travel downtown to shop at specialty grocery shops in a lively market hall and dine at a variety of high-quality restaurants, while guests to Orinda can stay in a charming boutique hotel surrounded by shops and restaurants. Community-serving local establishments provide a myriad of options that serve the daily needs of residents and visitors, and include affordable and accessible options for all income levels. Downtown housing has been incorporated into mixed-use projects to better support local establishments. Downtown housing supports families, seniors, and young professionals from a variety of backgrounds who help foster a sense of community downtown and contribute to a lively and engaging atmosphere.

Increase land use diversity that supports the needs of Orinda’s residents and businesses, as well as attracts visitors from the Lamorinda region.

Discourage ground-floor uses that detract from pedestrian-oriented activity.

Encourage eclectic retail and entertainment establishments to locate downtown and consider regulations that support such uses.

Consider regulations that would allow development of coworking, business incubator, and flexible live/work spaces that accommodate the needs of a burgeoning work-from-home population.

Explore regulations that would allow innovative uses of space beyond retail, such as small-scale manufacturing and other creative spaces.

Encourage a variety of local dining opportunities including a greater variety and higher quality of restaurants and outdoor dining.

Work to attract a specialty grocery store or market hall that energizes the retail sector and enhances the downtown shopping environment.

Explore regulations that would allow and attract a boutiquescale hotel or Main Street style inn that increases the capacity for locally-serving hospitality.

Meet some of the community’s housing needs downtown per the Regional Housing Needs Allocation set by the Association of Bay Area Governments. Consider revisions to the general plan and zoning designations applicable to downtown properties to support the capacity for new housing.

Consider revisions to the general plan and zoning designations applicable to downtown properties to support the capacity for new housing.

Explore regulations that would encourage residential mixed-use development that incorporates neighborhood-serving retail and commercial uses on the ground floor.

Work to encourage housing density at a level that is compatible with locally-serving land uses, while maintaining an accessible downtown for all of Orinda.

Focus on the production of an expanded variety of quality housing choices that are inclusive of all ages and income levels.

Pursue the goals of the 6th Cycle Housing Element. Review and ensure consistency between the Downtown Precise Plan policies and future Housing Element cycles.

Focus on vacant and/or underutilized sites as possible locations for residential redevelopment. In particular,

consider the western edge of the Village District near the San Pablo Creek, where the downsloping properties may better accommodate increased building heights away from the street.

Check for consistency with all elements of the City’s General Plan (e.g., Land Use Element, Open Space Element, Circulation Element, Conservation Element, Noise Element) and consider proposed changes as appropriate, prior to implementing the policies proposed in this DPP.

Coordinate with Caltrans and BART for Transit-Oriented Development (TOD) at the Orinda BART station. Use BART’s published materials along with its adopted policies and performance metrics to develop a precise plan and objective design standards that would guide TOD at this station’s parking areas.

Consider objective design standards to facilitate high quality, contextually-sensitive multifamily residential development in conjunction with rezoning to meet Housing Element obligations.

Plan for potential housing, office, and/or retail development adjacent to downtown areas.

The Housing Element Connection

What is the Housing Element?

The Housing Element is how Orinda plans to meet the housing needs of everyone in the community over an eight-year period. The Housing Element is required by the City’s General Plan and includes goals, policies and programs to direct housing-related decision-making. Every eight years (referred to as “cycles”), local governments in California must update their Housing Element and have it certified by the Department of Housing and Community Development (HCD).

How is the Housing Element related to the Downtown Precise Plan?

Through the 6th Cycle Regional Housing Needs Allocation (RHNA), Orinda has been assigned 1,359 units that it must plan for in the 6th Cycle Housing Element. To accomodate planning for this level of growth, 43 sites in downtown Orinda - more than half of the Downtown Precise Plan project area - were identified for their development or redevelopment capacity to house 447 units. This represents a significant boost in residential density downtown, and in development overall. The Downtown Precise Plan offers the opportunity to plan around and guide development for downtown housing that is sensitive to the needs of the existing community while accommodating the needs of future residents.

Housing Element goals related to downtown Orinda

GOAL 1

New Housing Production. Encourage the development of a variety of types of housing for all income levels, which will be assisted through appropriate zoning and development standards.

GOAL 3

Housing Opportunity Sites. Provide additional housing opportunities and sites to meet the needs of Orinda’s low-, very low-, and moderate-income households.

GOAL 4

Housing Constraints. Reduce governmental constraints to the production and preservation of housing in Orinda.

GOAL 5

Fair Housing. Promote equal housing opportunities for all Orinda residents, regardless of race, religion, sex, marital status, ancestry, national origin, or color.

GOAL 6

Energy Conservation. Promote energy conservation and efficiency in existing housing and new development.

Pursue New Development That Enhances the Appearance of Downtown

Downtown Orinda has developed into a network of buildings old and new, eclectic but cohesive, organic yet well-ordered. Newer, community-oriented architecture and sensitive site design compliment older iconic buildings through cohesive architectural styles and appropriate detailing. A variety of downtown residential buildings provide a permanent sense of community through the neighborhood-oriented placemaking that has been incorporated into their design. Although downtown Orinda has filled in and scaled up in places, the new downtown fabric retains a sense of village charm through attractive, main street-style development.

Pursue objective design standards that guide the development of appropriatelyscaled, contextually compatible buildings that strengthen and enhance the downtown’s village character. Explore regulations that would require new development to incorporate engaging elements where buildings are located along public sidewalks. These elements might include shopfronts, porches, stoops, and public terraces that strengthen connections between the public realm and downtown buildings. Where uses are inconsistent with an active pedestrian realm, such as with parking garages, regulations should require developments to include street-fronting, pedestrian-oriented uses that conceal the

conflicting use.

Strive to adopt regulations that would gradually transition from smaller buildings near residential neighborhoods to larger, more centralized buildings. Buildings should be scaled in respect to their surroundings and support a moderate intensity of neighborhood and community-serving uses. Projects with larger development footprints should integrate with the existing developed environment and provide a varied character.

Set height limits that maintain a desirable development scale while contributing to the revitalization of downtown Orinda. Building heights for each area should be objective and written to require buildings to harmonize with the built and natural environments while reducing constraints on / ensuring the viability of redevelopment.

Explore regulations that would reduce building setbacks from the sidewalk. Combined with widening sidewalks where possible, this would be intended to promote pedestrian comfort and active engagement with a main street environment.

Pursue objective regulations that would require development to step back at upper stories to reduce the perceived mass of buildings at the street level, blend the roofline of taller buildings with lower buildings, and create light and view corridors between structures. Consider objective regulations that would promote vertical mixed-use buildings, particularly at major intersections, that include ground-floor commercial, retail, and entertainment spaces that contribute to an active

sidewalk. In areas of lower intensity, focus on objective regulations that would allow horizontal mixed use that locates commercial, services, and housing within short distances of each other.

Foster a supportive environment for responsible downtown development.

Offer development incentives (e.g., density bonuses) consistent with State Law to encourage appropriate development.

Approach development decisions with pragmatism and with a clear understanding of trade-offs.

Research possible incentives and streamlined processes for combining small lots into larger sites suitable for redevelopment.

Seek partnerships with and supportive policies for quality developers of commercial, mixed-use, and affordable housing developments.

Reduce blight and activate underutilized properties. Encourage infill development or redevelopment of blighted and vacant properties.

Support initiatives that reduce or better activate existing deep setbacks.

Guiding Principle 3: Pursue New Development that Enhances the Appearance of Downtown

Pursue Public Works projects that beautify and enhance the sense of place downtown. As resources allow, implement the recommendations and actions of ConnectOrinda for maintaining the public realm.

As resources allow, implement the recommendations and actions of ConnectOrinda for establishing community gateway markers, appropriate pedestrian lighting, and street furnishings, and public parklets.

Consider public/private partnerships to address the constraints imposed by the PG&E easement and transmission towers with no net financial cost to the City.

• Establish cohesive gateway designs for downtown entrances at the intersections of Camino Pablo with Brookwood Road, Moraga Way, Santa Maria Way, and Orinda Way.

• Provide pedestrian luminaires over sidewalks and walkways where streetlight fixtures exceed effective pedestrian lighting heights.

• Conduct a lighting study to recommend adjustments as needed and a lighting fixture design that helps unify downtown Orinda.

• Establish a unified theme for street furnishings.

• Use furnishings that provide universal access to promote inclusion for users of all ages and abilities.

• Consider parklets in place of street parking spaces where requested by adjacent businesses and property owners to enhance outdoor dining options. Design parklets to be level with the sidewalk, offer buffers from the street, and provide public amenities that enhance the sidewalk.

Establish a comprehensive maintenance program that includes the following components:

• Map and clearly identify the areas for which the City has maintenance responsibility

• Encourage Caltrans to maintain landscaping and cleanliness within their right-of-way

• Regularly prune and weed plants, shrubs, and trees

• Collect trash and clear other debris, wash sidewalks and walkways, remove graffiti and perform other routine cleaning

• Maintain fountains, replace light bulbs, clear storm drains, repair sidewalks and walkways, and perform other maintenance of the public realm.

The ConnectOrinda Link

The ConnectOrinda Link

Facilitate Historical Preservation and Celebrate Orinda’s Semi-Rural Heritage

Property and business owners have partnered with each other and the City to establish an attractive and meaningful downtown that supports and celebrates Orinda’s sense of community life. The iconic Orinda Theatre continues to stand proudly as a testament to Orinda’s historical charm and community resilience. Other buildings of historical significance have also been restored and maintained, enhancing the village atmosphere of the local shops and restaurants that draw residents of Orinda and the greater Lamorinda region into downtown Orinda. Previously vacant or underutilized properties, such as the former Phair’s building, have been commemorated as historic points of local civic pride that reinforce the village character of newer development. A myriad of art pieces and attractive historic markers tell the story of Orinda’s history and reinforce a sense of community pride and heritage.

Support the preservation, rehabilitation, commemoration, and maintenance of historical properties.

Research and pursue grants and programs that assist property owners with historic preservation efforts.

Consider the preservation and/or commemoration of buildings and features that reflect the historical village character of the downtown.

Work to streamline the permitting process and reduce regulatory barriers for property owners performing routine maintenance and upgrades on older downtown buildings.

Explore streamlined regulations for entrance and façade remodeling on downtown buildings that will contribute to the pedestrian environment and the historic character of downtown.

Consider regulatory updates to extend the life cycle of existing downtown building stock through adaptive reuse.

Document and represent the history of the City. Seek opportunities to expand upon the historic marker program throughout downtown, as well as other methods that commemorate Orinda’s heritage as a semi-rural village community.

Establish Downtown as an Active Center for Arts and Events

Downtown Orinda has become a center for arts and culture that provides aesthetic and interactive cultural and recreational activities that represent its diverse population. Artists have access to a bounty of forums to express themselves and the values of Orinda. Residents now enjoy music, dining, recreation, and entertainment through a widened variety of inviting, mixed-use public spaces. In the Village District, food truck nights have culminated in a small culinary festival, while in the Theatre District residents and visitors flock to experience Orinda’s charming art and culture street fairs. Orinda’s successful public programming has been leveraged to bring life and activity to the community’s commercial and retail spheres. The friendly atmosphere of the downtown encourages community engagement and active participation in downtown events.

Animate existing and future public and private spaces through a comprehensive downtown arts program.

Consider design and implementation of a public art master plan that guides and coordinates the efforts of

downtown art organizations, committees, programs, and initiatives.

As resources allow, implement the ConnectOrinda recommendations and guidelines pertaining to public art.

As resources allow, provide opportunities and forums for artists to display and perform their work. Consider implementation of a public performance ordinance or program that compliments and culturally enriches downtown uses. Consider a public art requirement for development projects.

• Coordinate with the Lamorinda Arts Council and the Orinda Art in Public Places Committee to develop a public art plan that broadens the types of art and installation locations, establishes priorities for Orinda’s art program, and addresses how art is selected and rotated, where it is sited, and how it is funded and maintained.

• Enhance Orinda’s collection of public art by creating new labels that list the title, artist and a QR code that viewers can scan with a smart phone, which will display more information about the piece, including an artist’s statement.

• Broaden types of art and installation locations.

• Extend the art program to Orinda’s

pedestrian bridges, freeway under crossings, landscaped areas, walls and building facades, and other areas that can be enjoyed by large groups of people without conflicting with other uses of the public realm.

• Expand Orinda’s art collection to include murals, mosaics, pavement markings and other types of public art that would be new to Orinda.

• Install both temporary and permanent exhibits to maintain a dynamic arts scene.

• Consider opportunities to include art in public realm capital improvements.

• Experiment with interactive art, which invites user participation or provides sensory stimulation through touch, movement, or sound.

The ConnectOrinda Link POLICY 5.1.1

Guiding Principle 5: Establish Downtown as an Active Center for Arts and Events

Express and enhance Orinda’s social and cultural character by promoting downtown as a diverse center with daytime, evening, and nighttime activities. Pursue cultural activities and opportunities for diverse ethnic, age, and social groups in the downtown, which could include live performances, noon-time concerts, and evening and weekend activities.

Seek creative design strategies that enhance existing public open spaces as flexible mixed-use spaces. Focus on amenities such as furniture, lighting, and art that can help articulate spaces that are frequently used to host events, such as the farmers market and food truck nights.

Pursue new multi-use, accessible public and private spaces that can act as public gathering places and support a dynamic range of cultural events and recreational activities.

Coordinate with Theatre District business and property owners regarding street festivals, art fairs, and other events that can spotlight the Theatre District. Work with Theatre Square owners in particular to broaden the scope of currently-offered public event programming.

Encourage a variety of health and fitness activities throughout the downtown. Coordinate with local health professionals and community members regarding health fairs, healthy-cooking demonstrations, and physical activity opportunities. Coordinate Parks & Recreation Department, local fitness facilities, and downtown businesses efforts to conduct outdoor activities during warmer times of the year. Encourage private or consider public development of outdoor exercise equipment to support such activities.

As resources allow, consider art, signs, and markers that create walking and running trails throughout and around the commercial district.

Encourage play areas for children throughout downtown areas in order to support the family-friendly atmosphere.

Consider updating the Parks and Recreation Master Plan (1989).

POLICY 5.2.1

POLICY 5.3.1

POLICY 5.2.2

POLICY 5.3.2 POLICY

POLICY 5.3.4 POLICY 5.3.5

GOAL 5.2

GOAL 5.3

Restore, Enhance, and Provide Access to the Natural Environment

The San Pablo Creek has become a prominent feature of the downtown with a scenic greenway promenade and boardwalk that offer natural vistas. Nearby, restaurant patios overlook the San Pablo Creek, creating a warm, active atmosphere that draws in families and visitors. The creek is connected to the rest of downtown through a series of green pedestrian passages, pocket parklets, and pocket plazas that enhance the feeling of an open downtown immersed in nature. Orinda’s natural beauty is celebrated through the preserved views to its rolling hills and maintenance of its mature native trees. Residents and visitors use pedestrian-friendly pathways to access the trails, parks, and natural scenery in which downtown Orinda is nestled.

Embrace San Pablo Creek.

As resources allow, pursue a San Pablo Creek trail along the eastern bank that is ADA accessible. Study development options for including a bridge that crosses the creek and a boardwalk that follows the western bank.

Strive for a unique brand and identity for San Pablo Creek. This might be done by marking the portals of day-lit portions with archways, sculptures, or gateway signage. Use of painted symbols or artful markers could be used at public locations to reveal the “invisible creek” where it passes below. Decorative bridge railings could be installed to celebrate the creek.

Look for opportunities to incorporate features that provide comfort and vantage points for visitors (e.g., viewing platforms with interpretive signage and seating near the Santa Maria Way/Camino Pablo intersection). Seating and low-level lighting could be used along the creek to create comfortable resting locations at public access points.

Pursue connections between the creek, the Community Center, and the de Laveaga Trail.

Coordinate with private landowners to encourage creek-fronting façades or restaurant vistas, and a contiguous creek greenway that provides public amenities and comfortable pedestrian access along the creek.

Consider bike/scooter

parking needs at one or more creek trailhead locations.

Study options to decrease noise at the creek from vehicles traveling on Camino Pablo.

Foster a connection with nature by enhancing the downtown’s natural resources. Pursue a variety of outdoor spaces, particularly public gathering spaces, that blend with the natural environment of Orinda by incorporating native landscaping.

Work with property owners and businesses to contribute

to and maintain landscaping throughout downtown, both in the private and public domains.

Seek additional strategies to fund, maintain, and update existing parks and trails through and adjacent to the downtown through partnerships and grant funding opportunities with state, federal, and non-governmental organizations.

Consider pursuing designation as an International Dark Sky Community, or the adoption of dark sky-friendly lighting policies per International Dark-Sky Association guidelines. Dark sky policies seek to minimize light pollution and increase visual access to night skies.

Maintain a sense of openness and visual access to the hills to the west.

As resources allow, enhance the existing open space in the downtown, including the community park and library plaza area, with open-air restaurant seating, public seating, and other amenities that provide for view corridors towards Orinda’s hills and natural scenery.

Encourage a compact downtown to conserve open space and the natural environment throughout other parts of the City.

Encourage redevelopment of underutilized space with pocket parks, pocket plazas, and pedestrian passages that offer scenic open spaces capable of softening, rather than emphasizing, adjacent development.

GOAL 6.3

Guiding Principle 6: Restore, Enhance, and Provide Access to the Natural Environment

Facilitate Safe, Convenient, and Balanced Transportation

Orinda’s downtown has been transformed into a “walker’s paradise,” where the abundance of local establishments and services are well-connected by comfortable, active sidewalks, high visibility crosswalks that provide safe passage between pedestrian curb extensions, and popular pedestrian passages. It’s now comfortable to cross Camino Pablo to reach the de Laveaga Trailhead via a high visibility crosswalk after rounding the San Pablo Creek boardwalk.

Former surface lots that once dominated the Village District have been replaced with a network of pocket parks, plazas, and pathways that better articulate a sense of place and enable comfortable access to the shops and restaurants here. Shared public parking structures fronted with shops have enhanced the Theatre and Village Districts, transforming each into “park once” districts that maintain Orinda residents and visitors’ easy access to downtown. Artfully designed bike racks and dedicated scooter spaces dot the downtown, connected by comfortable bike lanes that encourage families to spend an afternoon visiting the two sides of the downtown by bicycle, or allowing downtown workers to make a quick bike trip for lunch at their favorite spot across downtown.

Focus on safe and convenient pedestrian access to, from, and within the downtown. Design pedestrian areas throughout the downtown in accordance with the ConnectOrinda plan.

As resources allow, provide adequate sidewalk space on heavily traveled pedestrian corridors (i.e., Camino Pablo, Orinda Way, Moraga Way), especially between BART, the Village, and the Theatre District.

Minimize the conflict between pedestrian and vehicular traffic at intersections as well as midblock.

Encourage private development to expand the pedestrian network throughout downtown parcels, considering

their publicly accessible outdoor areas as an extension of the pedestrian environment wherever possible.

SIDEWALKS

• Use high quality, slip-resistant paving materials, such as brick and decorative concrete.

• Use plantings to soften large expanses of hardscape, such as in curb extensions and in furnishing zones.

• Minimize curb cuts by located driveways on side streets and consolidating them.

• Widen sidewalks where needed.

CROSSWALKS

• Upgrade existing crosswalks at identified locations to high-visibility striping.

• Consider implementation of high-visibility crosswalks at signalized intersections on busy arterial roadways and at other desired locations such as for trailhead access.

CURB EXTENSIONS

• Evaluate the feasibility of curb extensions at corners with crosswalks currently lacking them.

The ConnectOrinda Link

POLICY 7.1.3

Evaluate alternative transportation strategies that connect visitors and residents to and within the downtown. Conduct traffic studies as appropriate to inform transit decisions to serve new demand as a result of an increased concentration of downtown businesses and housing.

Continue to study and pursue options that increase the transportation options between the Village, the Theatre District, and BART in a way that minimizes reliance on personal vehicles to travel between downtown locations.

Establish a comprehensive public bike and scooter parking strategy in accordance with the ConnectOrinda plan.

Encourage new development that includes bicycle and scooter infrastructure to support ridership.

The ConnectOrinda Link POLICY 7.2.3

Guiding Principle 7: Facilitate Safe, Convenient, and Balanced Transportation

Provide adequate vehicular access and parking opportunities for customers, employees, and residents that reduces the current visual impact of surface parking.

Consider objective regulations that would discourage suburbanstyle development where surface parking is the dominant feature.

• Work with the Public Works Department and Bike Orinda to identify potential bike and scooter parking locations.

• Work with Bike Orinda, the Lamorinda Arts Council and Art in Public Places Committee, and other interested parties to select a bike rack design to use throughout downtown.

POLICY

7.3.3

Assess traffic conditions and pursue street improvement projects as needed to provide adequate vehicular access to, from, and within the downtown.

Minimize parking and loading entrances to reduce conflict with pedestrians.

Seek alternatives to parking minimums to facilitate development that maintains sufficient parking downtown. Consider an ordinance for shared parking requirements and/or a parking variance in-lieu ordinance for downtown residential development per the objectives of the 6th Cycle Housing Element. Periodically assess the commercial retail in-lieu parking ordinance fees to ensure the financial feasibility of coordinating alternative parking.

7.2 GOAL 7.3

POLICY 7.3.4

POLICY 7.3.2

POLICY 7.3.5

• Place additional bicycle racks, bike lockers, and scoorer parking areas throughout downtown Orinda in the furnishings zone near popular commercial destinations and places of employment.

Foster a Welcoming and Inclusive Community

Downtown Orinda is a welcoming, accessible, and supportive community built upon the experiences of people whose age, ancestry, citizenship, color, disability, financial socioeconomic status, gender, gender identity or expression, national origin, political affiliation, race, religion or religious beliefs, sex, and sexual orientation will never be a barrier to an individual’s voice in guiding the character and participating in the community of downtown Orinda. The processes that shape downtown and the arts that tell its story will actively seek the participation and representation of community members from historically marginalized backgrounds. Downtown Orinda offers resources, activities, and support for the individual, the family, and the community of people from all walks of life.

Build a sense of community trust through open and inclusive planning processes.

Strive for a robust community engagement process that is welcoming to input from people of all backgrounds. The public participation process should offer diverse and flexible methods of participation, which can reduce barriers to participation.

Foster relationships with key leaders and local organizations that expands public participation efforts.

Pursue an accessible downtown that supports the needs of diverse populations. Pursue regulations that would promote downtown housing that is economically accessible to diverse demographic groups and income levels.

Evaluate regulatory options to promote a mix of accessible housing and healthcare options that would support seniors and disabled community members. Consider regulations intended to attract and support childcare facilities that increase flexible use of the downtown for Orinda’s families.

Ensure a Safe and Resilient Downtown Environment

New development and density has continued to provide the safety and security afforded to Orinda residents, visitors, and buildings downtown.

Protect downtown buildings and their occupants from natural hazards (i.e., fire, flood, and earthquake).

Coordinate with MOFD on appropriate development conditions for fire prevention and wildfire resilience.

Coordinate with the Contra Costa County Building Department on evolving building standards related to the ability of new and existing buildings to withstand a major seismic event.

Educate and train downtown businesses, organizations, and residents on emergency response and evacuation procedures.

Focus on occupant and visitor safety in the context of new projects, renovation projects, and increased densities in the downtown.

Investigate whether power grid enhancements are capable of providing backup generation for critical services during Public Safety Power Shutoff outages.

Evaluate whether downtown development and density is commensurate with the service capabilities of MOFD and the Orinda Police Department.

Pursue a Sustainable and Resilient Future

The City of Orinda is cognizant of the evolving threat of climate change and the urgent need to reduce, mitigate, and reverse the impacts of human activity on the environment as well as to plan for climate change adaption and community resilience. Through Bay Area initiatives, Orinda coordinates with county and city governments to fulfill its role in ensuring that the natural environment and the people who live here are protected from climate change hazards. Development is sensitive to these needs and incorporates effective mitigation and adaption strategies that minimize the impact of the built environment on Bay Area ecosystem services, while transportation strategies reduce Vehicle Miles Travelled (VMT) and greenhouse gas emissions.

Develop a comprehensive strategy for creating an environmentally sustainable and resilient downtown.

Ensure inter-departmental coordination on sustainability actions and resource access.

Ensure that environmental sustainability and resiliency is considered holistically in public investment decisions.

Ensure that property owners, developers, and tenants have the opportunity to maximize environmental sustainability and resilience. Leverage the City’s role in guiding development to provide advice, direction, and encouragement to new development to maximize its environmental sustainability and resilience.

Encourage downtown businesses to participate in the Contra Costa County Green Business Program. Seek and promote strategies and resources for businesses and property owners to invest in efficiency upgrades through green technologies and techniques.

Minimize greenhouse gas emissions. Explore partnerships that would allow and attract shared micromobility services, such as bike and scooter shares, within the downtown. Encourage property and business owners to consider incorporating infrastructure supportive of these services in development and redevelopment projects.

Consider a Zero-Emission Vehicle Rollout Plan to guide the gradual transition of the City’s vehicles to a zero emission vehicle fleet. Zero-emission vehicles, which include electric and hydrogen vehicles, do not result in harmful emissions during operation, which reduces negative impacts to local air quality and contributes to reduced greenhouse gas levels.

Encourage and support the inclusion of electric vehicle charging stations in new or reconfigured parking solutions, to include both private and City-owned parking lots/structures.

Research and promote actions, activities, incentive programs, and resources that can encourage residents and downtown visitors to make energyconscious decisions.

Guiding Principle 10: Pursue a Sustainable and Resilient Future

GOAL

Improve climate resiliency through the design of new development projects.

Encourage new development and redevelopment projects to include green infrastructure and green building elements that minimize the built environment’s impact upon the natural environment, connect wildlife habitats, promote biodiversity, sequester carbon emissions, and absorb rainwater. These techniques may include green walls, green roofs, bioswales, native landscaping, pocket parks, and improvements to the native tree canopy.

Work with MOFD to confirm new development uses approved alternative methods of emergency access that preserve existing street trees, which provide natural carbon sequestration and absorb rainwater, where feasible.

Chapter 4: San Pablo Creek

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One of Downtown Orinda’s greatest natural features is also one of the most critically underutilized resources of the community: the daylighted portion of the San Pablo Creek stretches a quarter of a mile through multiple properties in the Village District, but sits largely out of sight and poorly connected to the rest of downtown. It wasn’t always this way - in the last decades of the 19th century, picnickers traveled the California & Nevada Railroad to its terminus at Bryant Station (later downtown Orinda) in order to enjoy a day of recreation at a San Pablo Creek swimming hole and picnic spot located just south of the station.

Later development would eventually orient downtown buildings to face away from the creek along Orinda Way and Moraga Way, while Highway 24 and the BART Station would eventually necessitate the undergrounding of significant portions of the creek - including the former swimming hole. Where the creek now daylights between Camino Pablo and Orinda Way it remains largely out of sight, tucked in the very back of Village District properties behind buildings, parking lots, and chain link fences.

Over the past three decades, however, Orinda residents have rallied around San Pablo Creek to begin the long and challenging process of creek restoration. The hard work of local individuals and organizations has resulted in a creek that, although disconnected from the prominent thoroughfares downtown, is a

picturesque ode to Orinda’s idyllic past and a commitment to the potential of a future that negotiates the tension between community growth and environmental stewardship. The creek today is surrounded by native vegetation and mature oaks as the result of the hard work by Orinda residents and organizations to maintain and replant the area, and recent efforts within the creek itself have removed debris and introduced ecological enhancements in some portions.

Still, much work remains to fully restore and reconnect the creek, and the issue remains at the forefront of concerns for residents of Orinda, who frequently cite the creek as a priority for downtown efforts.

Chapter intent

The restoration of San Pablo Creek is a cornerstone of the Downtown Precise Plan, as a properly-restored watercourse provides many community benefits. Watercourse management can result in better management of risks from flooding and, in addition to the clear benefit of reducing the potential for damage from flood events, can reduce flood insurance rates for local property owners. A well-managed creek can also improve the environmental health of downtown and restore and provide ecologically-sensitive habitat for a multitude of species. Finally, the creek is a unique downtown resource for the community that makes downtown a more dynamic place to visit: improved creek accessibility

can provide residents and visitors with healthy access to trails and natural sceneryincluding the opportunity to better connect people downtown with the de Laveaga trails via the San Pablo Creek - and can enhance the special ambiance created by the intermingling of nature with downtown activity.

The purpose of this chapter is to highlight the value of the San Pablo Creek to the downtown, identify existing creek channel conditions and development constraints, and review restoration concepts for creek channel restoration to improve channel conditions and habitat while maintaining or improving the creek’s hydraulic function, as well as provide greater access to the creek within Downtown Orinda. This chapter acknowledges that there are many pathways and opportunities to move forward with creek restoration and access improvement, and is intended as a resource to aid efforts regarding the San Pablo Creek in meeting the community’s goals for downtown.

4.3 Existing Conditions

Source: City of Orinda Planning Department

Figure 4–1 Regional Setting

Southern culvert opening beneath Santa Maria Way

Sheet pile retaining wall on the left; tree roots retaining the creek bank on the right

Sheet pile retaining wall and concrete-faced creek bank overgrown with vegetation

A sheet pile weir remnant creates an artificial falls

Waters flow northwest toward a culvert where the daylighted portion of the creek terminates.

4.3.1 Flood-control conditions

The channel can no longer carry its designed discharge and overflows during large storm events due to its vegetated state and poor bed condition. Portions of the adjacent urban area flood during 100-year and lesser events and have been mapped by the Federal Emergency Management Agency (FEMA) (Figure 4–2). The private properties in the mapped floodplain must purchase federal flood insurance or self-insure for flood damage to their properties and buildings. As a requirement of the federal flood insurance program, any project proposed within the 100- year floodplain must undergo hydraulic analysis to show that it will not have an effect on the depth and extent of the 100-year flood conditions.

4.3.2 Hydraulics and flood performance

The project reach is also bounded by culverts both upstream and downstream. Replacement of these culverts is not currently proposed, but they do provide controlling conditions for the hydraulic performance of the channel. Alterations to the entrance of the downstream culvert may improve its performance but would need to be explored in the context of a potential restoration project. Any restoration project would need to show that the flooding of private property is less than or equal to existing flood conditions. This is commonly referred to as a “no net rise” evaluation.

4.3.3 Easements

Currently, there are several easements along the creek that were originally granted to Contra Costa County and eventually transferred to the City of Orinda. However, additional easements do seem to exist and it is possible that easements may exist that are outside of the channel banks that would allow for channel expansion and/or modification. Additional research is needed to clarify the easements within the project area and to determine if older easements outside of the channel banks are also currently binding.

4.3.4 Regulated waters

The San Pablo Creek corridor is categorized as “regulated waters” - this means any modifications to the watercourse are subject to review and approval by State and federal agencies, including the California Department of Fish and Wildlife (CDFW), Regional Water Quality Control Board (RWQCB), and the U.S. Army Corps of Engineers (Corps). Wetlands are recognized regionally and nationally as important features due to their inherent value to fish and wildlife, use as storage areas for stormwater and floodwater, and water recharge, filtration, and purification functions. Jurisdiction of the Corps is established through provisions of Section 404 of the Clean Water Act, which prohibits the discharge of dredged or fill material into “waters of the U.S.” without a permit. The RWQCB jurisdiction is established through Section 401 of the Clean Water Act, which

requires certification or a waiver to control discharges in water quality whenever a Corps permit is required under Section 404 of the Clean Water Act. This requirement would apply to most restoration efforts proposed within the creek channel. Jurisdictional authority of the CDFW over riparian habitat is established under Sections 1600-1607 of the California Fish and Game Code, which pertains to activities that would disrupt the natural flow or alter the channel, bed, or bank of any lake, river, or stream.

Regulated waters along the project reach consist of the San Pablo Creek channel and possibly a number of seeps present along the upper banks where wetland indicator species, such as slough sedge and horsetail, were observed. Federally regulated waters are limited to the active channel of San Pablo Creek below the ordinary high-water mark (OHWM). The width of San Pablo Creek between the OHWM varies but is generally about 20 feet. State-regulated waters extend to the top of bank or beyond to the edge of the riparian canopy. Discerning the top of bank is a challenge along the project reach because of past flood-control modifications, the placement of fills and retaining walls, and other disturbances to the channel. Because of the nearcontinuous canopy of both native riparian and planted tree species that extends over the creek channel and up the banks, the CDFW and RWQCB may consider much of the tree cover through the project reach to be regulated waters. Further

Figure 4–2 Downtown Orinda – Flood Risks Source: https://msc.fema.gov

detailed analysis would be required to confirm whether the scattered locations of potential wetland seeps qualify as regulated waters. Where federal and state waters are affected by trails, bridge construction, and other modifications, authorizations would be required by the Corps, RWQCB, and CDFW in accordance with relevant regulations.

Given the City’s goal of achieving habitat restoration, it is likely that the overall project would be considered “selfmitigating” by the regulatory agencies as long as enhancements are accomplished using professional standards. Conditions of these authorizations would include requiring best management practices to control disturbances and minimize the potential for indirect impacts to downstream receiving waters, and would likely include a requirement to monitor disturbed areas and any restored habitat to ensure success.

4.3.5 Existing vegetative cover and wildlife habitat

Past channelization for flood-control purposes in the 1960s resulted in substantial alteration to the natural creek channel throughout the downtown portions of the San Pablo Creek. However, over the past almost 60 years, vegetative cover has become re-established as part of landscape plantings and natural recruitment, and now provides relatively high-quality riparian habitat with tree canopy, shrubs and understory vegetation, and clumps of emergent and aquatic cover along the active stream channel. Dominant vegetative cover along the margins of the creek channel through the project reach today consists of a combination of planted ornamental and California native species.

Riparian corridors typically offer plentiful habitat for wildlife and can serve as critical links for both aquatic and terrestrial wildlife movement. Surface water is available for aquatic-dependent organisms and serves as a source of drinking water for terrestrial mammals and birds. Within the project reach, culverts upstream under the Highway 24 undercrossing and downstream through commercial development limit the potential for wildlife movement opportunities, but these aren’t complete barriers. Similarly, the sheet pile weirs, concrete rubble, and other vertical obstructions impede the movement of wildlife in and along the existing creek channel, but evidence of aquatic animal and terrestrial wildlife movements have still been observed throughout the project reach.

The well-established riparian canopy and perennial flows through the project reach serve as important resources for aquatic and terrestrial species. Surface water supports invertebrates, which serve as an important source of food for resident fish, amphibians, and wading birds. Amphibian species that potentially occur throughout the project reach include Pacific tree frog (Pseudacris regilla), California newt (Taricha torosa), western toad (Anaxyrus boreas), and ensatina, among others. Terrestrial wildlife that use the riparian and upland cover through the project reach include San Francisco dusky-footed woodrat (Neotoma fuscipes annectens), deer mouse (Peromyscus), eastern fox squirrel (Sciurus niger), rufous-sided towhee (Pipilo erythrophthalmus), scrub jay (Aphelocoma californica), flycatchers, woodpeckers and warblers, common garter snake (Thamnophis sirtalis), western fence lizard (Sceloporus occidentalis), and ringneck snake (Diadophis punctatus). Larger terrestrial species likely include striped skunk (Mephitis mephitis), raccoon (Procyon lotor), opossum (Didelphis spp.), and occasionally black-tailed deer. The mature trees provide nesting and foraging opportunities for numerous species of birds, possibly including several raptor species.

4.3.6 Special-status species

Special-status species are plants and animals that are legally protected under the California and/or federal Endangered Species Acts or other regulations, as well as other species that are considered rare enough by the scientific community and trustee agencies to warrant special consideration in regard to protection of isolated populations, nesting or denning locations, communal roosts, and other essential habitat. Species with legal protection under the Endangered Species Acts often represent major constraints to development, particularly when they are wide-ranging or highly sensitive to habitat disturbance and where proposed development would result in a “take” of these species.

Per the California Natural Diversity Database (CNDDB), several plant and animal species with special status have been observed within or are suspected to inhabit the vicinity of Orinda. A habitat suitability analysis was conducted during field reconnaissance surveys to determine whether suitable habitat for any specialstatus species occurs along the project reach, and to what degree their possible presence could pose a constraint to future restoration of the creek corridor. The project reach does not provide essential habitat for most of the special status species known or suspected to inhabit the Orinda vicinity. Given the extent of past disturbance and fact that the project reach is now surrounded by commercial development and the heavily used San Pablo Dam Road, special-status plant species are not suspected to be present and habitat conditions are unsuitable for most special-status animal species. These include the state and federally threatened Alameda whipsnake, the now presumed extinct Berkeley kangaroo rat, and most species considered to be California Species of Special Concern (SSC) by the CDFW, such as American badger and pallid bat. Designated critical habitat for Alameda whipsnake occurs just west of San Pablo Dam Road west of the site, but the extensive past disturbance and lack of scrub cover makes the occurrence of this species in the project reach highly unlikely. Chinook salmon (Oncorhynchus tshawytscha), steelhead (Oncorhynchus m. irideus), and other native fish species were historically known to migrate within the San Pablo Creek watershed, but San Pablo Dam and other major downstream barriers now prevent successful migration into the project reach.

Exceptions to this absence of suitable habitat for special-status animal species along the project reach include the species depicted here.

https://www.inaturalist.org/observations/28343115

San Francisco dusky-footed woodrat. The San Francisco dusky-footed woodrat is considered an SSC by the CDFW. It is a year-round resident in the San Francisco Bay Area, preferring scrub and wooded areas, and feeds primarily on nuts, fruits, fungi, foliage, and forbs. It typically builds large terrestrial stick nests that range from 2 to 5 feet in height and can be up to 8 feet in diameter at the base. These nests are usually built on the ground or against a log or tree and are often within dense brush. A number of characteristic stick nests of this species were observed in the dense thicket of non-native Himalayan blackberry along the east bank of the creek. There may be additional nests at other locations along the project reach where vegetation is impenetrable, and new nests could be established in the future as understory vegetation spreads and becomes more abundant.

Impact on development Any grading or other improvements required as part of future restoration efforts would have to avoid existing nests of this species or would require a detailed mitigation plan approved by CDFW if nest avoidance is infeasible.

https://commons.wikimedia.org/wiki/File:Rana_aurora.jpg

California red-legged frog. California red-legged frog is listed as “threatened” by the USFWS and is considered an SSC by the CDFW. It typically occurs in lowlands, foothill woodlands, and grasslands, near marshes, lakes, ponds, or other water sources. It requires dense shrubby or emergent vegetation closely associated with deep, still, or slow-moving water for successful egg laying and protective cover. Occurrences of this species have been reported by the CNDDB to the south of downtown Orinda in 1997 along Brookside Creek and downstream of the downtown area in 2007 from the Wagner Ranch Nature Area near Bear Creek Road. Suitable habitat along the project reach is of moderate to low quality for dispersal and foraging, and the lack of emergent vegetation and deep pools make the potential for breeding and long-term occupation unlikely. However, there is a very remote possibility that individuals could disperse along San Pablo Creek and eventually enter the project reach. If an individual was to disperse just before or during construction or other habitat modifications, it could be inadvertently lost or injured unless adequate avoidance measures are taken.

Impact on development As a federally listed species, any modifications to the creek channel would require authorization from the Corps, which would likely trigger a consultation with the USFWS that would require confirmation that no adverse effects or appropriate avoidance and minimizations measures are undertaken to prevent inadvertent take.

© Aaron Spiller, (CC-BY-NC)

© Chris Brown, USGS

Foothill yellow-legged frog. Inhabiting coastal San Mateo County, this species is listed as endangered under the California Endangered Species Act and is recognized as an SSC by CDFW. It is an aquatic species found in or near rocky streams in a variety of habitats. Foothill yellow-legged frogs seek refuge in between rocks or leaf litter at the bottom of creek beds when threatened. Breeding and egg laying usually begin at the end of spring flood flows.

A general occurrence of foothill yellow-legged frog extends over the Orinda vicinity based on reports on San Pablo Creek from 1913 through the 1950s. No recent records have been reported from the area over the past 60 or more years, although urbanization and other factors do not necessarily preclude the species’ presence in the area. Some segments of the creek downtown contain habitat suitable for potential breeding and occupation by this species, but the limited aquatic cover and risk of predation by raccoons, birds, and other predators make permanent occupation unlikely. However, there is a very remote possibility that individuals could disperse along the San Pablo Creek and eventually reach the downtown areas of the creek if still present within the watershed.

Impact on development If an individual were to disperse just before or during construction or other habitat modifications, it could be inadvertently lost or injured unless adequate avoidance measures are taken. As a State-listed species, the CDFW may require additional systematic surveys to confirm presence or absence. If the project reach is considered occupied by this species, the CDFW may require that an Incidental Take Permit be secured in accordance with Section 2081 of the California Fish and Game Code where modifications to essential in-channel habitat are to be undertaken to ensure that appropriate avoidance and minimizations measures are implemented to prevent inadvertent take.

https://www.inaturalist.org/photos/67275024

Western pond turtle. Considered an SSC by CDFW. This species inhabits rivers, streams, natural and artificial ponds, lakes, marshes, and irrigation ditches with abundant vegetation and either rocky or muddy bottoms. Basking sites are necessary for western pond turtles and may include exposed logs, rocks, or banks. Adjacent terrestrial habitat is typically woodland, forest, or grassland with pliable soils for nesting and egg laying, winter refuge, and dispersal. Nest sites are most often characterized as having gentle slopes (less than 15 percent) with little vegetation or sandy banks. Suitable habitat for western pond turtle is generally absent through the downtown creek area due to an absence of deep pools along the creek necessary as refugia to escape predators. The culverts at either end of the project reach, as well as the sheetpile weirs and vertical banks through the project reach present major challenges for dispersal by turtles, but individuals could be washed downstream during storm events and become isolated within the project reach.

Impact on development Any in-channel grading or other improvements required as part of future restoration efforts should confirm the absence of pond turtles in the construction zone.

Raptors and other native birds. As noted previously, a number of special-status bird species also have varying potential for occasionally foraging in the riparian woodlands and mature plantings in the site vicinity, including white-tailed kite (Elanus leucurus), Cooper’s hawk (Accipter cooperi), and sharp-shinned hawk (Accipiter striatus), as well as other more common raptors, such as red tailed hawk (Buteo jamaicensis), red-shouldered hawk (Buteo lineatus), and great horned owl (Bubo virginianus). Nests of raptors and other native bird species in active use are protected under the federal Migratory Bird Treaty Act, and active raptor nests are further protected under Section 3503.5 of the California Fish and Game Code. No evidence of any large raptor nests was observed during the field reconnaissance surveys, but nests of smaller common species are likely present in the mature vegetation along the creek, and new nests could be established in the future.

Impact on development Construction activities conducted as part of restoration could result in the inadvertent destruction or abandonment of a nest in active use unless preconstruction surveys and implementation of appropriate avoidance measures are taken.

© Justin Garwood – some rights reserved (CC BY-NC) https://www.inaturalist.org/photos/67275024

© Justin Garwood – some rights reserved (CC BY-NC)

(c) Steven Mlodinow – some rights reserved (CC BY-NC) https:// www.inaturalist.org/photos/5638757

4.4 Restoration Concepts: An Overview

Revitalizing the San Pablo Creek is not just a possibility - it is a call to action for our community to come together in engagement and connection to create a place of natural beauty where people of all ages and backgrounds can enjoy nature and improve their overall health and well-being. In revitalizing the creek, Orinda can foster economic vitality with this natural amenity, reduce the risk of flooding, promote biodiversity, and offer a sense of place that complements the Downtown.

In this effort, community members and organizations are working alongside the City to engender a legacy of environmental stewardship, investing in the future of our community. Multiple plans have been proposed over the past two decades to restore and revitalize the San Pablo Creek, showcasing the community's dedication to this undertaking. This section discusses some of the most recent plans from 2019 to 2022 in detail. Additional resources are located in Appendix C - San Pablo Creek Restoration and Trail Concept Memo, as well as online at the Friends of Orinda Creeks' Restore San Pablo Creek website (https://restoresanpablocreek.org/ ).

The two primary conceptual plans explored herein cross the spectrum from improvements around a concept of creek channel realignment to improvements that would maintain the present-day alignment of the creek. They are:

FOC Restoration Concept (2019). This proposal by Friends of Orinda Creeks, designed by FlowWest, was put forth in 2019. The plan focuses on the realignment of the creek bed along Orinda Way parcels in a manner more consistent with the creek's historical alignment. This realignment would provide more separation from Camino Pablo along an eastern bank trail and result in reduced flood levels, but would encroach into private properties and so involve a significant level of involvement by adjacent property owners.

PlaceWorks Concept (2022). This concept was proposed by PlaceWorks in coordination with the City in 2022. It proposes many similar improvements and considerations as the FOC Restoration Concept while maintaining the current alignment of the creek in order to reduce the challenges of private property encroachment. It results in no net rise in flood levels.

An alternative proposal by PlaceWorks, the Spring 2022 Concept, includes localized grading along some segments of the east bank to decrease slopes for a second, wheelchair-accessible trail (see Memo Appendix F within Appendix C for the full plan; also depicted left.) Like the FOC Restoration Concept, it extends over property lines and into the parking lots of multiple businesses and includes some widening of the east bank, though to a lesser extent as it introduces no meanders.

Both the Friends of Orinda Creeks and PlaceWorks proposals would require additional engineering and hydraulic analysis. They each would require earnest engagement with private property owners to accomplish. They should be seen not as mutually exclusive, but as a set of possibilities for the community to pursue as conditions allow to implement the most opportune and suitable elements of either. Consideration, for instance, might be given to a hybrid proposal that encroaches less into private properties but achieves more flood protection and sinuosity. The impacts and benefits of these plans can be explored holistically or, as opportunities for coordination arise in tandem with future redevelopment or other projects along the creek, by degrees. The benefits to the community in either scenario are clear and instrumental to building upon the character of Downtown Orinda.

2002 Urban Re-integration Plan

FOC Phase 1 Concept (2021; completed 2022)

FOC San Pablo Creek Resoration Plan (2019)

PlaceWorks Concept Spring 2022 (alternative proposal)

PlaceWorks Concept (2022)

4.5 FOC Concept (2019): Channel Realignment

This concept proposes a regrading of the creek channel to introduce meanders into the flow line and accommodate a creekside trail along the east bank of the creek. The concept would bring approximately 1,400 feet of the creek between the Safeway parcel (2 Camino Sobrante ) and the Chevron Station parcel (11 Orinda Way) closer to its pre1950's historical alignment and offer a diversified experience along the creek corridor. Regrading to accommodate the re-aligned channels would extend over property lines into the parking lots of multiple businesses, replacing portions of these surface parking lots adjacent to the creek with creek meanders and creek-related public access and programming.

The benefits for the community would be considerable. Failing concrete in the channel would be removed, boulder cascades constructed, and the banks stabilized. Bioswales alongside the northeast path would act as buffers against urban runoff. Hydraulic analysis by Questa Engineering in 2022 shows that this plan would result in a decrease in flood elevations within this area of the channel by two or more feet, thus improving flood resiliency for adjacent properties.

For public access, the plan proposes to include an Americans with Disabilities Act (ADA)-compliant trail along the east bank connected via a pedestrian bridge over the creek to a path on the west bank that winds through a riparian restoration zone. At the southeast portion of the proposed project area (behind 21 Orinda Way), a prominent creek access point could be accompanied by a creekside educational area.

Realignment of the creek bed and implementation of the creekside amenities would require the cooperation of multiple property owners who would need to agree to allowing portions of their parcels to be developed for the creek. The realignment of the channel would also potentially constrain development opportunities where the required

water channel setback - generally 45 feet from the top of bank - would tend to preclude most types of development within the setback. Still, the plan as proposed would not affect any existing structures with its impact limited to approximately one half-acre of surface parking lots, and so there may be opportunities for implementing segments of the plan on a case-by-case basis as opportunities arise. The primary strength of this plan over the PlaceWorks concept plan - the reduction in flood elevations - might still be achieved by removing or relocating some design elements such as the education center, or by reducing the meander of the creek.

Source:

https://restoresanpablocreek.org/the-project

Creek pedestrian bridges like this would improve accessibility to both sides of the creek and offer an overlook for the creek. Educational signage also helps establish a sense of place and pride.

Friends of Orinda Creeks,

Figure 4–3  FOC San Pablo Creek Restoration Plan (2019)

Source: Friends of Orinda Creeks

4.5.1 FOC Phase 1 Concept (2021): A Completed Project

In 2021, FOC proposed a creek improvement project for a 120-foot stretch of a Contra Costa County-owned portion of the channel (see Figure 4–4). This project cost approximately $157,000 to complete and wrapped up in October 2022. It represents a both a strong step toward improved conditions within the creek channel and a testament to the dedication of Orindans to San Pablo Creek restoration efforts.

Figure 4–4 FOC Phase 1 Concept - Site Plan (2022)

Source: Friends of Orinda Creeks

In October 2022, FOC efforts removed several sections of broken concrete sheeting and other deteriorated channel elements and introduced three boulder weirs approximately 47.5’ apart, creating three step pools that help improve riparian habitat conditions by slowing the flow and increasing the depth of water in these areas.

All images courtesy FOC. Find out more about this project at https://restoresanpablocreek.org/

Above, below New boulder weirs installed within the creek channel

Above, below Installation in progress

Above, below Broken concrete sheeting prior to project completion

4.6 Restoration Concept: Channel-aligned

In 2022, the PlaceWorks team developed a concept for San Pablo Creek Restoration through the project area (Figure 4–5). This concept results in no net rise in flooding projections and expands on the success of the FOC Phase 1 Restoration Concept for the channel by limiting the extent of channel grading to reduce encroachment on private property. It includes an Americans with Disabilities Act (ADA)-accessible trail on the east bank for creek access. A bridge connects the trail to a boardwalk along the western bank, below Camino Pablo Road. This concept also includes localized grading along some segments of the east bank to decrease slopes for the trail.

The PlaceWorks Concept 2022 proposes creek channel restoration features similar to the FOC Phase 1 Restoration Concept 2021 plan. Rock weirs are proposed to create step pools that facilitate fish movement, and the channel is kept within its existing alignment. Riparian restoration zones are included on the east bank near Santa Maria Way and on the west bank near the Safeway culvert to further enhance the existing habitat along the creek. Restoration activities include the removal of invasive exotic species and establishment of additional native tree, shrub, and groundcover species compatible with the riparian and upland conditions along the creek corridor. Generally, the channel maintains its original alignment and overall grade; however, the right bank is lowered so that it can facilitate a creek-side trail and enhanced floodplain connection - rather than pushing the trail farther back from the creek toward the adjacent properties. Overall, the plan does not add the sinuosity and flood level reduciton offered by the FOC Concept 2019 plan. Because of this, should opportunities arise to implement the elements or recommendations of this plan, channel reallignment as proposed in the 2019 plan should also be considered for either expanding upon the scope of this plan, or for enabling, where possible, the possibility for future enhancements.

Elements of this proposal are described over the next few pages. For further information, see Appendix C, San Pablo Creek Restoration and Trail Concept Memo.

Figure 4–5 PlaceWorks Concept 2022 - Site Plan

Source: PlaceWorks

4.6.1 Plan Elements

Creek Improvements

PlaceWorks’ proposed concept modifies and extends the FOC Phase 1 Concept (2021) rock weir approach south toward Santa Maria Way, maintaining the channel’s existing slope. It proposes creek bank and channel improvements, including removal of failing concrete and the placement of boulder weirs to stabilize the channel bed and create step pools that would facilitate fish movement. These elements are compatible with the hydraulic modeling scenario showing no net rise in flooding during major storms. Further geotechnical and stability investigations should be done to confirm the structural feasibility of modifying the concrete west bank.

Creekside Trail

In addition to the creek channel improvements, the concept proposes several public access improvements (see Figure 4–5). A creekside trail runs alongside the reach of the creek from Santa Maria Way to the culvert near the existing building at 31 Orinda Way, formalizing the existing informal footpath that has been established along much of the project reach. Stairs are proposed at both extremities to enter/exit the channel, as well as in two locations along the alignment. The creekside trail (Figure 4–6) is proposed to be of stabilized decomposed granite and would vary between four and six feet in width, as

needed, to protect existing trees. Stairs could be constructed of stone, concrete, or wood, with handrails where necessary. The boardwalk segment of the trail would require concrete piers, and would consist of a wooden support structure, a wood decking surface, and guardrails as needed. All trail segments would be constructed to be ADA accessible. This trail would provide formalized access to the creek and allow the public to enjoy this hidden gem of downtown Orinda, which is one of the key goals set forth in the ConnectOrinda plan. A future phase of the project could expand the trail network by installing a crosswalk across Camino Pablo at Santa Maria Way, connecting the San Pablo Creek trail to the de Laveaga trailhead and ultimately the Bay Ridge Trail.

Figure 4–6 Proposed Trail Locations

Source: PlaceWorks; City of Orinda Planning Department

The existing footpath winds through alders & redwoods above a drop off to the creek bed

Flat grade for the trail bed sits just above the creek and stone bank stabilization

At the edge of the parking lot, high above the creek at a steep section of the bank

Figure 4–7 PlaceWorks Concept 2022 - Section Looking South

Source: PlaceWorks

Optional Bridge and Boardwalk

An optional segment could include the addition of a clear span pedestrian bridge over the creek near the center of the reach, with a boardwalk along the western bank connecting south to Santa Maria Way. This would create a wheelchair-accessible segment that could be accessed from Santa Maria Way, or from the parking area near the proposed bridge. While several options for creating a pathway or boardwalk experience within the channel and closer to the creek were considered, the west bank has the benefit of less steep topography and greater bank channel stability due to existing revetment installed as part of past flood-control improvements. This would likely result in fewer impacts to resources as well as lower construction costs than a similar trail on

the east bank. This option also allows for a loop trail experience rather than an “outand back” segment. Further refinement of this optional trail segment would be necessary to minimize tree removal and ensure avoidance of nests of San Francisco dusky-footed woodrat observed along the east bank in the vicinity of the proposed crossing.

Seating and Furnishings

Carefully sited benches would create informal resting places along the corridor, providing access to the site’s natural character. Trash receptacles should also be located at key locations along the corridor to help ensure that litter is kept out of the creek channel and riparian areas. Site furnishing would be outside of the active channel.

Interpretive Signage

Interpretive signs would be in a few key locations along the corridor and would provide both wayfinding and interpretive information. Interpretive themes could include native riparian flora and fauna, and maps of the Orinda watershed, both current and historical. These may be developed through collaboration with City partners, including FOC, and coordinated with additional creek markers and signage in other areas of the downtown calling out undergrounded locations of the creek (see ConnectOrinda (2019) p. 29 for more details.)

Figure 4–8 Sample Creekside Boardwalk & Pedestrian Bridges

Left Cedar Mill Creek boardwalk; Center La Nana Creek Trail in Historic Nacodoches; Right Shabakunk Creek pedestrian bridge

brx0, Flickr via Wikimedia Commons Pictures of Historic Nacodoches Famartin, Wikimedia Commons

Riparian Habitat Improvements

The project would include restoration of disturbed areas with native riparian and wetland vegetation, expanding on the work already undertaken by FOC. Plantings should include only native trees, shrubs, and groundcovers.

These include the following species:

Trees

Coast live oak (Quercus agrifolia)

Valley oak (Quercus lobata)

White alder (Alnus rhombifolia)

Arroyo willow (Salix lasiolepis)

Red willow (Salix laevigata)

Oregon ash (Fraxinus latifolia)

Fremont cottonwood (Populus fremontii)

California buckeye (Aesculus californica)

Big leaf maple (Acer macrophyllum)

California black walnut (Juglans hindsii)

Shrubs and groundcovers

Elderberry (Sambucus nigra)

mountain mahogany (Cercocarpus betuloides)

pink flowering current (Ribes sanguineum)

coffeeberry (Frangula californica)

creek dogwood (Cornus sericea)

Douglas iris (Iris douglasiana)

monkey flower (Mimulus aurantiacus)

creeping wildrye (Leymus triticoides)

Additionally, the project should include ongoing removal and control of invasive exotic species, including, but not limited to, French broom (Genista monspessulana), cotoneaster (Cotoneaster pannosa), sweet fennel (Foeniculum vulgare), English ivy (Hedera helix), Cape ivy (Senecio mikanioides), Himalayan blackberry (Rubus armeniacus), eucalyptus (Eucalyptus spp.), wild plum (Prunus cerasiformis), and periwinkle (Vinca major).

Additional creek and habitat protection measures should include the following:

Controls shall be used during construction to minimize disturbance to aquatic habitat, nesting birds, and known or possible presence of special-status species, as discussed previously. Construction controls shall include dewatering the construction reaches, preconstruction clearance surveys for nesting birds and special-status species, worker training and monitoring by a qualified biologist, and compliance with all conditions imposed by regulatory agencies.

4.6.1 Potential Funding Sources

The San Pablo Creek habitat and public access improvements may be eligible for several grants, including:

Urban Streams Restoration Program. This program is funded by the California Drought, Water, Parks, Climate, Coastal Protection, and Outdoor Access For All Act of 2018 (Proposition 68) and the Safe Drinking Water, Water Quality and Supply, Flood Control, River, and Coastal Protection Bond Act of 2006 (Proposition 84). Grants may fund community-supported creek and stream projects, including bank stabilization and revegetation, channel improvements, daylighting and natural flood-control projects, land purchase to allow for floodplain reconnection or flood control, and others.

https://www.grants.ca.gov/grants/urban-streams-restoration-program

CDFW Proposition 1 and Prop 68 Restoration Grants. Prop 1 authorizes $7.12 billion in general obligation bonds for a wide range of water-related projects, including grants for multi-benefit ecosystem and watershed protection and restoration projects. Prop 68 authorizes $4.1 billion for state and local parks, natural resources protection, climate adaptation, water quality, and flood protection. CDFW administers the Prop 1 and Prop 68 Restoration Grant programs, which can fund aquatic and riparian habitat and watershed improvement projects.

https://wildlife.ca.gov/Conservation/Watersheds/Prop-68

https://wildlife.ca.gov/Conservation/Watersheds/Restoration-Grants

Urban Greening Grant Program. Revenues from California’s Cap and Trade program are used to fund Urban Greening Grants. These grants are awarded to green infrastructure projects that reduce greenhouse gas emissions and provide multiple benefits. https://files.resources.ca.gov/grants/urban-greening

California Department of Parks and Recreation (State Parks) Grants. California State Parks offers many grants for local, state, and nonprofit use, administered by the Office of Grants and Local Services (OGALS). Projects eligible for these grants include nature interpretation programs to bring urban residents into park and wildlife areas, habitat protection, and development of wildlife corridors and trails.

https://www.parks.ca.gov/?page_id=29752

Federal Land and Water Conservation Fund (LWCF). This fund can be used to reimburse development costs for outdoor recreation areas and facilities. The funds provide matching grants to cities and counties seeking funds covering up to 50 percent of project costs.

www.parks.ca.gov/default.asp?Page_id=21360

Wildlife Conservation Board (WCB) Grants. WCB grants may fund projects in the following areas: enhancing biodiversity, climate change resiliency and connectivity, habitat improvements, riparian conservations, conserved or enhanced water-related projects, and/ or enhanced public access.

https://wcb.ca.gov/Grants

4.6.2 Implementation and Next Steps

The following steps can be taken to help move toward implementation of the proposed creek improvements.

Pursue Property Owner Consent / Easements

As part of further developing the proposed design concept, additional research into property ownership and easements would be necessary. Owners of private property that may be impacted by creek or trail improvements would need to be informed and consulted, with potential City facilitation, to provide input and work as a group toward future implementation. Current easements may allow for improvements, or new agreements may be needed to allow for access and construction activities on creek-adjacent parcels.

Advance Design

Construction documents should be developed for the trail, creek channel improvements, and restoration plantings. Channel improvements, such as rock weirs and bank stabilization, should be refined to minimize tree removal or damage. As part of advancing the proposed concept and developing schematic design (35 percent), the City should continue to coordinate with the FOC.

Community and City Council Design Presentation

Public engagement should be conducted to seek input from additional stakeholders and the community regarding design elements and details, including furnishings and materials.

Pursue Environmental Review and Permitting

Once a schematic design concept has been developed, it would be necessary to conduct a project-level environmental review for the creek improvement project under CEQA and seek necessary permits from natural resource agencies, including the RWQCB, Corps, and CDFW.

Establish Construction Timing and Protocols

As part of permit applications and approvals, the project construction window would need to be identified. Construction protocols should include completing any required preconstruction surveys and following City and natural resource agency permits and guidance for construction timing and resource protection.

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5.1.1 Purpose

This chapter provides an evaluation of the impacts of development that would occur as a result of the Downtown Precise Plan on utilities, services, and infrastructure. This chapter identifies potential improvements that would be needed to accommodate future development. This impact analysis is a summary of DPP-specific findings within the Environmental Impact Report (EIR) that was produced to analyze the environmental effects of the DPP, the 6th Cycle Housing Element update, and the Safety Element update. For more detailed information regarding the environmental and services impacts of development in the DPP Plan Area, see the Plan Orinda Environmental Impact Report hosted at www.planorinda.com/ceqa.

This chapter also includes a discussion of the existing PG&E transmission lines that traverse through the Village District and briefly examines community considerations regarding development constraints imposed by these transmission lines.

5.2 Impact Analysis: Utilities & Infrastructure

5.2.1 Water supply

Existing conditions

The City of Orinda is served by existing East Bay Municipal Utility District (EBMUD) potable water facilities. These facilities consist of a network of reservoirs, aqueducts/pipelines, water treatment plants, pumping plants, and other distribution facilities serving a 332-squaremile area of the San Francisco Bay Area East Bay region. Approximately 90 percent of the raw water entering EBMUD’s system originates from the Mokelumne River watershed and approximately 10 percent originates from the protected watershed lands in the East Bay Area.

EBMUD’s current water supply is sufficient to meet water demands during normal, single dry, and second dry year demands through 2050. However, current water supply would not be sufficient to meet water demands during third dry years. Therefore, during multi-year droughts when the Mokelumne River and local runoff alone cannot meet projected customer demand, EBMUD signed a contract with the US Bureau of Reclamation providing for delivery of additional water supply.

Project impact

On water supply. The DPP would facilitate the addition of an estimated 4,530 residents in the city, which would exceed Association of Bay Area Governments (ABAG) 2031 population projections by 4,148 people. Because EBMUD uses ABAG population projections to determine its future service populations, the DPP would also incrementally exceed the EBMUD’s estimated 2031 service population of 1,554,800 by approximately 4,148 people, or approximately 0.3 percent. However, this increase would be negligible (less than one percent increase) and would be accounted for as the UWMP does not factor in anticipated levels of additional conserved and recycled water into its planning level of water demand.

Furthermore, CALGreen requires a 20 percent reduction in residential indoor water use that would also lower potential water demand. The EBMUD service area has a water reduction goal of 52.5 gallons per capita per day by 2025 and an additional 50 gallons per capita per day by 2030. Therefore, while development facilitated by the DPP would result in additional population beyond the EBMUD projected population, compliance with CALGreen would reduce per capita water use and would be within the targeted 52.5 and 102.5 gallons per capita per day.

Consequently, the DPP would not result in construction or relocation of water facilities such that significant environmental impacts would result.

Environmental impact of increasing the water supply demand. Development facilitated by the project may require the installation of additional water main lines, lateral connections, and hydrants within the DPP area; however, such facilities would be installed during individual project construction and within the disturbance area of such projects or the rights-of-way of previously disturbed roadways. Therefore, the construction of these infrastructure improvements would not substantially increase the DPP’s disturbance area or otherwise cause significant environmental effects beyond those already identified throughout the EIR.

5.2.2 Stormwater

Existing conditions

Stormwater in Orinda is conveyed via a combination of privately owned storm drainage improvements and a storm drainage system managed by the City of Orinda’s Public Works and Engineering Services Department. Storm drain inlets tie into the City’s storm drainage infrastructure and convey stormwater underground along State Route (SR) 24 toward downtown, until discharging into San Pablo Creek just north of SR 24. Recently funded projects in the City’s Capital Improvement Program include storm drain improvements.

Due to the city’s hilly terrain, stormwater tends to flow quickly downstream and out of the city. Stormwater drainage infrastructure capacity issues are generally related to the age and condition of the storm drain lines and not the rate or volume of flow from development.

The City complies with the Municipal Regional Stormwater Permit (MS4), issued by the Regional Water Quality Control Board in 2009, for its stormwater pollution protection. The MS4 requires local agencies in Contra Costa County to incorporate stormwater controls in development projects, and provides specific guidelines on design measures, source controls, stormwater treatment measures, hydromodification management, and construction site controls. The City also implements a comprehensive storm water program as required by the Federal Clean Water Act through the Contra Costa Clean Water Program. The program is designed

to reach residents and businesses in the city with the overall goal of reducing storm water pollutants that enter the storm drain system and minimize potential water quality impacts to nearby water bodies.

Project impact

Development facilitated by the DPP would occur in developed areas that are served by the existing stormwater system and storm drains. Additional storm drains and system connections necessary to serve development would generally be installed

within the already disturbed rights-of-way of existing roads or within the disturbance footprints of DPP projects. As such, the construction of stormwater drains and improvements would not substantially increase the DPP’s disturbance area or otherwise result in significant environmental effects. Furthermore, completion of capital storm drain improvement projects within the Plan Area would ensure adequate stormwater system capacity to serve development facilitated by the DPP.

Figure 5–1 San Pablo Creek culvert

The San Pablo Creek is integral to the City's storm drainage infrastructure not only for Downtown, but for much of the City.

5.2.3 Wastewater

Existing conditions

The City of Orinda is served by existing Central Contra Costa Sanitary District (CCCSD) wastewater treatment facilities. The CCCSD operates a 1,500-mile network of collection system pipes, 19 pumping stations, and a treatment plant. The City of Orinda houses one CCCSD force main as well as a system of gravity sewers. Additionally, 11 CCCSD pump stations are located within the City of Orinda, three of which are privately owned. The CCCSD identifies existing infrastructure needs such as improvements to the Orinda Crossroads pump station as well as gravity sewers throughout the CCCSD collection system. These improvements are included in the Capital Improvements Program which identifies the cost of the improvements.

The wastewater generated in the city is conveyed to the Martinez CCCSD treatment plant, which is a conventional air-activated sludge facility that provides secondary treatment. Final treated effluent is disinfected and conveyed by a 3.5-mile underground outfall pipeline to the Suisun Bay shoreline as a deep-water outfall. A portion of the wastewater treated by the treatment plant is further treated to produce around 550 million gallons per year of recycled water for landscape irrigation at schools, parks, businesses, golf courses, medians, toilet flushing, and truck washing. The plant’s permitted design capacity was developed to accommodate buildout in the CCCSD’s service area and would be sufficient to treat buildout flows through 2040. The treatment plant is

currently undergoing capital improvement projects within its Capital Improvement Program to improve service.

Project impact

Development facilitated by the DPP would not result in construction or relocation of wastewater treatment facilities such that significant environmental impacts would result. Such development may require the installation of upsized sewer lines and additional lateral connections within the city. Sewer laterals and main extensions necessary to serve development would generally be installed within the already disturbed rights-of-way of existing roads or within the disturbance footprints of such projects. As such, the construction of these infrastructure improvements would not

substantially increase the DPP’s disturbance area or otherwise result in significant environmental effects.

Applicants for development facilitated by the DPP would be responsible for constructing on-site wastewater treatment conveyance systems and paying standard sewer connection fees, as necessary. Development facilitated by the DPP would also be required to comply with Implementation Policy A and Implementation Policy D of the Orinda General Plan, which would require development projects to contribute to the improvement of water and wastewater systems. Therefore, the DPP would not require or result in the relocation or construction of new or expanded wastewater treatment facilities.

What am I?

Source: Orinda Planning Department (left); CCCSD (right)

The Orinda Crossroads pump station, located along Camino Pablo just south of Theatre Square, is Central Sanitation's largest pump station, with a capacity to pump nearly 25 million gallons of wastewater per day. The facility was built in 1959 and was recently upgraded from diesel pumps to an electric pump system.

Furthermore, completion of ongoing capital improvement projects within the CCCSD treatment plant would ensure adequate capacity to serve projected demand from development facilitated by the DPP in addition to the provider’s existing commitments. The DPP would facilitate development that would increase the 2031 population of Orinda by 0.3 percent over the ABAG 2031 projected population. Accordingly, wastewater generation would be expected to increase by approximately 0.12 million gallons per day (mgd) over 2031 projected wastewater generation. This increase in wastewater would be incremental and well within the CCCSD treatment plant’s capacity of 54 mgd. Therefore, the CCCSD would have sufficient capacity to accommodate wastewater generated by the DPP.

5.2.4 Telecommunications

Existing conditions

Telecommunications services in Orinda are provided by private companies, including AT&T and Comcast Cable. The telecommunications provider used by residents and businesses in Orinda is subject to the user’s discretion. Telecommunications facilities are generally available throughout the city.

Project impact

Project implementation would require connections to existing adjacent utility infrastructure to meet the needs of site residents and tenants. Based on the availability of existing telecommunications infrastructure throughout the DPP area, construction of new telephone and cable lines would not be required, and these sites would be able to connect to existing infrastructure. Development facilitated by the project would also be required to adhere to applicable laws and regulations related to the connection to existing telecommunication infrastructure.

5.2.5 Electricity & natural gas

Existing conditions

Pacific Gas and Electric (PG&E) is the electricity and natural gas provider for the city. In conjunction with the utility companies, the California Public Utilities Commission (CPUC) regulates energy conservation programs.

Project impact

Development facilitated by the DPP would require connections to existing electrical transmission and distribution systems on site to serve development facilitated by the project. This service would be provided in accordance with the rules and regulations of PG&E on file with and approved by CPUC. Based on the availability of existing electrical infrastructure in the DPP area, it is not anticipated that the construction of new electrical transmission and distribution lines would be required, and these sites would be able to connect to existing infrastructure. Development facilitated by the project would also be required to adhere to applicable laws and regulations related to the connection to existing telecommunication infrastructure.

5.2.6 Solid waste

Existing conditions

The Central Contra Costa Solid Waste Authority (RecycleSmart) is a joint powers agency created by the cities of Lafayette, Orinda, Walnut Creek, and the towns of Danville and Moraga. RecycleSmart provides residential and commercial solid waste and recycling services to the project area. RecycleSmart contracts under franchise agreements with Republic Services for the collection, transfer, and disposal of residential and commercial recycling, organics, and landfill materials and with Mt. Diablo Resource Recovery for the processing of recyclables. Solid waste is disposed of at the Keller Canyon Landfill located approximately 14 miles northeast of Orinda in Pittsburg. Recyclables are processed at the Mt. Diablo Recycling Center located approximately 10 miles northeast of Orinda in Pittsburg. Franchised green materials and home food scrap organic materials are processed at the West County Resource Recovery Facility operated by Republic Services, Inc. located approximately 11 miles west of Orinda in Richmond. Commercial food waste is preprocessed at the Contra Costa Transfer Station operated by Republic Services, Inc. located approximately 8 miles northeast of Orinda in Martinez.

Project impact

The DPP would facilitate the development of up to 1,618 housing units. Based on a solid waste generation rate of 5.31 pounds per dwelling unit per day, the DPP would generate an estimated 8,582 pounds of solid waste per day. This would equate to approximately 1,566 tons per year. This would account for less than approximately 0.01 percent of the remaining capacity of the Keller Canyon Landfill. Therefore, development facilitated by the project would not generate solid waste in excess of the capacity of local solid waste infrastructure.

Standards in Orinda Municipal Code establish minimum waste diversion levels. Section 15.10.010 adopts the most recent

version of CALGreen, which contains construction waste recycling requirements. Furthermore, AB 939 requires the City to divert 50 percent of solid waste from landfills, while SB 1383 requires a 75 percent reduction in statewide disposal of organic waste from 2014 levels by 2025, which would further reduce the amount of solid waste disposed at Keller Canyon Landfill. Local infrastructure would have the capacity to accommodate solid waste generated by the project. Development facilitated by the project would also be required to demonstrate compliance with all applicable regulations. Compliance with applicable solid waste regulations and with Orinda Municipal Code standards would maintain or improve upon diversion rates.

5.3 Impact Analysis: Services

5.3.1 Fire protection

Existing conditions

The Moraga-Orinda Fire District (MOFD) provides fire protection and emergency medical services to Orinda. This service area represents 42 square miles and approximately 38,500 residents. The MOFD operates five fire stations including five paramedic engine companies, one (cross-staffed) paramedic truck company, four paramedic ambulances (three crossstaffed), and one Battalion Chief. MOFD is an “all-risk” fire service agency with 64 regular employees, six temporary employees, 30 volunteers, and 5 Board of Directors members. Primary service to

downtown sites is provided by Fire Station 45, which is located at 33 Orinda Way and staffs four firefighters and one Chief Officer. MOFD’s goal for staffing is reviewed each budget cycle and considers historical and current year information related to fire and emergency services. MOFD responds to over 3,000 incidents annually. MOFD provides Advanced Life Support care within 6 minutes of notification, approximately 90 percent of the time. MOFD’s annual budget is 27.9 million dollars, funded through property taxes. The Fire Marshall currently deems crews and equipment adequate, although response times in certain areas of the city have response times greater than six to eight minutes and fires may commit all firefighters on duty.

Project impact

Development facilitated by the DPP would add an estimated 4,503 residents to the City, increasing Orinda’s population from approximately 19,078 to 23,608 persons. This population increase would incrementally increase demand for fire protection services.

Development facilitated by the DPP would increase calls for service in Orinda’s downtown area near the BART station for issues including, but not limited to,

emergency medical service, structure fires, and traffic collisions. The direct effect on the MOFD would include evaluation of staffing and resource deployment to accommodate the increase in call volume throughout the community, primarily from Fire Station 45. Full-scale development facilitated by the DPP is projected to induce about 324 annual incidents. Since sites within the DPP project area are within MOFD’s existing service area and are accessible within one mile of the nearest fire station, emergencies on these sites would generally be responded to within current response times and would not require construction of a new fire station.

Furthermore, General Plan Policies 4.2.1.A, 4.2.2.F, 4.2.2.G, and 5.4.2.B are intended to reduce fire risk in the City by encouraging fire protection and prevention education, development of an ordinance that requires fire protection features, and response to all structural fires with three engine companies. MOFD receives its funding through property taxes and fees for service and may fund expanded services as new development occurs. Development within the DPP area would be required to pay fire protection development impact fees, which would fund additional facilities, staff resources, equipment, and environmental impact as needed.

5.3.2 Police protection

Existing conditions

The Orinda Police Department (OPD) provides police services to the City of Orinda through a contract with the Contra Costa Office of the Sheriff. Police headquarters are located at 22 Orinda Way. OPD consists of 14 employees, including one Lieutenant, two Sergeants, 10 deputies, and one Senior Administrative Assistant. The staffing level has not changed substantially over the last 20 years. Orinda police personnel serve approximately 16,681 people over 12.7 square miles.

The Contra Costa County Office of the Sheriff service area represents 715 square miles and approximately 1 million residents. The Sheriff’s Office responds to over 600,000 service calls annually, of which 60,000 are 9-1-1 calls. The response time in Orinda in 2021 was between 3:02 minutes and 7:11 minutes.

Additional policing of the DPP area is undertaken by the Bay Area Rapid Transit (BART) Police Department. The BART Police Department serves as the primary law enforcement authority for the BART District. BART Police Department has adopted a Zone Geographical Policing Structure. There are six zones, each one commanded by a Zone Lieutenant with a team of Patrol Sergeants, Police Officers, and Community Service Officers who are all responsible and accountable for providing 24/7 service to their areas within the BART District. BART Police Department’s goal for emergency response time is 5 minutes; average emergency response times in 2017 were between 6.25 and 6.5 minutes. The Orinda BART station is in Zone 2C of the BART District.

Project impact

Development facilitated by the DPP would add an estimated 4,503 residents to the City, increasing Orinda’s population from approximately 19,078 to 23,608 persons. This population increase would incrementally increase demand for police protection services. Based on OPD’s current staffing level of 13 sworn officers, the OPD’s officer/resident ratio would drop from 0.66 to 0.55 officers per 1,000 residents for the DPP area. The OPD would anticipate approximately an additional 1,200 calls to the OPD from development facilitated by the DPP annually.

General Plan Policy 5.4.2.C encourages the provision of capital facilities sufficient to maintain an average two-beat minimum patrol configuration. OPD currently maintains two beats, patrolled by at least one officer per beat. Additionally, the DPP area would be served by the BART Police Department, which would provide support for OPD should they be unable to fully serve the DPP area at an average two-beat minimum. Expanded police facilities would not be necessary to serve development facilitated by the project due to the location of existing facilities and current service ratios and response times.

5.3.3 Schools

Existing conditions

The Orinda Union School District (OUSD) operates four elementary schools (grades K-5) and one middle school (grades 6-8). OUSD’s overall enrollment for the 20212022 school year was 2,489 students. The schools operated by OUSD include Wagner Ranch Elementary, Glorietta Elementary School, Del Rey Elementary School, Sleepy Hollow Elementary School, and Orinda Intermediate. In addition, the Acalanes Union High School District (AUHSD) operates four high schools (grades 9-12), an alternative school (grades 9-12), and an Adult Education school. AUHSD’s overall enrollment for the 2021-2022 school year was 5,467 students. Miramonte High School is operated by AUHSD and is the only high school located in Orinda.

OUSD prepared a Facilities Master Plan in 2017, which includes projections for enrollment in the 2024-2025 school year. Between 2014 and 2021, enrollment at OUSD and AUHSD has been steady, with enrollment decreasing by 2 percent at OUSD and increasing by 2.5 percent at AUHSD.

Project impact

Development facilitated by the DPP would add an estimated 4,503 residents to the City, increasing Orinda’s population from approximately 19,078 to 23,608 persons. This population increase would incrementally increase demand for police protection services. Based on OPD’s current staffing level of 13 sworn officers, the OPD’s officer/resident ratio would

drop from 0.66 to 0.55 officers per 1,000 residents for the DPP area. The OPD would anticipate approximately an additional 1,200 calls to the OPD from development facilitated by the DPP annually.

General Plan Policy 5.4.2.C encourages the provision of capital facilities sufficient to maintain an average two-beat minimum patrol configuration. OPD currently maintains two beats, patrolled by at least

one officer per beat. Additionally, the DPP area would be served by the BART Police Department, which would provide support for OPD should they be unable to fully serve the DPP area at an average two-beat minimum. Expanded police facilities would not be necessary to serve development facilitated by the project due to the location of existing facilities and current service ratios and response times.

Figure 5–2 Orinda Union School District Office

The OUSD office is located in the Project Area at 8 Altarinda Road.

5.4  Power Lines: A Development Constraint

Two sets of parallel high-voltage electric transmission lines run through downtown. These transmission lines ultimately connect to the Sobrante (Bear Creek Road) and Moraga (Los Valley) Pacific Gas and Electric (PG&E) substations. The two transmission lines measure approximately 2,262 feet and 2,370 feet in length, measured from the tower adjacent to the Highway-24 west off-ramp to the Country Club golf course at the corner of Orinda Way and Camino Sobrante.

PG&E maintains an easement that starts from the centerline of the transmission lines and extends 25 feet on either side. The construction of any structure within the easement is prohibited. PG&E maintenance crews must have unobstructed access to the transmission towers and lines for any maintenance or repairs to the power lines. Uses within the easement are limited to surface uses including landscaping and surface parking.

The information presented in this section has been collected through existing City records, internal meetings with PG&E representatives in 2019 and 2020, and a Downtown Planning Subcommittee held on June 10, 2021.

Figure 5–3 Power Line Locations in the Downtown

Source: Orinda Planning Department

5.4.1 Rerouting transmission lines

The topic of rerouting the transmission lines as part of downtown planning efforts has discussed multiple times over the past fifteen years. In early 2005, the City contacted PG&E inquiring about the process for a feasibility study to reroute the transmission lines. The idea would involving relocating the PG&E lines and associated infrastructure west of Camino Pablo, adjacent to East Bay Municipal Utility District’s (EBMUD) Siesta Valley Recreation Area, between the intersections of Camino Pablo and Santa Maria Way and Camino Pablo and Camino Sobrante. The idea would also involve undergrounding the lines on Camino Sobrante between Camino Pablo to the west and Orinda Way to the east before reconnecting above ground at the Orinda Country Club golf course.

Following discussions, PG&E provided a draft Transmission Line Relocation Study Plan to the City in April 2005. For a cost of $25,000, the relocation study would:

1. Evaluate the proposed route to identify potential construction, maintenance and environmental issues, and

2. Develop cost estimates for the construction of the relocated sections of the lines and for the removal of the existing lines.

No action was taken by the City following receipt of the draft study.

In 2008, the topic of rerouting the transmission lines was raised again. At the February 19, 2008 City Council meeting,

the Council discussed a request by a Councilmember to study the feasibility of relocating the transmission lines in the Village District. The Council directed staff to contact PG&E to obtain further details of initiating such a study. At the March 18, 2008 City Council meeting, staff shared their findings with the Council as a policy matter. PG&E estimated the cost for the relocation study would be approximately $50,000. Several residents provided written correspondence and spoke at the meeting in opposition to spending $50,000 of the City’s budget on a relocation study. In addition, multiple residents of the El Toyonal neighborhood opposed the location of the rerouted lines due to potential view impacts. Following public comments and discussion, the Council

voted to table the discussion and suspend the item indefinitely.

The City re-engaged with PG&E regarding rerouting of the transmission lines during the ConnectOrinda process in 2019. The rerouting discussions with PG&E in 2019 were related to a potential pedestrian bridge that would cross overhead above Highway 24 and would potentially require the rerouting of Sobrante-Moraga power line, as referred to in the Relocation Study.

On June 10, 2021, a Downtown Planning & Housing Element Subcommittee meeting was held to discuss the transmission lines as it relates to the Downtown Precise Plan. PG&E representatives were in attendance to answer questions regarding cost, feasibility and constraints.

This graphic shows a proposed realignment of Downtown transmission lines. It was prepared by an Orinda resident for a June 2021 community workshop.

5.4.2 Undergrounding transmission lines

Conversion of the existing overhead transmission lines to underground has also been raised numerous times. Undergrounding the transmission lines, whether it would be within the easement alignment or realigned to an alternative location, would be the most costly option. According to PG&E representatives at the June 10, 2021 Subcommittee meeting, undergrounding transmission lines is significantly more expensive than aboveground transmission lines, with a projected cost of $100,000 - $250,000 per foot. This cost would include engineering design and approval, but would not include land acquisition and right-of-way costs that are subject to market value.

Transmission lines that are undergrounded would require the same 25’ easement as above-ground transmission lines. Construction within the easement would still be prohibited in order to allow maintenance to the underground lines. Other than the reduced visual impact of the transmission towers and lines and the reduced fire risks, there would be minimal benefit to undergrounding the transmission lines.

5.4.3 Transmission line relocation process

To proceed with a further analysis of rerouting or undergrounding the transmission lines, the City would need to complete the study agreement for the Transmission Line Relocation Study. The relocation study would need to be finalized between PG&E and the City with updates to the cost of the study, schedule, and scope. Following the findings of the study, the City would be able to make a more informed decision regarding next steps.

The California Public Utilities Commission (CPUC) regulates privately owned electric, natural gas, telecommunications, water, railroad, rail transit, and passenger transportation companies, in addition to authorizing video franchises. Any modification to the transmission lines would require the approval of the CPUC.

The most costly aspects of the transmission lines relocation would be the relocation itself. Other additional considerations would include:

Easements

If the transmission lines are rerouted, whether it be undergrounded or aboveground, this process would require a new easement. If the lines traverse across private property, this would require negotiations with property owners for easement rights.

Vegetation Abatement

Any vegetation within the easement or adjacent to the easement would likely need to be removed per vegetation abatement requirements.

CEQA

An Environmental Impact Report (EIR) will be required for transmission lines relocation.

Removal of Existing Alignment

The cost of removal of the existing transmission towers and lines would also be the responsibility of the City.

Rule 20A Program

The CPUC Rule 20A Overhead Utility Conversion Program was established in 1967 to fund the undergrounding of overhead electric utilities where it would be in the public interest. Rule 20A projects are typically in areas used by the general public and are paid for by customers through future electric rates once the project is complete. Projects under Rule 20A are nominated by a local jurisdiction and discussed with PG&E and other utility agencies. Funds through Rule 20A apply only to distribution lines and could not be used for the transmission lines downtown.

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Placeholder for the future adoption of Appendix A - Objective Design Standards.

Chapter 6 Placeholder: Objective Design Standards

January 31, 2023