Moraga 2002 General Plan
i June 2002
1 Introduction
Purpose of the General Plan................................................. 1- 1
Area Covered by the Plan ................................................... 1- 2
Organization of the General Plan......................................... 1- 3
Mandated and Optional Elements........................................ 1- 4
How the Plan Was Developed ............................................. 1- 5
Reviewing, Amending and Managing the Plan ……........... 1- 6
Relation to Other Documents............................................... 1- 8
General Plan Background Report and EIR .......................... 1- 10
2 Values and Guiding Principles
Community Values .............................................................. 2- 1
3 Land Use
LU1 Residential ................................................................... 3- 1
LU2 Commercial.................................................................. 3- 7
LU3 Community Focal Points ............................................. 3- 9
LU4 Institutional Uses ......................................................... 3- 12
LU5 Agriculture................................................................... 3- 14
LU6 Bollinger Canyon Special Study Area ........................ 3- 14
4 Community Design
CD1 Natural Setting ............................................................ 4- 1
CD2 Public Places ............................................................... 4- 5
CD3 Scenic Corridors ......................................................... 4- 6
CD4 Single Family Neighborhoods .................................... 4- 9
CD5 Multi- Family Residential Developments .................... 4- 11
CD6 Commercial Areas ...................................................... 4- 12
CD7 Historic Resources ...................................................... 4- 16
5 Housing
H1 Housing and Neighborhood Quality ............................. 5- 1
H2 Housing Mix and Affordability .................................... 5- 2
H3 Special Housing Needs ................................................. 5- 4
Quantified Objectives ( 1999– 2006).................................... 5- 5
6 Circulation
C1 Traffic Circulation and Safety ...................................... 6- 1
C2 Regional Coordination................................................... 6- 4
C3 Commercial Area Traffic and Parking ......................... 6- 5
C4 Pedestrians, Bicycles and Transit.................................. 6- 6
7 Open Space and Conservation
OS1 Open Space Preservation............................................ 7- 1
OS2 Environmental Quality ............................................... 7- 4
OS3 Water Quality and Conservation ................................ 7- 6
Moraga 2002 General Plan
ii June 2002
OS4 Air Quality .................................................................. 7- 8
OS5 Energy Conservation................................................... 7- 10
OS6 Noise ........................................................................... 7- 11
8 Public Safety
PS1 General Public Safety.................................................. 8- 1
PS2 Police Services ........................................................... 8- 3
PS3 Fire Safety and Emergency Services........................... 8- 4
PS4 Seismic and Geologic Hazards.................................... 8- 7
PS5 Flooding and Streambank Erosion ............................. 8- 11
9 Community Facilities and Services
FS1 Town Administration ................................................. 9- 1
FS2 Schools........................................................................ 9- 2
FS3 Parks and Recreation................................................... 9- 3
10 Growth Management
GM1 Growth Management................................................. 10- 1
11 Action Plan
Implementing Programs for the Moraga 2002 Plan ........... 11- 1
A. General Programs........................................................... 11- 2
B. Ordinances...................................................................... 11- 4
C. Development Review ..................................................... 11- 8
D. Codes and Enforcement ................................................. 11- 11
E. Design Guidelines .......................................................... 11- 12
F. Other Guidelines and Standards....................................... 11- 17
G. Ongoing Programs ......................................................... 11- 18
H. Housing Specific Programs............................................. 11- 20
I. Circulation Specific Programs ......................................... 11- 22
J. Open Space Specific Programs ....................................... 11- 23
K. Special Plans and Projects.............................................. 11- 24
L. Intergovernmental Coordination .................................... 11- 27
M. Public Information and Education................................. 11- 30
Appendixes
A. General Plan Diagram
B. Specific Plan Area Diagrams
C. Residential Development Potential
D. Definitions
E. Text of the Moraga Open Space Ordinance ( MOSO)
F. Action Plan Summary: Schedule, Responsibilities,
Financing and Quantified Objectives
June 2002 1- 1
1 INTRODUCTION
Purpose of the General Plan
A Statement of Community Values and a Shared Vision
The Moraga 2002 General Plan is a statement of community values and priorities. It describes the
type of community we want to be in the future and sets forth goals, policies and action programs
across a range of issue areas to help us achieve our aims. It also describes how the General Plan
should be managed over time and identifies near- term priorities for putting the General Plan into
action.
A Strategic, Pro- Active Planning Tool
The Moraga 2002 General Plan is a strategic tool for guiding the Town’s physical development. It
is based on a comprehensive understanding of the issues that we face and a clear sense of what we
hope to accomplish. It has been developed with the extensive involvement of community
members who have helped identify key planning issues; evaluate alternative planning strategies;
and define the key policy directions to guide the Town successfully into the new millennium.
A Guide for Land Use and Development Decisions
The General Plan guides the Town’s long- term development by establishing the overall policy
framework for development decision- making. As the Town faces tough development decisions,
the Moraga 2002 General Plan will serve as a guide to ensure that each decision is made in the
best interest of the Town’s long- term future. It provides guidance for the preparation of specific
plans, implementing ordinances, development policy statements, and ongoing planning activities.
The General Plan should be followed as closely as reason and justice make practical and possible.
If a project is proposed that is considered inconsistent with the General Plan, then the project
must be either modified or denied, or the General Plan must be amended.
A Balanced Approach
The goals, policies and action programs contained in the General Plan establish clear community
priorities and development policies to ensure the protection of public health, safety and welfare
and to further community goals while respecting the needs of individual property owners and
businesses in the Town. The Plan does not take any land for public purposes or place a cloud on
the title to any property or require that any property be sold or dedicated to the public.
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1- 2 June 2002
The General Plan also recognizes that many factors beyond the Town’s control will have
significant influence over future development activities. These include market forces that drive
private development decisions, as well as the land use and transportation decisions taken by other
jurisdictions. The General Plan acknowledges and responds to these factors in its policies and
action programs.
A Living Document and Action Plan
The Moraga 2002 General Plan has been written and designed to provide a user- friendly resource
for Town staff and officials, property owners, developers, and residents. To ensure the Plan’s
usefulness and relevance over time, the Plan includes policies and programs regarding its ongoing
management and coordination. Also, to ensure a close link between the long- term perspective of
the Plan and near- term actions, the General Plan defines action programs across the full range of
issue areas in a consolidated ‘ Action Plan’ ( Chapter 11) and identifies implementation priorities
to respond to pressing issues and special planning needs ( Appendix F). It is expected that the
Action Plan and implementation priorities will be reviewed on an annual basis to monitor
achievements and identify new implementation priorities.
A State Law Requirement
All local government jurisdictions in California are required to have a General Plan, and to keep it
up to date. The previous Town of Moraga General Plan was adopted in 1990. The current update
brings the Plan into conformance with changes in State law and other legal requirements; reflects
changes in local issues and conditions over the past ten years; incorporates the most recent
projections and assumptions regarding future growth; and responds to the issues, challenges and
opportunities created by recent trends and developments.
Area Covered by the Plan
The Moraga 2002 General Plan provides a comprehensive, integrated and internally consistent
statement of Moraga’s development policies. It covers all lands located within the Town limits as
well as the Town’s Sphere of Influence area.
The Sphere of Influence is ‘ the probable ultimate physical boundaries and service area of a city or
district as approved by the Local Agency Formation Commission of the County’ ( Government
Code Section 56076). The Town Limits and Sphere of Influence area are illustrated in the General
Plan Diagram ( Appendix A).
The General Plan Diagram also identifies the Contra Costa County Urban Limit Line ( ULL) in
relation to the Town Boundary. County voters adopted the ULL in 1990 to preserve agricultural
and open space uses in the County. The ULL was established based on a 65/ 35 Land Preservation
Plan, which seeks to preserve at least 65 percent of all land in the County as agriculture, open
space, wetlands, parks and other non- urban uses. Large- scale development is prohibited on lands
outside the ULL under the County’s General Plan. However, public facilities such as educational
institutions ( including Saint Mary’s College, which is located outside the ULL boundary) are
exempt from the ULL restrictions.
Moraga 2002 General Plan Introduction
June 2002 1- 3
Because of Moraga’s geographic location and limited roadway access, the Moraga General Plan
is also concerned with issues that extend beyond its boundaries and Sphere of Influence. This
larger area of interest is generally defined as including those lands that ( a) can be seen from
Moraga; ( b) provide access to Moraga; ( c) have their primary source of access through Moraga;
( d) may contain uses that significantly affect the air, water or other environmental quality of
Moraga; and/ or ( e) could create demands for public service from Moraga. While the Town does
not have planning authority in the area beyond the Town boundaries, it shall seek to proactively
participate in the planning process for these lands through coordination with other jurisdictions
and agencies, including the cities of Orinda and Lafayette, Contra Costa County, East Bay
Municipal Utilities District, and the East Bay Regional Park District.
Organization of the General Plan
The Moraga 2002 General Plan is written and designed for use by all members of the Moraga
community: residents, businesses, property owners, developers, Town staff, and elected and
appointed officials.
Following is a brief overview of the Plan’s key structural components to help you understand how
the Plan is organized.
Values and Guiding Principles ( Chapter 2)
These community values and guiding principles— developed through the public participation
process— serve as overarching goals for the Moraga 2002 General Plan and provide the basic
foundation for its goals, policies and implementing programs.
Goals, Policies, and Implementing Programs ( Chapters 3 – 10)
The main body of the General Plan consists of eight ‘ elements’:
Chapter 3 Land Use
Chapter 4 Community Design
Chapter 5 Housing
Chapter 6 Circulation
Chapter 7 Open Space and Conservation
Chapter 8 Public Safety
Chapter 9 Community Facilities and Services
Chapter 10 Growth Management
The specific issues addressed in each element are listed in the Table of Contents. A list of how the
Plan’s elements relate to the State’s mandated and optional element is provided in Figure 1 ( page
1- 6).
Each ‘ element’ presents goals, policies, and implementing programs that state the Plan’s intent
across a range of planning and development issues.
Introduction Moraga 2002 General Plan
1- 4 June 2002
􀂾 A Goal is a general statement of values or aspirations held by the community in relation to
each issue area. It is the end towards which the Town will direct its efforts.
􀂾 A Policy is a more precise expression regarding the community’s position on a particular
issue, or how a particular goal will be interpreted or implemented. Policies may include
guidelines, standards, objectives, maps, diagrams, or a combination of these components.
􀂾 An Implementing Program is something that is done by the Town to put the goals and
policies into practice. This might include ongoing programs sponsored by the Town ( e. g.,
road maintenance); discrete, time- specific actions ( e. g., adopt an ordinance); or further
planning actions ( e. g., develop a specific plan).
Action Plan ( Chapter 11)
To provide an integrated approach to the Plan’s implementation, the Moraga 2002 General Plan
presents a consolidated ‘ Action Plan,’ summarizing all of the implementing programs in the Plan,
organized by type.
Appendixes
The General Plan appendixes include:
􀂾 General Plan Diagram— a map illustrating the land use designations for all areas within the
Town and its Sphere of Influence.
􀂾 Residential Development Potential— a summary of the Plan’s potential ‘ build out’ for
residential units.
􀂾 Definitions— a glossary of key terms.
􀂾 Action Plan Summary— identifying the schedule for implementation of each program
( including near- term priorities), responsibilities and quantified objectives.
Mandated and Optional Elements
Under California law, cities are required to address seven issue areas or ‘ elements’ in their
general plans: land use, transportation, housing, safety, open space, conservation, and noise. The
State allows considerable flexibility in how these elements are organized, and encourages the
inclusion of additional elements to ensure that plans are truly comprehensive and effective in
addressing local issues.
The Moraga 2002 General Plan includes the seven State- mandated elements as well as several
optional elements ( Community Design, Community Facilities and Services, and Growth
Management), although it organizes them in a modified format. Figure 1 lists both the State-mandated
and optional elements, indicating where they are covered in the General Plan
document.
Figure 1
Moraga 2002 General Plan Introduction
June 2002 1- 5
State Mandated Elements and Optional Elements
in the Moraga 2002 General Plan
State- Mandated Elements Moraga 2002 General Plan
Land Use Element 3: Land Use
Transportation Element 6: Circulation
Housing Element 5: Housing
Open Space Element 7: Open Space and Conservation
Conservation Element 7: Open Space and Conservation
Safety Element 8: Public Safety
Noise Element 7: Open Space and Conservation
‘ Optional’ Elements
Community Design Element 4: Community Design
Community Facilities and Services
Element
9: Community Facilities and Services
Growth Management Element 10: Growth Management
How the Plan Was Developed
The Moraga 2002 General Plan is the product of a three- year planning effort involving
community residents, staff, and elected and appointed officials in a series of meetings and
workshops to identify key issues; review current plan policies; review data on current conditions
and trends; define values and guiding principles, explore alternative planning strategies, and
establish key policy directions.
The update process was overseen by a General Plan Steering Committee ( GPSC) to ensure broad
community representation in the update process and to provide the community with a direct voice
in the Plan’s development. The 15- member GPSC included representatives from the Town
Council, Planning Commission, Parks and Recreation Commission, Design Review Board,
Moraga- Orinda Fire District, Moraga School District, Saint Mary’s College, and Chamber of
Commerce as well as a representative from the Town’s major landowner and four citizens at
large. A complete list of GPSC members and alternates is provided in the acknowledgements at
the beginning of this document. The planning process began with the GPSC’s first meeting in
July 1999 and culminated with adoption of the Plan in June 2002.
GPSC members and Town staff also played key roles in supporting community outreach and
involvement activities, which involved more than 1500 Moraga residents in the update process.
These activities included:
􀂾 Three Special Issues of the Town Crier Newsletter sent to every Moraga household and
business address at three points in the update process, providing a summary of key
information, an overview of the update activities, and an invitation for community
participation.
Introduction Moraga 2002 General Plan
1- 6 June 2002
􀂾 Community Questionnaire included in the first special issue of the Town Crier to get
community input on key planning issues, alternative planning strategies, and community
priorities. More than 650 Moraga households responded to the questionnaire.
􀂾 Moraga 2000 Displays and Activities at the Town Festival in October 1999, celebrating
Moraga’s 25th Anniversary, provided an opportunity to disseminate information on the update
and the existing conditions analysis, and to foster community discussion on key planning
issues. More than 500 people visited the Moraga 2000 festival area.
􀂾 Nineteen ( 19) Community Workshops in February and March 2000 led by GPSC members
and Town staff to facilitate community discussion and input on the planning alternatives. The
community workshops involved more than 300 Moraga residents and business owners in the
alternatives analysis process.
􀂾 Town Meeting on March 29, 2000 to culminate the alternatives analysis process and begin to
outline a preferred alternative for the Draft Plan. The meeting was attended by nearly 60
Moraga residents, business owners, and other interested parties.
Members of the public were also invited to attend all of the GPSC meetings ( nine meetings were
held between July 1999 and April 2000) as well as a special ‘ Preferred Alternative Workshop’
with the Town Council and Planning Commission on April 20, 2000. Subsequent ‘ study sessions’
and public hearings were held in joint meetings with the Town Council and Planning
Commission. These meetings were also noticed and open to the public.
The public was kept informed on the project’s progress through the Town newsletter, coverage in
the local media, and the Town’s website, where all of the project documents have been posted
( www. ci. moraga. ca. us).
Reviewing, Amending and Managing the Plan
To remain a viable and effective planning tool, the Moraga 2002 General Plan must be reviewed
on an annual basis and modified over time in response to changing conditions, needs, and
priorities. This section of the Plan establishes basic guidelines for reviewing the General Plan and
considering potential amendments to its text and/ or diagram.
Annual Review
The General Plan is the Town’s most significant policy document and, therefore, must receive
regular, annual appraisal to ensure that its policies are consistent with social and economic
conditions, the needs and desires of Town residents, and the public welfare in general.
The Planning Commission shall report annually to the Town Council regarding the status of the
General Plan and progress in implementing its action programs. As part of the annual review
process, the Planning Commission shall hold at least one public hearing.
Moraga 2002 General Plan Introduction
June 2002 1- 7
Amendments to the General Plan
Each year, the Town may consider amendments to the General Plan in response to findings of the
annual review; changes in the planning context; or requests from property owners. In undertaking
amendments to the General Plan, Town staff, Planning Commission, and Council shall follow the
provisions set forth below:
Types of Amendments
Amendments to the General Plan may take the form of either text changes ( revisions to the Plan’s
goals, policies, or actions) or map changes ( revisions to the General Plan Diagram).
Consideration of Amendments
The Planning Commission shall hold at least one public hearing in October each year to consider
any amendments to the Plan. An exception may be authorized by the Town Council or the
Planning Commission when a finding is made in the public interest to expedite the processing of
an amendment. However, in accordance with State planning law, General Plan amendments may
be considered no more than three ( 3) times per year ( i. e., in October and at most two other times
per year in response to authorized exceptions).
Application Deadline
Applications for annual General Plan amendments ( for October review) shall be filed no later
than the first week in August each year on appropriate forms provided by the Town.
Fees
Fees shall be as prescribed by resolution of the Town Council. The Town Council may waive the
prescribed fees if an application is accompanied by a petition of not less than fifty ( 50) affected
registered voters of the Town.
Environmental Review
Each application shall be accompanied by statements and data justifying the application,
including an appropriate environmental assessment. Upon receipt of the application by the
Planning Commission, the application shall be reviewed by staff and the Planning Commission,
as necessary, to assure compliance with the Town’s environmental review guidelines and the
California Environmental Quality Act.
Evaluation Criteria
General Plan amendments affect the entire Town and General Plan area and any evaluation must
give primary concern to the community as a whole. Therefore, a fundamental question must be
asked in each case: Will this amendment, if adopted, generally improve the quality of the
environment socially, economically and physically consistent with the life- style of the community
in general?
Additionally, in reviewing General Plan amendments the Town shall consider the relationship of
the proposal to the status quo, the additional costs to the community that might be anticipated
Introduction Moraga 2002 General Plan
1- 8 June 2002
( social, economic or environmental), and if and how levels of public and private service might be
affected. In each case, in order to take affirmative action regarding the application, it must be
found that:
􀂾 The General Plan amendment will maintain a balanced and logical land use pattern;
􀂾 The General Plan amendment will generally improve the quality of the environment socially,
economically and physically, and is consistent with the lifestyle of the community;
􀂾 The Town and other affected governmental agencies will be able to maintain levels of service
consistent with the ability of the governmental agencies to provide a reasonable level of
service.
California Environmental Quality Act
All development proposals are subject to the California Environmental Quality Act ( CEQA). The
purpose of the CEQA process is to assure that major consideration is given to preventing
environmental damage and that impacts are properly identified and can be mitigated to a level
consistent with the Goals and Policies of the General Plan.
Ongoing Public Participation in the Planning Process
The Town shall continue to promote citizen participation in the development, review and
implementation of the General Plan and its goals, policies and programs. This shall include
residents of the community as well as those regularly employed or conducting business in the
community. To support meaningful and effective citizen participation, the Town shall also strive
to provide timely, accurate and adequate information on conditions in the Town and planning
issues, constraints, resources, opportunities, and strategy options.
Relation to Other Documents
There are a number of other planning regulations adopted by the Town and planning activities
that are undertaken on a regular basis that will help implement the General Plan. The General
Plan is the guiding document for all these regulations and activities. Following adoption of the
General Plan, any regulations that are not consistent with the Plan will be amended to ensure
consistency.
Zoning Ordinance
Government Code Section 65860 requires that the Town’s Zoning Ordinance be consistent with
its General Plan. Consistency means that the land uses authorized by the Zoning Ordinance, and
the distribution of these permitted land uses, must serve to implement the goals and policies of the
General Plan. The Zoning Ordinance and Zoning Map are parcel- specific regulations pertaining
to how land may be used, and the specific conditions of use that the Town will impose, consistent
with the overall policy framework of the General Plan and General Plan Diagram.
Moraga 2002 General Plan Introduction
June 2002 1- 9
Subdivision Ordinance
Government Code Section 66410 et seq. requires that local jurisdictions regulate and control
subdivision activity through adoption and use of a Subdivision Ordinance. The Town may not
approve a proposed subdivision map unless the subdivision, including its design and proposed
land uses, is consistent with the General Plan. Similar to the consistency requirements of the
Zoning Ordinance, the proposed subdivision must be consistent with the goals, policies, and
implementing actions included in the General Plan. This requirement applies to subdivisions for
which parcel maps ( minor subdivisions) are filed, as well as tentative and final maps.
Capital Improvement Programs
Government Code 65401 requires the Town Council to obtain from Town officials and staff, and
from special districts operating within the Town limits, lists of all public works projects
recommended for study, design, or construction during each ensuing year. In Moraga, the Town’s
capital improvement programs are set forth in the annual Town budget. The Town must ensure
that the budget and its components are consistent with the General Plan.
Environmental Impact Review
The California Environmental Quality Act ( CEQA) ( California Administrative Code Section
14100 et seq.) establishes the relationship between environmental review as prescribed by CEQA
and the General Plan. Section 15080 requires that the environmental review process be
“ combined with the existing planning, review, and project approval process” used by the Town.
Section 15125( b) requires environmental review to discuss any inconsistencies between a
proposed project and the General Plan. Projects should be found to have a “ significant adverse
effect on the environment” if they conflict with “ adopted environmental plans and goals of the
community…” ( including the General Plan). Future public and private projects, even if they are
consistent with the General Plan, are still subject to environmental review requirements under
CEQA.
Building Codes and Standards
State Housing Law ( Health and Safety Code Sections 17910 et seq.) requires the Town to adopt
regulations imposing substantially the same standards as those contained in the various uniform
industry codes. State law also imposes special standards, which may be more stringent than the
uniform industry codes ( e. g., the Uniform Building Code), designed to protect against certain
types of hazards ( fire, noise, earthquakes, unstable soils) and to achieve certain resource
management goals ( such as energy conservation). The Town of Moraga may adopt regulations
and standards that vary from those mandated by State law, if justified by local conditions. If such
variance is appropriate, the General Plan can serve as the vehicle for documenting local
conditions and specifying the necessary regulatory response.
Introduction Moraga 2002 General Plan
1- 10 June 2002
General Plan Background Report and EIR
The Moraga 2002 General Plan is a policy document designed for ease of use and readability. To
achieve this goal, the Plan’s technical documentation and environmental analysis have been
compiled separately in companion documents to the General Plan.
General Plan Background Report
In the process of preparing the Moraga 2002 General Plan, various technical data were collected,
analyzed, and summarized. Much of this information was presented in two key reports prepared
during the planning process: the Existing Conditions and Trends Report ( November 1999) and the
Alternatives Analysis Technical Report ( April 2000). Additional information was compiled and
presented as needed to support the discussions of the General Plan Steering Committee.
The General Plan Background Report is a compilation of this technical information. It also
provides documentation of the project’s various outreach activities and input received from the
public through those activities. The information it contains serves as the technical appendix of the
General Plan as well as supplemental baseline data for the Draft EIR.
Environmental Impact Report
State law requires preparation of an Environmental Impact Report ( EIR) if “ any aspect of the
general plan element or amendment, either individually or cumulatively, leads to a significant
effect on the environment, regardless of whether or not its total effect is adverse or beneficial….”
( Title 14, California Administrative Code, Section 15080).
The Moraga 2002 General Plan is accompanied by a EIR, under separate cover, analyzing and
documenting the updated General Plan’s potential environmental impacts and, where applicable,
associated mitigation measures ( i. e., actions that can be taken to reduce or eliminate adverse
impacts). It also addresses other State- mandated components of a Draft EIR for a General Plan.
Following circulation of the Draft Moraga 2002 General Plan and Draft EIR, responses were
prepared for the comments received. The Final EIR was be certified prior to adoption of the final
Moraga 2002 General Plan.