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LINCOLN
GENERAL
PLAN
September 1988
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CITY COUNCIL
Douglas Short, Mayor
Roberta Babcock, Vice Mayor
Stanley Nader
Ron Berringer
Charles Keller
PLANNING COMMISSION
EvaLena Mitchell, Chairperson
Patricia Bell
Jim Sandy
Marshall Weir
Richard Wyatt
CITIZENS ADVISORY COMMITTEE
Michael Miller
Charles Ballard
Sid Tetley
Margo Krass
John Mullen
STAFF
CITY OF LINCOLN: Rich Ramirez, City Administrator
Rod Campbell, Director of Community Development
SACRAMENTO AREA COUNCIL OF GOVERNMENTS:
Peter Hill, Planning Manager Gary Keill, Associate Planner Dave Boyer, Associate Planner
Brian Williams, Planner II Roy Tetlefson, Graphics Coordinater Beverly Budig, Secretary
Sandra Monroe, Administrative Clerk
PREPARED FOR THE CITY OF LINCOLN BY THE
Sacramento Area Council of Governments
106 " K" Street, Suite 200 Sacramento, California 95814
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TABLE OF CONTENTS
I. INTRODUCTION AND PURPOSE ............................................................................ 1
II. SUMMARY OF GOALS AND POLICIES ................................................................. 2
A. LAND USE ............................................................................................................. 2
B. OPEN SPACE, CONSERVATION AND RECREATION .................................... 6
C. CIRCULATION AND TRANSIT .......................................................................... 7
D. COMMUNITY SAFETY ....................................................................................... 9
E. NOISE ................................................................................................................... 10
F. HOUSING ............................................................................................................. 11
G. REDEVELOPMENT ............................................................................................ 13
H. PUBLIC SERVICES AND FACILITIES ............................................................ 14
I. ECONOMIC DEVELOPMENT ........................................................................... 15
III. BACKGROUND DESCRIPTION OF THE CITY OF LINCOLN ........................... 16
A. LOCATION AND PHYSICAL CHARACTERISTICS ...................................... 16
B. HISTORY AND GROWTH ................................................................................. 16
C. POPULATION CHARACTERISTICS ................................................................ 20
D. GROWTH TRENDS ............................................................................................ 20
E. PLANNING AREA .............................................................................................. 23
IV. GENERAL PLAN ELEMENTS ................................................................................ 25
A. LAND USE ELEMENT ....................................................................................... 25
1. Description of Existing Conditions .................................................................... 25
2. Future Land Use ................................................................................................. 28
3. Land Use Goals and Policies .............................................................................. 34
B. OPEN SPACE, CONSERVATION, AND RECREATION ELEMENT .............. 38
1. Description of Existing Conditions ................................................................. 38
2. Existing Recreational Facilities .......................................................................... 41
3. Future Open Space, Conservation, and Recreation ............................................ 46
4. Open Space, Conservation, and Recreation Goals and Policies ......................... 47
5. Open Space/ Conservation Action Plan .............................................................. 47
C. CIRCULATION AND TRANSIT ELEMENT ...................................................... 49
1. Description of Existing Conditions .................................................................... 49
2. Future Circulation and Transit ........................................................................... 55
3. Circulation and Transit Goals and Policies ........................................................ 60
D. COMMUNITY SAFETY ELEMENT ................................................................... 62
1. Description of Existing Conditions .................................................................... 62
2. Future Community Safety .................................................................................. 68
3. Community Safety Goals and Policies ............................................................... 68
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E. NOISE ELEMENT ................................................................................................. 70
1. Description of Existing Conditions .................................................................... 70
2. Future Noise Generators .................................................................................... 72
3. Existing State and Federal Noise Standards ...................................................... 76
4. Land Use Sensitivity .......................................................................................... 77
5. Criteria for Noise Compatible Land Use ........................................................... 77
6. Noise Goals and Policies ................................................................................... 80
F. HOUSING ELEMENT.......................................................................................... 81
1. Description of Existing Conditions ................................................................... 81
2. Projected Housing Needs ................................................................................... 92
3. Constraints .......................................................................................................... 95
4. Energy Conservation ........................................................................................ 101
5. Housing Goals, Policies, and Actions .............................................................. 101
G. REDEVELOPMENT ELEMENT .................................................................. 111
1. Description of Existing Conditions .................................................................. 111
2. Redevelopment Plan ......................................................................................... 113
3. Redevelopment Goals and Policies .................................................................. 116
H. PUBLIC SERVICES AND FACILITIES ELEMENT ....................................... 117
1. Description of Existing Conditions .................................................................. 117
2. Future Public Services and Facilities ............................................................... 125
3. Public Services Goals and Policies .................................................................. 126
I. ECONOMIC DEVELOPMENT ELEMENT ..................................................... 127
1. Description of Existing Conditions .................................................................. 127
2. Future Growth Potential ................................................................................... 135
3. Economic Development Goals and Policies .................................................... 138
V. IMPLEMENTATION ................................................................................................ 139
A. OVERALL POLICY DEVELOPMENT, PLAN IMPLEMENTATION,
AND CITIZEN INVOLVEMENT ...................................................................... 140
B. LONG RANGE PLANNING AND REGIONAL COORDINATION .............. 141
C. LAND USE AND CONSTRUCTION REGULATION ..................................... 142
D. SAFETY AND HEALTH ................................................................................... 144
E. FEES AND CHARGES ...................................................................................... 146
F. IMPLEMENTATION MEASURES TO BE DEVELOPED ............................. 147
VI. LINCOLN ECONOMIC DEVELOPMENT ACTION PLAN ................................ 148
A. LINCOLN ECONOMIC DEVELOPMENT CITIZENS
COMMITTEE: MISSION STATEMENT ......................................................... 148
B. AIRPORT SUBCOMMITTEE: SUB- MISSION STATEMENT ...................... 148
C. LINCOLN RENAISSANCE SUBCOMMITTEE:
SUB- MISSION STATEMENT ........................................................................... 149
APPENDIX
FINAL ENVIRONMENTAL IMPACT REPORT
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LIST OF FIGURES
FIGURE 1
FIGURE 2
FIGURE 3
FIGURE 4
FIGURE 5
FIGURE 6
FIGURE 7
FIGURE 8
FIGURE 9
FIGURE lO
FIGURE 11
FIGURE lla
FIGURE 12
FIGURE 13
FIGURE 14
FIGURE 15
FIGURE 16
FIGURE 17
FIGURE 18
FIGURE 19
FIGURE 20
FIGURE 21
FIGURE 22
FIGURE 23
FIGURE 24
FIGURE 25
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LIST OF TABLES
TABLE 1
TABLE 2
TABLE 3
TABLE 4
TABLE 5
TABLE 6
TABLE 7
TABLE 8
TABLE 9
TABLE 10
TABLE 11
TABLE 12
TABLE 13
TABLE 14
TABLE 15
TABLE 16
TABLE 17
TABLE 18
TABLE 19
TABLE 20
TABLE 21
TABLE 22
TABLE 23
TABLE 24
TABLE 25
TABLE 26
TABLE 27
TABLE 28
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I. INTRODUCTION AND PURPOSE
California state law requires each city to adopt a general plan which de- scribes the direction
the city will take concerning its future development. This general plan is designed to fulfill that
requirement and to serve as a long term guide for orderly growth and development of the city of
Lincoln. It also forms the basis for zoning, subdivision regulation, and other planning decisions
on the location, intensity, and design of public facilities and land use.
The intentions of the city of Lincoln concerning future development are expressed through the
goals and policies contained in this general plan. The goals establish the basic long- term
objectives sought by the city, while the policies describe the manner in which the city expects to
achieve its goals. The goals and policies set a framework for implementation actions and day- to-day
decisions which shape the community.
Implementation of the general plan is achieved through a variety of mechanisms: citizen
involvement on advisory committees, long range planning activities of the city, fees and charges
used for improvements, and regulations concerning development. Use of this general plan should
be with an understanding of its purpose and how the goals and policies are used to guide the day-to-
day decisions that implement the plan.
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II. SUMMARY OF GOALS AND POLICIES
A. LAND USE
The land use element plays a central role in the general plan. It provides a description of the
existing pattern of land use and establishes a pattern for future land use. It also sets city policy on
population density and intensity of development, is the basis for determining service
requirements, and establishes policy on annexation and development phasing.
GOAL FOR RESIDENTIAL LAND USE: To designate, protect, and provide land to en- sure
sufficient residential development to meet community needs.
Policies for Existing Residential Land Use
1. To prevent the intrusion of incompatible land uses into existing residential areas.
2. To preserve and enhance the quality of existing residential areas by continuing to
provide high- quality public services, by rehabilitating useful structures and by
removing substandard units.
3. To continue programs for the prevention of blight, using all public and private
resources available, including: enforcement of all codes, neighborhood rehabilitation
programs, and redevelopment agency actions.
4. To encourage active involvement by individuals and organized citizens in
maintaining and upgrading of existing residential neighborhoods.
5. To encourage preservation and adaptive reuse of significant historic structures.
Policies for New Residential Land Use
6. To provide a variety of residential land designations that will meet the future needs of
the city.
7. To require that new development in or near existing residential areas be compatible
with the existing neighborhoods.
8. To jointly plan areas contiguous to neighboring jurisdictions in order to ensure
compatible land uses.
9. To promote flexibility and innovation in residential land use through the use of
planned unit developments, developer agreements, specific plans, mixed use projects,
and other innovative development and planning techniques.
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10. To designate residential land according to the following scale:
Low density 0- 5 units per acre
Medium density 6- 12 units per acre
High density 13- 20 units per acre
11. To discourage leap- frog or premature development in areas not contiguous to existing
developed areas of city.
12. To prohibit any new residential land uses within the city from being located within
one mile of the runway at the Lincoln Airport.
GOAL FOR COMMERCIAL LAND USE: To retain and renew existing commercial land uses
and designate sufficient new commercial areas to meet future city needs.
Policies
13. To promote and renew the existing central business district, in order to provide
diversified business opportunities.
14. To approve designation of sufficient commercial land to meet the future needs of the
city.
15. To ensure that adequate parking and access are included in approved commercial
development plans.
16. To avoid " strip commercial" land uses in newly development areas by encouraging
grouping of commercial land uses in core areas.
17. To mitigate conflicts between new commercial land uses and other land uses,
especially residential, park, and recreational uses.
18. To require that commercial land uses be buffered from incompatible land uses and
protected from encroachment by residential or other incompatible uses through the
use of techniques including, but not limited to, landscaping, soundwalls, berms,
fencing, open space set- backs, greenbelts, and building orientation.
19. To promote flexibility and innovation in commercial land use through the use of
planned unit developments, developer agreements, specific plans and other innovative
development and planning techniques.
GOAL FOR INDUSTRIAL LAND USE: To designate sufficient land for existing and new
industrial uses that is compatible with the existing community.
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Policies
20. To require that industrial land uses be buffered from incompatible land uses and
protected from encroachment by residential or other incompatible land uses through
the use of techniques including, but not limited to, landscaping, soundwalls, berms,
fencing, open space setbacks, greenbelts, and building orientation.
21. To encourage industrial land uses that do not harm the environment or pose danger to
city residents.
22. To designate land for industrial uses sufficient to meet future city needs, but limited
to uses that will not negatively impact existing or future neighborhoods.
23. To promote flexibility and innovation in industrial land use through the use of
planned unit developments, developer agreements, specific plans and other innovative
development and planning techniques.
GOAL FOR LAND OUTSIDE THE CITY LIMITS: To retain rural designations for land outside
the city limits but within the planning area, until annexed to city.
Policies
24. To urge Placer County to maintain low density rural land use designations, and large
parcel zoning in areas outside the city, and to require new subdivisions of land within
one mile of the Lincoln Airport runway to maintain a minimum of one dwelling unit
per 20 acres.
25. To discourage any higher density residential, commercial, or industrial development
in this area unless public services can be provided and annexation is accomplished.
26. To promote commercial and industrial development within the city limits as more
efficient, economical, and desirable than development outside the city limits.
27. To ensure that agriculture will continue to be a significant land use within the city's
sphere of influence.
28. To ensure that agricultural land uses are not prematurely terminated.
29. To require that agricultural land uses be buffered from urban land uses through the
use of techniques including, but not limited to, greenbelts, open space setbacks,
soundwalls, fencing and berming.
30. To require that no land designated either as. Urban Reserve, or Industrial Reserve be
provided an alternative land use without first evaluating its infrastructure needs and
requiring payment for the facilities needed to develop.
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GOAL FOR LAND USE CONSISTENCY: To ensure that the legal requirements for general
plan consistency are fulfilled.
Policies
31. To amend the zoning code and other land use regulations to make them consistent
with the adopted or amended general plan.
32. To approve amendments to the zoning code and other land use regulations only if the
changes are consistent with the general plan.
33. To base the evaluation of implementation measures and actions for consistency with
the general plan or whether or not the measures and actions further the goals and
policies of the general plan.
GOAL FOR LAND USE COORDINATION: To ensure that land use decisions by the cities and
county in south Placer are coordinated.
Policies
34. To continue to participate in the activities of the South Placer Policy Committee
( SPPC).
35. To consider the effects of land use proposals and decisions on the South Placer area
and the efforts to maintain a jobs- housing balance.
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B. OPEN SPACE, CONSERVATION AND RECREATION
The open space, conservation, and recreation element provides a description 6f the lands and
waterways that are unimproved and are to be devoted to natural uses through general plan land
use designation; establishes city policy on protection of unimproved lands and natural resources;
and establishes city policy on the provision of recreation sites and facilities.
GOAL: To designate, protect, and conserve natural resources, open space, and recreation lands
in the city; and provide opportunities for recreation activities to meet citizen needs.
Policies
1. To protect natural resource areas, fish and wildlife habitat areas, scenic areas, open
space areas and parks from encroachment or destruction by incompatible
development.
2. To identify and protect, in cooperation with Placer County, local aquifers and water
recharge areas.
3. To protect historically significant and geologically unique areas and encourage their
preservation.
4. To promote continuing agricultural use of prime soils in the planning area for lands
presently under cultivation and with no plans to stop agricultural use.
5. To protect heritage oaks and other significant vegetation from destruction.
6. To encourage energy conservation in new developments.
7. To cooperate in a coordinated approach to the management of drainage areas and
flood plains.
8. To require dedication of park land in new residential development to meet city
standards.
9. To provide park facilities in accordance with adopted park standards and phasing.
10. To provide recreation programs that meet citizens needs.
11. To support and cooperate with volunteer groups and organizations that provide
recreation activities to young people.
12. To encourage the use of city reclaimed water, in place of city- treated potable water,
by industrial and recreational uses.
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C. CIRCULATION AND TRANSIT
The circulation and transit element provides a description of major streets, roads, highways,
other transportation services and facilities and transit services, and establishes city policy on
maintenance of existing transportation facilities, transportation improvements, and transit
services.
GOAL: To provide and maintain a safe and efficient system of streets, highways, and public
transportation to meet community needs and promote sound land use.
Policies
1. To maintain existing streets in a safe condition and require that new streets be built
to city standards.
2. To ensure that streets and highways will be available to serve new development by
requiring detailed traffic studies as a part of all major development proposals.
3. To require bike lanes in the design and construction of major new street and highway
improvements, and to establish bike lanes on those city streets wide enough to
accommodate bicycles safely.
4. To designate truck routes in order to keep truck traffic away from residential areas.
5. To promote and support public transit services that meet residents needs.
6. To promote pedestrian convenience through development conditions requiring
sidewalks, walking paths, or hiking trails that connect residential areas with
commercial, shopping, and employment centers.
7. To require landscaping and tree planting along major new streets and highways.
8. To encourage a variety of building sites, building types, and land use treatments
along major streets and highways.
9. To seek construction of grade separated crossings in newly developing areas.
10. To pursue the funding and construction of a bypass for State Route 65.
11. To promote the use of public transit through development conditions requiring park-and-
ride lots, bus turnouts and passenger shelters along major streets adjacent to
areas of high residential density.
12. To enforce the transportation system management requirements of the existing
ridesharing ordinance.
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13. To promote and support the development of regional bikeway links as established in
the County Bikeway Master Plan.
14. To maintain a minimum level of service " C" for all streets and intersections.
15. To support future bypass studies for State Route 193.
16. To support the study of State Route 102 provided that the study includes alternative
transportation corridors and alternative modes of transportation: e. g. light rail,
dedicated high occupancy vehicle ( HOV) lanes, etc. Further, that the state pursue an
alignment for the route which will pass through those areas designated as either
Urban Reserve or Industrial Reserve.
17. To require a landscaping setback up to a maximum of 50' and a tree planting
program along State Highway 65 and State Highway 193.
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D. COMMUNITY SAFETY
The community safety element describes hazards to citizens and establishes city policy
protecting citizens from natural and man- made hazards.
GOAL: To minimize the danger of natural and man- made hazards and to protect residents and
visitors from the dangers of earthquake, fire, flood, other natural disasters, and man- made
dangers.
Policies
1. To require engineering analysis of new development proposals in areas with possible
soil instability, flooding, earthquake faults, or other hazards, and to prohibit
development in high danger areas.
2. To cooperate with and support the formation of a coordinated approach for the
construction, operation, and maintenance of drainage and flood control facilities.
3. To require master drainage plans as a condition of approval for large development
projects.
4. To maintain a current city emergency plan for use in emergency situations.
5. To require new residential construction to have its lowest habitable floor elevated
above the base flood level elevation.
6. To prohibit development along stream channels that would reduce the stream
capacity, increase erosion, or cause deterioration of the channel.
7. To require disclosure of hazardous materials by those using them within the city or
proposing to use them in new industrial or commercial activities.
8. To enforce the city building code, fire code, and city ordinances in regard to fire
safety and fire protection.
9. To limit development in areas with severe slopes.
10. To discourage the location of firms in the planning area which require treatment of
industrial waste, unless the waste is pretreated to a secondary stage level as defined
by the State of California.
11. To require that development around the Lincoln Municipal Airport be consistent
with the safety policies and land use compatibility guide- lines contained in the
approved Airport Land Use Commission Plan.
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E. NOISE
The noise element provides a description of community noise, the exposure to noise by
citizens, and establishes city policy on protecting citizens from the health hazards of excessive
noise.
GOAL: To protect residents from health hazards and annoyance associated with excessive noise
levels.
Policies
1. To use adopted noise compatibility guidelines to evaluate compatibility of proposed
new development.
2. To require noise analysis of proposed development projects as part of the
environmental review process and to require mitigation measures that reduce noise
impacts to acceptable levels.
3. To require noise buffering or insulation in new development along major streets and
highways, and along railroad tracks.
4. To control noise sources in residential areas by restricting truck traffic to designated
truck routes.
5. To require that development around the Lincoln Airport be consistent with the noise
standards contained in the approved Airport Land Use Commission Plan.
6. To establish an ongoing noise monitoring program for the purpose of enforcing noise
standards established by the city.
7. To pursue the update of the Airport Master Plan noise contours through the year
2010 and beyond, consistent with the anticipated use of the airport by larger aircraft,
and to revise the General Plan as necessary to reflect new noise contours.
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F. HOUSING
The housing element establishes city policy and an action plan on the pro- vision of safe,
decent, and affordable housing for all residents, regardless of income or race. It also provides an
assessment of current and projected housing needs for all income groups.
GOAL FOR HOUSING QUALITY: Promote the construction of a variety of housing types that
meet safe standards with a minimum of environmental impact and that provide a choice of
location, preserve existing neighborhoods, and have adequate public services.
Policies
1. To ensure that new housing efficiently uses land, is energy efficient, and causes a
minimum of environmental impact.
2. To promote the construction of good quality and safe homes, the preservation of
existing neighborhoods, and the elimination of unsafe housing.
3. To ensure the existing and new neighborhoods receive an adequate level of public
services, facilities and protection.
4. To discourage the concentration of low income assisted units in any neighborhood.
GOAL FOR HOUSING QUANTITY: Encourage the preservation of existing housing and the
construction of new housing to meet the needs of all income groups and those with special needs,
and ensure that housing opportunities are open to all without regard to race, color, age, sex,
religion, national origin, family status or physical handicap.
Policies
5. To promote the preservation of existing homes and the rehabilitation of homes
needing repair.
6. To ensure that there is sufficient land zoned for a variety of housing types, residential
densities, and housing prices that will meet the needs for projected growth.
7. To encourage and assist the construction of a variety of housing types with varying
densities and prices, for both sales and rental, that are affordable to all income groups,
particularly low income and special needs groups.
8. To participate, whenever eligible, in federal, state, or other programs that assist in
providing and maintaining housing affordable to low income and special needs
groups.
9. To ensure that all laws and regulations prohibiting discrimination in lending practices
and the sale and rental of homes are enforced.
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GOAL FOR HOUSING COORDINATION: To continue cooperative and joint ties with other
local governments, with the private sector, and with citizens who assist in the provision of
housing for all income groups.
Policies
10. To continue to work with neighboring cities and counties to ensure that Lincoln plans
for its " fair share" of housing need.
11. To cooperate with and seek the advice of developers, builders, financial institutions,
and interested citizens on housing needs and the solutions to housing problems.
12. To continue to participate in the South Placer Policy Committee's Monitoring
Program in order to track the balance of new job growth and housing produced each
year.
13. To evaluate housing programs and policies recommended by the South Placer Policy
committee and promote those most appropriate to the city of Lincoln.
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G. REDEVELOPMENT
The redevelopment element describes the redevelopment area, the problems to be solved by
redevelopment activities, the strategy to be used, and establishes city policy to guide
redevelopment efforts.
GOAL: To improve the social, economic and aesthetic characteristics of the city through the
revitalization of deteriorating areas.
Policies
1. To ensure that all redevelopment activity is consistent with the adopted
redevelopment plan.
2. To ensure that the adopted redevelopment plan is consistent with the general plan.
3. To ensure that replacement housing is available prior to residential displacement.
4. To require the provision of adequate off- street parking in all development plans.
5. To require that the design of public improvements projects minimize the need for
acquisition of private property.
6. To preserve and restore, where feasible, buildings having historical significance.
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H. PUBLIC SERVICES AND FACILITIES
The public services and facilities element provides a description of the general location,
capacities and plans for public services and facilities, and establishes city policy on the
provisions of public services and facilities.
GOAL: To ensure that adequate public services and facilities are provided to meet the needs of
residents of the city.
Policies
1. To maintain the provision of adequate public services and facilities to the existing
areas of the city and to ensure that new development is served by a full range of
Public services.
2. To ensure that in areas of new development, school facilities will be available
which meet adopted school district standards.
3. To disapprove development proposals that would negatively impact public services,
unless the negative impact is mitigated by the project proponent.
4. To expand fire and police protection service consistent with community needs.
5. To require garbage collection services to ensure the maintenance of health
standards.
6. To maintain existing public facilities and provide new facilities consistent with
community needs.
7. To develop a long- term reliable supply of water that will permit the city to meet the
existing and future demands of development.
8. To maintain a five- year lead time in the planning of needed expansions of public
services and facilities.
9. To prepare and maintain a five- year capital improvement program for public
facilities.
10. To require that prior to any annexations to the city, a detailed public facilities and
financing plan be completed.
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I. ECONOMIC DEVELOPMENT
The economic development element provides an analysis of the economic base and economic
activities within the city and establishes policy of economic development activities.
GOAL: To increase the economic activity within the city by raising per capita taxable sales to
the state average, reducing unemployment to the regional rate, and raising the median household
income to the countywide level.
Policies
1. To support, simulate, and foster increased activity by existing businesses within the
community.
2. To draw new businesses to the city through educational and promotional campaigns,
especially small and medium- sized businesses.
3. To target promotional efforts at those industries identified in economic studies as
underrepresented, but to provide informational material to any business or industry
interested.
4. To diversify the economy of the city by targeting industries and business not now
located in the city for promotional efforts.
5. To continue to improve the downtown commercial area in order to provide a pleasant
atmosphere for shoppers and adequate public services for local businesses.
6. To encourage the location of aviation research, manufacturing, and service activities
at the Lincoln Airport by targeting the aviation industry with promotional
information.
7. To facilitate zoning and permit activities related to expansion of existing businesses
or location of new activities.
8. To cooperate with local business groups in development and supporting " Buy- in-
Lincoln" activities.
9. To develop and update at periodic intervals land availability information, and to
distribute it to prospective businesses.
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III. BACKGROUND DESCRIPTION OF THE CITY OF LINCOLN
A. LOCATION AND PHYSICAL CHARACTERISTICS
The city of Lincoln is located in the Sacramento Valley, 25 miles north of Sacramento. One
of six cities in Placer county, Lincoln was incorporated in 1890.
Lincoln is located on the eastern edge of the flat Sacramento Valley floor at the base of the
Sierra Nevada foothills. Most of the area is underlain by volcanic flows, which have been
covered by sedimentary deposits. These deposits in turn have been cut by seasonal streams.
Lands in the area not developed or not in commercial agricultural use are grassland with oak
savannah.
Because of clay deposits, some areas don't drain well and water collects in shallow
depressions during the rainy season to form temporary vernal pools that often last into early
spring. The Lincoln area is traversed by a number of waterways, including: Markham Ravine and
Auburn Ravine near the existing city, and Ingram Slough and Orchard Creek in the southern part
of the planning area.
The climate in Lincoln is characterized by hot, dry summers and cool, wet winters, which is
typical of the California Central Valley. Average temperatures range from about 80° in summer
to 45° in winter, with temperature extremes of 110° in summer and 20° in winter. Annual rainfall
averages about 22 inches per year, with most of it falling between October and March.
The city of Lincoln is located on State Route 65, which connects to Interstate 80 about ten
miles away. In late 1987, the Bizz Johnson Expressway, a SR 65 bypass of Roseville, was
opened, providing a more direct connection between Lincoln and 1- 80. State Route 193
intersects SR 65 in the center of Lincoln and provides access to the county seat in Auburn, via.
Newcastle and 1- 80.
B. HISTORY AND GROWTH
Originally laid out in 1859 by Theodore Judah, a pioneer in California who was a major
advocate of a transcontinental railroad, Lincoln was named for Charles Lincoln Wilson who was
instrumental in the construction of the California Central Railroad, which ran from Folsom to
Roseville Junction and then to Lincoln. The railroad actually reached Lincoln on October 31,
1861 and passengers and freight from Placer, Nevada and Yuba counties used it extensively until
the Central Pacific Railroad was completed from Sacramento to Roseville in 1863. In 186g, the
railroad was completed from Lincoln to Marysville.
The Lincoln area was first settled around 1851 when Joseph Walkup and Samuel B. Wyman,
who were business partners in Auburn, bought a large tract of land on the Auburn Ravine near
the present site of Lincoln and started a successful farm. A year later in 1852, James R.
Nickerson came to the Lincoln area and also started a farm and winery. He also built a three-story
winery and wine cellar.
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The first settlement of the city of Lincoln came in 1859, with John Chapman, G. Gray, John
Ziegenbein, and E. A. Gisson. Between 1862 and 1863, the town became a prosperous farming
center with an estimated 400- 500 inhabitants and up to eight stages a day leaving town.
In 1862, while boring for water, traces of coal were found in Lincoln; how- ever, it was not
until 1873 that Charles Lincoln Wilson began a thorough investigation of the extent of coal in the
area. Finding a vein of coal 60 feet below ground, a shaft was sunk and mining began. By 1874
over 200 tons of coal per week were being mined in Lincoln and soon after a new shaft was dug
that allowed over lO0 tons a day to be mined.
In August of 1874, a new shaft was being sunk in Lincoln and in addition to coal, two beds of
potters clay were found. Shortly after this discovery, the California Clay Manufacturing
Company was organized and bought 200 acres of property. This company consisted of Charles
Gladding, P. McBean, and George Chambers and later became Gladding, McBean and
Company, which has been a fixture in Lincoln every since.
In 1882, it was reported that Lincoln had 800 residents, one drug store, one express office,
two hotels, two grocery stores, one dry goods store, three blacksmiths, one butcher shop, one
telegraph office, one bakery, five saloons, two doctors, one lawyer, two school teachers, two
churches, and one school house. Water was provided from the Bear River and distributed in town
through pipes.
By 1900, the population of Lincoln had grown to 1,061. The town continued to be an
agricultural and manufacturing center, with Gladding, McBean and Company still active.
Between 1900 and 1920 the population grew to only 1,325. In the 1920' s Lincoln continued to
grow, and by 1930 the population was 2,094. During the 1930' s and the Great Depression,
Lincoln's population remained about the same and by 1940 was estimated at 2,044.
In 1942, a military training airport was built outside Lincoln. Originally built to train pilots
during World War II, the airfield was turned over to the city of Lincoln after the war. Now
operated by the Lincoln Airport Authority, the Lincoln Airport has become a major influence in
the growth of Lincoln.
In 1950, the number of people living in Lincoln was 2,410. During the 1950' s, Lincoln
continued to grow and by 1960 the population was 3,197. Between 1960 and 1970, population
remained at the same level; however, by 1980 the population had grown to 4,132. In 1985 the
population was estimated to be 5,100, and recently released figures indicate a January l, 1987
population of 5,975.
Future projections of population indicate a rapidly growing community. By 1990, population
is expected to be 7,038, and 11,464 by the year 2000. After the turn of the century, population is
expected to continue to grow and reach 18,674 by 2010.
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C. POPULATION CHARACTERISTICS
At the last census, in 1980, the population of Lincoln was 4,132. That total was a 30.1 percent
increase over the 1970 figure of 3,176. In 1980, the population consisted of 3,370 white, 19
American Indian 20 Asian, and 723 other. Included in the total population count were 1,268
persons of Spanish origin.
There were 2,108 males in 1980 and 2,114 females. Four hundred people were under 5 years
old, 903 were 5- 17 years old, 2,327 were 18- 64 years old, and 502 were 65 years or over. The
median age for females was 28.3 years and 27.2 years for males.
There were 1,459 households in Lincoln in 1980; 921 were married couple households, 56
had a male head with no wife, 125 had a female head with no husband, 119 were male one-person
households, 213were female one- person house- holds, and 25 were non- family
households.
There were 1,459 occupied housing units in' 1980, with 453, or 31 percent, renter- occupied.
Of all housing units, 456 had six or more rooms, 528 and five rooms 260 had four rooms, 192
had three rooms, 79 had two, and 7 had one room.
In 1960, the number of persons per household in Lincoln was 3.47, by 1970 it had declined to
3.17, in 1975 it was 3.09 and in 1980 it was 2.86. The decline in the number of persons per
household is expected to continue in the future, reaching 2.73 in 1990, 2.70 in 1995, 2.68 in
2000, 2.62 in 2005, and 2.60 in 2010. The significance of this declining size of households is that
more housing units are needed to serve the population.
Of those 18 years old or older in 1980, 1,162 had three years or less of high school, 1,124 had
completed four years of high school, 384 had completed one to three years of college, 82 had
completed four years of college and 77 had completed five or more years of college.
In 1980, the labor force in Lincoln totaled 1,716. Of that total, 224 were unemployed and
1,492 were employed. The unemployment rate was 13.1 percent. Males had a 9.7 percent
unemployment rate and females had an 18.1 percent rate. Of those employed, the occupations of
28 percent were precision production, craft, machine operators, assemblers, and inspectors; 25
percent were employed in sales and administrative support; 16 percent were transportation,
material handlers, helpers, and laborers; 14 percent were executive, professional, or technical; 11
percent were in service; and the rest were in farming, private household, or protective service.
D. GROWTH TRENDS
Although Lincoln grew only moderately for many years, it now appears that Lincoln is
growing at a faster rate. During the ten years between 1970 and 1980, Lincoln added 956 people;
however, in the five years between 1980 and 1985 the population increased by 968 and between
1985 and 1987, population grew by 875.
This increase in the rate of growth is a result of a number of factors. Among these are:
increased awareness of the city by businesses and developers, a progressive city council and
professional city management, the attractiveness of a small town atmosphere, the siting of new
industry, the modernization and expansion of the Lincoln Airport, and new housing
developments.
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This growth trend is expected to continue, particularly since Lincoln is within the rapidly
growing South Placer County area, which is one of the fastest growing areas in the state. With
the completion of the State Route 65 Bypass, travel time to Lincoln from 1- 80 will be
significantly reduced. This will make Lincoln even more attractive to workers seeking a small
town and quiet life style.
Two large projects have been approved in the area between the existing city and the Lincoln
Airport. The Lincoln Airpark project proposes a large scale industrial park, with supporting
residential and commercial uses, in a mixed used development plan. The Lincoln Airpark
proposal contains 350 acres of industrial/ business park uses, 8.5 acres of commercial, 201.9
acres of residential with 1,802 housing units, a 52 acre golf course, 12 acres of park and
shoreline, and 32.8 acres of public facilities.
The Joiner Ranch project contains 44 acres of industrial, 5 acres of business- professional, 8
acres of neighborhood commercial, 15 acres of general commercial, and 172.7 acres of
residential with 1,756 housing units.
In addition to these proposals, four other projects outside the city limits, but within the sphere
of influence, are in the early stages of planning. All four are south of the city, with two to the
west of SR 65 and two to the east.
On the west wide of SR 65, just below the existing city limits is the Rancho Ganadero project.
This 1,048 acre proposal would contain light industrial, commercial, business parks, residential,
schools, a cemetery, and a medical center. Further south on the west side of SR 65 is the Orchard
Creek project, a 1,095 acre proposal containing residential, mobile home, light industrial, and
commercial land uses.
The Southeast Lincoln project, also known as the Ferrari property, is just south of the city
limits on the east side of SR 65. The project consists of 715 acres of residential, commercial,
parks, schools, and a fire station. Also on the east side of SR 65, and south of the Southeast
Lincoln project, is the largest project, about 5,000 acres, known as Placer Ranch. The proposal
contains industrial, commercial, residential schools, public facilities, and business- oriented land
uses.
Clearly, there is a feeling within the development community that Lincoln has great potential
for high quality growth in the future. The location of high technology plants in Roseville, the
decision by Herman Miller to build a major office furniture plant between Lincoln and Roseville,
the completion of the SR 65 Roseville Bypass, and the growing importance of the Lincoln
Airport all support this growth potential.
The proposals for development exceed the needs of the city to meet expected population
growth through the year 2010. Thus, one of the most significant issues facing the city is how to
guide this future development in an orderly manner, based on a well thought out progression of
expansions. The establishment of clear development policies, developed as a part of the general
plan, provides a way for the city to grow in an orderly manner.
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E. PLANNING AREA
The planning area for the city of Lincoln is all of the area within the city boundaries, plus the
land outside the city boundaries which has some relation to city planning. This broader area was
chosen because planning issues do not stop at city boundaries, particularly in growing areas.
State planning law recognizes this problem and allows cities to plan for lands outside their
jurisdiction.
In selecting its planning area, the city of Lincoln has chosen to use the Local Agency
Formation Commission ( LAFCO) Sphere of Influence area. This area was chosen because it
provides the city with an area large enough to establish the direction and pattern of future growth
through at least the next 25 years. It will also allow the city to analyze long range infrastructure
needs through- out the planning area.
The planning area is generally described as being bordered by Athens Road on the south,
Sierra College on the east, Fiddyment Road and Airport Road on the west, and Virginiatown
Road- SR 65- West Wise Road on the north. The planning area is shown on Figure 4.
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IV. GENERAL PLAN ELEMENTS
A. LAND USE ELEMENT
The land use element plays the central role in the general plan. It establishes a pattern for land
use development, and sets policy on population density and intensity of development. The land
use element is the basis for deter- mining service requirements including plans for future streets
and roads, water and sewer, schools, and fire and policy protective services.
1. Description of Existing Conditions
The Lincoln planning area encompasses an area of approximately 19,500 acres or roughly
30 square miles. The existing city limits contain approximately 4,000 acres of land. The city
is bisected by State Route { SR) 65 and the Southern Pacific Railroad which parallels SR 65.
State Route 193 intersects SR 65 in the downtown core area.
Because the area within the existing city limits is different from the remainder of the
planning area, it is described separately. Hereafter, the planning area will be broken into four
areas and referred to as the " Existing City Area," the " Northern Area," the " Southwest Area,"
and the " Southeast Area" ( See Figure 5).
a. Existing City Area
Urbanization has occurred primarily around the downtown area, growing outward in
an orderly and compact manner. The core or Old Town district of Lincoln, located in the
vicinity of G Street between First and Ninth Streets, is characterized by a variety of brick,
wood frame and corrugated metal structures. Land uses in the downtown area are a
mixture of commercial, public, industrial, service, and residential uses.
Residential
By current estimates ( December 31, 1986) there are 2,481 housing units within the
city of Lincoln. The majority of these are close to the existing city center. Current
residential growth areas are generally to the west of the existing developed areas and
south of Nicolaus Road. The Lincoln Airpark planned unit development, several miles
west of existing development and north of Nicolaus Road, contains a provision for 1,885
residential units, some of which are beginning to be developed.
Residential development outside of the incorporated boundaries but within the city's
sphere of influence, has occurred on acreage with parcel sizes generally ranging from two
acres to large agricultural holdings. The Placer County General Plan identifies most of
the area surrounding the city as either Agricultural ( 5 to 20 acre minimum building sites)
or as Rural Residential ( 1 to 5 acre minimum building sites). Rural residential
development, however, is currently limited to several areas along Nicolaus Road, Nelson
Road, State Route 193 and Sierra College Boulevard.
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Industrial
There are approximately 2,750 acres currently zoned for industrial uses, light
industrial, industrial, and industrial planned development, within the city limits. This
Figure, however, includes 200 acres de- voted to Lincoln Airport proper and the
development along Flight Line Drive, lO0 acres planned for a golf course immediately
south of the airport, and 200 acres occupied by the city's sewage treatment plant.
The Gladding- McBean plant and its clay reserves occupy approximate- ly 200 acres at
the northern end of Lincoln. Bohemia Inc. holds 222 acres located west of SR 65 on the
north side of Nicolaus Road. Consequently, approximately 1,800 acres are available for
industrial development, virtually all of which is located in the northwestern area of the
city.
Commercial
Existing commercial development in the city is located in a linear pattern along SR 65
between H Street and E Street. There are approximately three acres zoned for highway
commercial uses adjacent to SR 65 at the city's southern boundary. The Lincoln Air
Center development plan contains provision for nine acres of commercial fronting on
Nicolaus Road. In addition, the Joiner Ranch development plan contains a total of 28.1
acres for general commercial, neighborhood commercial, and business and professional
offices.
Airport
The Lincoln Municipal Airport is located at the western boundary of the existing city
limits. The existing facilities include a 6,000 by lO0 foot runway and associated aprons
and taxiways, 219 permanent parking spaces, 65 T- hangars, hangar space for 8 aircraft,
and 15 transient parking spaces. There are also an airport manager's office, and a fixed-base
operator providing fuel sales, and aircraft- related sales and services. There are
approximately 200 aircraft based at the air- port and an estimated 70,500 annual flight
operations.
b. Northern Area
This area is north and east of the city limits and north of State Route 193. This area is
largely undeveloped. North of State Route 65 is a clay extraction site. North of the city
limits, above Markham Ravine, are several hundred acres of irrigated annual crop land.
Just east of the city limits and south and north of Virginiatown Road is an area that has
been subdivided into small rural residential size parcels. Farther to the east, and north of
State Route 193, the area is predominately range land which becomes wooded to the east.
A portion of this area is devoted to turkey production.
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c. Southeast Area
This area is bounded by State Route 193 on the north and State Route 65 on the west.
The predominant land use in this area is range land. There are some rural residential
parcels developed in the north- east corner of this area just off Sierra College Boulevard.
Several hundred acres of irrigated crop land, are located south of Auburn Ravine. The
California Division of Forestry has a facility south of State Route 193. The only other
significant development in this area is the rodeo grounds located east of State Route 65
just north of the intersection with Industrial Boulevard.
d. Southwest Area
This is the area south of the existing city limits and west of State Route 65.
Approximately one- third of this land is or has been irrigated for annual crops. The
remaining two- thirds has historically been range land. Limited areas of rural residential
development exist south of Nicolaus Road opposite the airport and on both sides of
Nelson Road just north of Moore Road. A turkey ranch operates southeast of Moore
Road midway between Nelson Road and State Route 65. There are also approximately
six small industrial parcels on the north side of Athens Road midway between Fiddyment
Road and Industrial Avenue.
2. Future Land Use
The land use plan and the general plan map utilize the major land use categories of
residential, commercial, industrial, agricultural and other. These basic categories are further
broken down and defined below.
a. Land Use Designations
1. Low Density Residential means areas for single family homes. Density range: 0- 5
units per gross acre.
2. Medium Density Residential provides areas for more intense residential uses.
Appropriate land uses include higher density single family uses such as duplexes,
triplexes and condominiums at the specified densities; and lower density multi- family
development. Density range 6- 12 dwelling units per gross acre.
3. High Density Residential designates areas for intense multi-- family residential land
uses. Density range: 13- 20 dwelling units per acre.
4. Residential Planned Development means areas providing for crea- tive and flexible
use of the land for primarily residential purposes. Various land uses may be combined
to provide a balanced and stable environment.
5. Neighborhood Commercial is applied to small commercial centers within residential
neighborhoods for the purpose of providing convenience type shops and services to
the immediate neighborhood.
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6. Community Commercial provides land for the major commercial activities of the
community to occur. A wide variety of uses are permitted in this category as long as
they are compatible with adjacent land uses.
7. Business and Professional indicates areas set aside for office- type commercial
development as opposed to retail, service and wholesale type commercial activities.
8. Industrial is a land use designation applied to areas appropriate for manufacturing,
general industrial and warehousing uses. Compatibility with adjacent land is
important to avoid detrimental effects upon surrounding property and the
environment.
9. Light Industrial designates areas appropriate for light indusrial uses of a relatively
low intensity. Care should be taken to assure compatibility with adjacent land uses.
10. Industrial Planned Development means land set aside for the creative and flexible use
of land for industrial purposes. In these areas, the city and the developer can work
together to create high quality industrial areas in conjunction with other compatible
land uses.
11. Urban Reserve is a designation used to indicate land that is appropriate for future
urban development but not expected to be needed during the term of this plan.
12. Industrial Reserve is a designation used to indicate land that is appropriate for future
urban development but not expected to be needed during the term of this plan.
13. Agricultural means land within the general plan study area- suitable for continued
agricultural use during the term of the plan.
14. Other land use designations used in the general plan and land use map are:
Parks and Recreation, both public and private
Open Space, including floodplain areas.
Schools, both existing and proposed
Public Facilities, such as sewer treatment plants, water facilities, libraries, police
and fire stations.
b. Existing City Area
The existing city has approximately 4,000 acres of land contained within its borders.
The existing types of land uses in this area will continue with only minor changes.
Commercial uses will remain centered in the core area along G Street, and 5th and 6th
Streets. New areas for general commercial uses are provided on the south side of
Nicolaus Road, and to the north near the junction of existing State Route 65 and the
proposed SR 65 bypass.
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Industrial uses are located north of Nicolaus Road with the exception of the Gladding-
McBean facility north and east of SR 65. Areas for industrial planned development are
located on the east and west sides of the Lincoln Airport.
Residential land uses occupy most of the area between Auburn Ravine on the south
and Nicolaus Road, Ninth Street, and the current city boundaries on the north. Additional
residential areas are located north of Nicolaus Road on both the east and west sides of the
proposed State Route 65 bypass.
Public facilities in the Existing City Area include the Lincoln Municipal Airport, the
sewage treatment plant site, City Hall, the library and the cemetery. In addition to the
schools currently located in the existing city { Carl C. Coppin, Glen Edwards and Lincoln
High School}, two additional elementary school sites are planned. Both new school sites
are located south of Nicolaus Road, one east of the North- South Parkway and one to the
west. Three new park sites are located within the Existing City Area. Two of the parks
are located adjacent to the new elementary school sites. The third park site is between
Venture Drive and Lincoln Airpark Drive, within the Lincoln Air Center development.
c. Northern Area
The area to the north of the existing city boundary and east of McCourtney Road is
not anticipated to be needed for urban development and is consequently designated to
remain in agricultural and industrial use for the term of this general plan. The area to the
east of McCourtney and the east of the current city boundaries for approximate- ly one-half
mile is designated for single family residential development. A 13- acre elementary
school site and a 20- acre park site are located within the single family residential area to
the south of the Auburn Ravine lO0 year floodplain.
The remainder of the Northern Area is preserved for future urban development with an
urban reserve designation. No need is seen to develop this area during the term of this
plan, the beautiful oak studded lands found here should be preserved for future residential
and other urban uses.
d. Southeast Area
The general plan land use map designates approximately 50 percent of the Southeast
Area for urban reserve. This urban reserve area totals 3,797 acres and will not be needed
to accommodate projected growth during the term of this plan. Residential land use
designations in this area begin south of State Route 193 and Auburn Ravine, with single
family residential. Approximately three- quarters of a mile south of the ravine, land use
east of State Route 65 changes to industrial planned development and continues eastward
for approximately one- half mile. Moving to the east, land uses once again become
residential, with low and medium density residential predominating. The southwest
corner of this planning area has an industrial reserve land use designation. Approximately
975 acres located to the south of State Route 193 and east of the CDF fire station have
been designated for agricultural use.
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Within the areas designated for residential land use are located sites for three
elementary schools, a junior high and a high school. The Southeast Area also contains 54
acres of parks located on three separate sites. Commercial areas include 36 acres for
neighborhood commercial and 18 acres for business- professional office development.
e. Southwest Area
The Southwest Area contains the proposed alignment for the State Route 65 bypass
which divides much of the area proposed for development. A mix of land uses are
proposed north and south of the alignment. Residential land uses dominate the northern
portion of this area, with a greater proportion of low density residential than medium and
high density residential. Aproximately 28 acres for a business- professional office park
have been set aside just southwest of Moore Road and State Route 65. The remainder of
the SR 65 corridor, both north and south of the bypass, has been set aside for industrial
planned development.
A 131- acre community commercial land use area surrounds the inter- section of the 65
bypass and the major arterial road which loops through the southwest area. An additional
32 acres are provided here for business and professional offices.
South of the 65 bypass are located roughly equal portions of industrial planned
development and residential land use designations. The southeast corner of the planning
area has been placed in industrial reserve and industrial planned development.
Other features of the Southwest planning area are: a site for a new high school, a
junior high and two elementary schools; two new park sites totaling 57 acres; and
provision of a site for a new cemetery. The area surrounding the turkey farm off Moore
Road has been placed in the urban reserve category.
Virtually the entire western half of this planning area remains in the agricultural land
use category due to its continuing potential for crop production and grazing and in
recognition of the lack of need to consider this area for development during the term of
this plan.
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TABLE 2
CITY OF LINCOLN LAND USE SUMMARY
Note: All acres are gross acres and do not include floodplain and lakes or streets and highways.
3. Consistency
Under California law, the general plan must be consistent in two areas. First, the general
plan must be adequate. That means the general plan must contain all elements required by
state law and address all relevant issues. Second, the plan must be internally consistent. That
means the goals, policies, standards, land uses, and implementation measures must be
harmonious.
Zoning is generally considered to be the primary tool for implementing the general plan.
Because of this, state law requires that the zoning ordinance be consistent with the general
plan. This means the land uses allowed by the zoning ordinance must be compatible with the
goals, policies and land uses specified in the general plan. To further strengthen the
consistency regulation, the State Subdivision Ma Act requires that tentative and final
subdivision maps cannot be approved unless the design and improvements are found to be
consistent with the general plan.
The city will use the following policies as necessary to maintain consistency.
Existing Northern Southeast Southwest Total
Area Area Area Area Acres
Residential
Low Density ( 0- 5 du/ acre) 780 497 1,129 513 2,919
Med. Density ( 6- 12 du/ acre) 265 151 104 520
High Density ( 13- 20 du/ acre) 102 43 42 187
Residential Planned Develop. 121 121
3,747
Industrial
Industrial 39 340 45 424
Industrial PD 1,277 8 553 390 2,228
Industrial Reserve 278 676 954
Light Industrial 192 192
3,798
Commercial
Neighborhood 32 36 14 82
Community 171 134 305
Business- Professional 33 18 57 108
495
Parks 228 19 54 57 358
Public Facilities 523 45 25 593
Public Schools 72 14 92 64 242
Urban Reserve 938 3,797 143 4,878
Agricultural 1,460 975 3,823 6,258
Number of Acres
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General Policies
1. Amendments to the Zoning Code, the Subdivisions Code and other implementation
measures will be approved only if they are consistent with the General Plan.
2. Upon adoption of the General Plan, or any amendment, the city will amend the
Zoning Code, the Subdivision codes and other implementation measures as necessary
to maintain consistency.
3. The general test of consistency will be based on an evaluation of whether or not
implementation measures further the goals and policies of the General Plan.
The consistency of existing city zoning categories with proposed General Plan land use
classifications is illustrated in the following consistency matrix.
CONSISTENCY MATRIX
O Denotes zoning is consistent with General Plan Land Use classification
* Denotes zoning is consistent with General Plan Land Use classification, subject to acquisition of a Conditional Use Permit
General Plan Land Use
Classification R- 1 R- 2 R- 3 R- E B- P C H- C L- I I O- S PD
Low Density Residential O O O
Medium Density Residential O O O
High Density Residential O O
Residential Planned Development * * * * * * O
Neighborhood Commercial * O O * O
Community Commercial O O
Business and Professional * O O O
Light Industrial * * O O
Industrial * * O O O
Industrial Planned Development * * * * * O
Urban Reserve O O O O O O O O O O O
Industrial Reserve O O O
Agricultural * * O
Parks and Recreation * * * * O O
Open Space * * * * O O
Schools * * * * O O
Public Facilities * * * * * O * O
Zoning Code
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4. Land Use Goals and Policies
GOAL FOR RESIDENTIAL LAND USE: To designate, protect, and provide land to ensure
sufficient residential development to meet community needs.
Policies for Existing Residential Land Use
1. To prevent the intrusion of incompatible land uses into existing residential areas.
2. To preserve and enhance the quality of existing residential areas by continuing to
provide high- quality public services, by rehabilitating useful structures and by
removing substandard units.
3. To continue programs for the prevention of blight, using all public and private
resources available, including: enforcement of all codes, neighborhood
rehabilitation programs, and redevelopment agency actions.
4. To encourage active involvement by individuals and organized citizens in
maintaining and upgrading of existing residential neighborhoods.
5. To encourage preservation and adaptive reuse of significant historic structures.
Policies for New Residential Land Use
6. To provide a variety of residential land designations that will meet the future needs
of the city.
7. To require that new development in or near existing residential areas be compatible
with the existing neighborhoods.
8. To jointly plan areas contiguous to neighboring jurisdictions in order to ensure
compatible land uses.
9. To promote flexibility and innovation in residential land use through the use of
planned unit developments, developer agreements, specific plans, mixed use
projects, and other innovative development and planning techniques.
10. To designate residential land according to the following scale:
Low density 0- 5 units per acre
Medium density 6- 12 units per acre
High density 13- 20 units per acre
11. To discourage leap- frog or premature development in areas not contiguous to
existing developed areas of city.
12. To prohibit residential land uses within the city from being located within one mile
of the runway at the Lincoln Airport.
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GOAL FOR COMMERCIAL LAND USE: To retain and renew existing commercial land
uses and designate sufficient new commercial areas to meet future city needs.
Policies
13. To promote and renew the existing central business district, in order to provide
diversified business opportunities.
14. To approve designation of sufficient commercial land to meet the future needs of
the city.
15. To ensure that adequate parking and access are included in approved commercial
development plans.
16. To avoid " strip commercial" land uses in newly development areas by encouraging
grouping of commercial land uses in core areas.
17. To mitigate conflicts between new commercial land uses and other land uses,
especially residential, park, and recreational uses.
18. To require that commercial land uses be buffered from incompatible land uses and
protected from encroachment by residential or other incompatible uses through the
use of techniques including, but not limited to, landscaping, soundwalls, berms,
fencing, open space set- backs, greenbelts, and building orientation.
19. To promote flexibility and innovation in commercial land use through the use of
planned unit developments, developer agreements, specific plans and other
innovative development and planning techniques.
GOAL FOR INDUSTRIAL LAND USE: To designate sufficient land for existing and new
industrial uses that is compatible with the existing community.
Policies
20. To require that industrial land uses be buffered from incompatible land uses and
protected from encroachment by residential or other incompatible land uses through
the use of techniques including, but not limited to, landscaping, soundwalls, berms,
fencing, open space setbacks, greenbelts, and building orientation.
21. To encourage industrial land uses that do not harm the environment or pose danger
to city residents.
22. To designate land for industrial uses sufficient to meet future city needs, but limited
to uses that will not negatively impact existing or future neighborhoods.
23. To promote flexibility and innovation in industrial land use through the use of
planned unit developments, developer agreements, specific plans and other
innovative development and planning techniques.
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GOAL FOR LAND OUTSIDE THE CITY LIMITS: To retain rural designations for land
outside the city limits but within the planning area, until annexed to city.
Policies
24. To urge Placer County to maintain low density rural land use designations, and
large parcel zoning in areas outside the city, and to require new subdivisions of land
within one mile of the Lincoln Airport runway to maintain a minimum of one
dwelling unit per 20 acres.
25. To discourage any higher density residential, commercial, or industri- al
development in this area unless public services can be provided and annexation is
accomplished.
26. To promote commercial and industrial development within the city lim- its as more
efficient, economical, and desirable than development outside the city limits.
27. To ensure that agriculture will continue to be a significant land use within the city's
sphere of influence.
28. To ensure that agricultural land uses are not prematurely terminated.
29. To require that agricultural land uses be buffered from urban land uses through the
use of techniques including, but not limited ~ o, greenbelts, open space setbacks,
soundwalls, fencing and berming.
30. To require that no land designated either as Urban Reserve, industrial Reserve be
provided an alternative land use without first evaluating its infrastructure needs and
requiring payment for the facilities needed to develop.
GOAL FOR LAND USE CONSISTENCY: To ensure that the legal requirements for general
plan consistency are fulfilled.
Policies
31. To amend the zoning code and other land use regulations to make them consistent
with the adopted or amended general plan.
32. To approve amendments to the zoning code and other land use regulations only if
the changes are consistent with the general plan.
33. To base the evaluation of implementation measures and actions for consistency with
the general plan or whether or not the measures and actions further the goals and
policies of the general plan.
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GOAL FOR LAND USE COORDINATION: To ensure that land use decisions by the cities
and county in south Placer are coordinated.
Policies
34. To continue to participate in the activities of the South Placer Policy Committee
( SPPC).
35. To consider the effects of land use proposals and decisions on the South Placer area
and the efforts to maintain a jobs- housing balance.
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B. OPEN SPACE, CONSERVATION AND RECREATION ELEMENT
The open space, conservation and recreation element provides a description of the lands and
waters that are unimproved and are to be devoted to natural uses through general plan land use
designation; a description of conservation efforts that will protect and maintain natural resources;
and a description of existing and planned recreation sites and facilities.
1. Description Of Existing Conditions
The planning area consists of urban, agricultural ( grazing) and riparian habitat areas. It is
located within a region of gently rolling foot- hills having an average annual precipitation of
22 inches. Auburn Ravine, a perennial waterway, is located adjacent to the southernmost
boundary of the city limits. Markham Ravine, a seasonal streambed, crosses through the
central portion of the existing city. Runoff through both the Auburn and Markham Ravines
flows westward from the Sierra Nevada foothills east of Lincoln and ultimately discharges
into the Sacramento River southwest of the city. Figure 6 shows existing open space,
conservation and recreation
a. Major Water Courses
The Auburn Ravine provides drainage for the city and supplies water to recharge the
ground water basin. It is also an area of critical concern for the protection of existing
scenic values, natural vegetation and wildlife
Riparian habitats have established feeding and nesting areas within this largely
unspoiled natural waterway, and it provides a broad scenic corridor for passive
recreational opportunities. Large colonies of trees define the meandering flood plain and
stand in contrast with the grasslands of the valley floor. Native trees found in Auburn
Ravine include interior live oak, valley oak, coastal live oak, box elder, poplars, willows,
alders and Oregon ash. Shrubs include elderberry bottom bush, coyote bush, blackberry,
strawberry, native California grape, and poison oak.
The watercourse that flows the length of Markham Ravine does not support a riparian
community. The existing herbaceous cover is essentially that of the surrounding oak
savannah. Although the stream is intermittent, water probably exists through most of the
year in deeper pools formed behind low debris dams. Such emergent aquatic plants as
sedges, rushes and cattails are present and in some places they have been utilized as cattle
forage.
b. Plant Communities
A majority of the non- urbanized portion of the area is characterized as valley
grassland; however most grasslands of this type have been altered by grazing and
agricultural uses over a number of years. This has resulted in the native grasses being
replaced by introduced species. Some vernal pools form during rainy seasons in hardpan
depressions in the area, and wildflowers grow at the edges of these pools for short periods
of time. A few areas contain oaks savannah habitat, with scattered oak trees of the valley
oak, live oak, or blue oak species.
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The urbanized portions of the city contain various common species of mature trees,
shrubs and herbaceous vegetation. The habitat value of these areas has been altered by
the development of roadways, residential and commercial structures and other urban
facilities.
c. Wildlife
The non- urbanized portions of the planning area support a variety of wildlife. Among
the species expected to utilize the area either for habitat or foraging are smaller mammals
such as rabbits, squirrels, mice and skunks. Lizards and snakes are also likely to be found
in the oak savannah areas, as well as a variety of amphibian species in the riparian areas
of Auburn Ravine.
Birds common to the area include sparrows, meadowlarks, killdeer, pheasants, robins,
and various raptors. Other birds seen in the wood- lands include: Townsend's warbler,
American goldfinch, white- crowned sparrow, western bluebird, robin, mockingbird, red-shafted
flicker, crow, scrub jay and yellow- billed magpie. The urbanized portion of the
city supports small rodents, reptiles and a variety of birds, including many of those
mentioned above.
d. Productive Resources
Productive resources include agricultural production, clay deposits, granite deposits,
grazing land and groundwater resources. The clay resources lies north of Ninth Street,
and the Gladding- McBean plant extracts it and stockpiles it for use in their clay products.
A small granite quarry is located north of SR 193 near Pioneer Lane.
A series of wells exists near the Lincoln Airport and more are planned for the near
future. These wells provide an additional source of domestic water for the city. Available
information indicates that groundwater elevations within the city are declining. A study
conducted for the Coon Creek/ Auburn Ravine watershed shows that the average depth to
the groundwater table has increased dramatically from only 23 feet in 1929, to more than
60 feet in 1967, due to overdrafting for agricultural irrigation purposes. Present data
indicates that ground- water levels have continued to drop at a rate of approximately one
foot per year since 1967.
Groundwater within the Coon Creek/ Auburn Ravine watershed is generally of good
quality. The generalized characteristics from the Coon Creek/ Auburn Ravine watershed
study indicate that the water is soft and relatively low in total dissolved solids.
e. Soil Types
The soils within the planning area are predominantly of the Fiddyment- Trigo- Rocklin
association. The soils in this association occur on gently sloping terraces and strongly
sloping sideslopes. They adjoin, on the eastern boundary, the bedrock areas of the lower
foot- hills. The soils are mostly well drained and are developing in granitic alluvium and
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outwash from the Sierra Nevada Mountains. They are mostly shallow to claypans or
hardpans with medium runoff and moderate erosion hazard.
Agricultural suitability under the Storie Index Rating range from grade 2 to grade 5,
with grades 3 and 4 predominating. Soils of Grade 2 are good for most crops, but they
have minor limitations that narrow the choice of crops and have a few special
management needs. Grade 3 soils are only fairly well suited for crops, and have some
limitations that require special management. Grade 4 soils are poorly suited for most
crops; if used, they require special management. Grade 5 soils are very poorly suited for
cultivated crops, but can be used for pasture or range. Areas used for particular crops are
shown on Figure 7.
f. Prime Soil Areas
The Placer County Resource Conservation District ( RCD) recently completed a
survey of productive soils for Placer County, and identified areas within the Lincoln
planning area having prime soils, which were defined as a combination of Class I and
Class II soils. Major prime soil areas exist adjacent to the Auburn Ravine, north of The
Gladding- McBean plant, and in the southwestern portion of the planning area. Figure 8
shows prime soils located in the planning area.
2. Existing Recreational Facilities
Existing recreational facilities serving Lincoln residents include McBean Memorial
Community Park and three community playground facilities located at school sites. McBean
Community Park is 23 acres in size and includes a swimming pool, a community center, a
baseball stadium, a dance pavilion, picnic areas, a tot area and multi- use areas.
In addition to McBean Park, two additional park sites are currently in the planning stage
of development. The park sites, each comprising about 13 acres, are located on the Lincoln
Air Center property adjacent to the Lincoln Airport and on the Joiner Ranch property. The
Air Center park is being planned as a recreational area with lighted softball fields, a field for
soccer or football, basketball and tennis courts, horseshoe pits, rest- rooms, play apparatus,
picnic areas and an open recreational area. The Joiner Park is anticipated to be a
neighborhood park having two ballfields and a number of basketball and tennis courts.
a. Park Development Process
The city's subdivision ordinance has a chapter which provides for the collection of
parkland dedication fees or parkland dedication for new residential developments at the
time that a parcel or subdivision map is processed. The ordinance establishes a park
acreage standard for the city of three acres of parkland per thousand persons.
Subdivisions of 50 parcels or more are required either to dedicate land for park purposes,
to pay a park dedication fee in lieu of land, or a combination of both in order to satisfy
the development's proportion of the adopted park acreage standard. Subdivisions of 50
parcels or less are required only to pay the equivalent in lieu park fee.
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The amount of land or fees required is determined by the city council at the time of
approval of the tentative map. The subdivider must pay the required fees or dedicate land at
the time of filing of the final parcel or subdivision map. The park ordinance exempts
industrial subdivisions, condominium projects consisting of airspace subdivision in existing
apartment buildings, and parcel maps containing less than five parcels not intended for
residential purposes.
According to state law, park fees collected from developers can be used only for the
purpose of developing new or rehabilitating existing park or recreational facilities serving
city residents. State law also limits the amount of parkland or park dedication fees to five
acres of parkland per thousand residents in a community. This figure exceeds the three acres
per thousand currently required by the city; however, this plan raises the city parkland
requirement to the maximum allowed under state law.
In addition to the parkland dedication requirement, the city collects a " park fee" of $ 261
per single family residential unit at the time of building permit issuance. Also, the city uses a
lighting and landscaping district to develop and maintain parks.
b. Park Location Guidelines
The following are guidelines for the selection of potential new park sites. Each site will
have its own merits; however, application of these guidelines will assist in the determination
of a potential site's suitability for park use.
1. The site should help preserve valuable natural and historical features, such as oak
woodlands, streams and natural areas.
2. The site should be easily accessible.
3. The site should allow multi- purpose use.
4. Where possible, neighborhood parks should be located adjacent to elementary
schools, other public open space, or public facilities.
c. Park Standards
Park standards are intended to set city requirements for future park and recreational
facilities. City of Lincoln park standards are shown on Figure 9.
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FIGURE 9
CITY OF LINCOLN PARK STANDARDS
Mini- Park
Use:
Service Area:
Desirable Size:
Acres Per 1,000 Population:
Desirable Site Characteristics:
Neighborhood Park/ Playground
Use:
Service Area:
Desirable Size:
Acres Per 1,000 Population:
Desirable Site Characteristics:
Community Park
Use:
Service Area:
Desirable Size:
Acres Per 1,000 Population:
Desirable Site Characteristics:
Specialized facilities that serve a concentrated or limited
population or specific group such as tots or senior citizens.
Less than 1/ 4- mile radius
1 acre or less
0.25 to 0.5 acres
Within neighborhoods and in close proximity to apartment
complexes, townhouse development or housing for the elderly
Area intended to serve the recreational needs of a residential
neighborhood. Should contain facilities such as playgrounds,
picnic areas and benches. Major landscaping and lighting
should also be present.
1/ 4 to 1/ 2- mile radius to serve a population up to 5,000 ( a
neighborhood)
5- 10 acres
1.0 to 2.0 acres
Suited for intense development. Easily accessible to
neighborhood population, geographically centered with safe
walking and bike access. May be developed as a school- park
facility.
Area of diverse environmental quality. May include areas
suited for intense recreational facilities, such as athletic
complexes, large swimming pools. May be an area of natural
quality for outdoor recreation, such as walking, viewing,
sitting, picnicking. May be any combination of the above,
depending upon site suitability and community need.
Several Neighborhoods 1 to 2 mile radius
25+ acres
5.0 acres
May include natural features, such as water bodies, and areas
suited for intense development. Easily accessible to
neighborhood service.
Source: National Recreation and Parks Association
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3. Future Open Space, Conservation, Recreation
Areas in the existing city now designated as open space, conservation areas, or for
recreational purposes will remain in those designations. There will be no reduction in present
land use designations for these purposes and the city will protect them from conversion to
urban uses.
In areas outside the existing city but within the planning area, a significant amount of
land is designated in the land use element for open space or recreation. Open space
designations occur along all creeks and waterways, on slope areas, in areas with natural
resources, and in areas of scenic beauty. These designations are made to protect the scenic
areas, natural vegetation, fish and wildlife, habitat, and tree colonies in the planning area.
In addition, protective land use designations occur in the largely agricultural area in the
southwest and northern portions of the planning area. These designations are made to protect
these areas from intrusion of incompatible uses and to keep these lands in productive uses.
Large portions of the planning area are designated as urban re- serve and industrial
reserve. These designations are made to indicate it is too early for the City to make specific
land use designations; however, in the distant future, they appear suited for urban or
industrial uses. In the meantime, until the need for specific land use designations arises, these
areas will remain undeveloped. When these areas are ready to have specific land uses
assigned, open space desig- nations similar to other areas of the planning area will be made.
In approving urban- style development in the newer areas of the city, open space buffer
areas will be required between varying land uses. These buffer areas will also include a trail
system to connect various neighborhoods with commercial areas, parks, and schools. The
City also intends to cooperate with Placer County in identifying and protecting aquifers and
ground water recharge areas.
Recreational land use designations in areas outside the existing city are aimed at
designating five acres of recreational area for every 1, O00 residents. In the area outside of
the existing city but within the planning area, seven new parks are designated. Five of these
parks are to the east of SR 65, while two are to the west.
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4. Open Space, Conservation And Recreation Goals And Policies
GOAL: To designate, protect, and encourage natural resources, open space, and recreation
lands in the city; and provide opportunities for recreation activities to meet citizen needs.
Policies
1. To protect natural resource areas, fish and wildlife habitat areas, scenic areas, open
space areas and parks from encroachment or destruction by incompatible
development.
2. To identify and protect, in cooperation with Placer County, local aquifers and water
recharge areas.
3. To protect historically significant and geologically unique areas and encourage their
preservation.
4. To promote continuing agricultural use of prime soils in the planning area for lands
presently under cultivation and with no plans to stop agricultural use.
5. To protect heritage oaks and other significant vegetation from destruction.
6. To encourage energy conservation in new developments.
7. To cooperate in a coordinated approach to the management of drain- age areas and
flood plains.
8. To require dedication of park land in new residential development to meet city
standards.
9. To provide park facilities in accordance with adopted park standards and phasing.
10. To provide recreation programs that meet citizens needs.
11. To support and cooperate with volunteer groups and organizations that provide
recreation activities to young people.
12. To encourage the use of city reclaimed water, in place of city- treated potable water,
by industrial and recreational uses.
5. Open Space/ Conservation Action Plan
The Lincoln planning area contains a significant amount of land devoted to open space,
conservation and recreation uses. Within the existing city area, the predominant types of
open space recommended are those devoted to parkland and the protection of riparian and
natural drainage areas. The purpose of the open space/ conservation action plan is to help
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assure the adequate provision of recreational areas, the protection of existing and future open
space areas, and the conservation of important natural re- sources.
Action Plan for Open Space, Conservation, and Recreation Needs:
1. The city will apply open space designations to all lands located within lO0 year flood
plains, land located within 50 feet from the center channel of all perennial and
intermittent streams and creeks providing natural drainage, and to areas consisting of
riparian habitat. In designating these areas as open space, the city is preserving natural
resources and protecting these areas from development.
2. The amount and location of any future park land to be developed within the city will be
determined by adopted park standards and location guidelines.
3. The city will investigate the availability of, and consider apply- ing for, state and federal
grants to be used for the preservation and enhancement of open space, conservation, and
recreation areas.
4. The city will discourage the premature and unnecessary conversion of open space land to
urban uses by requiring development to be contiguous.
5. The city will protect mineral deposits, groundwater recharge areas, and areas particularly
suited for recreation uses from urban development.
6. The city will continue to collect park dedication fees, require the dedication of park land,
or a combination of both as a condition of development approval for the development of
new parks, or the rehabilitation of existing parks and recreational facilities in order to
provide five acres of park area per thousand persons residing within the city.
7. The city will continue to collect park user fees for the maintenance of existing park and
recreation facilities.
8. The city will continue to include park and recreation improvement and maintenance
projects in its capital improvement programming.
9. The city will continue to provide equipment, such as picnic tables, benches, trash cans
and drinking fountains, in city parks, and' will adequately maintain or replace such
equipment when necessary.
10. The city will continue its long term revitalization program to beautify and upgrade all city
parks.
11. The city will continue to use the lighting and landscape district to develop and maintain
parks.
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C. CIRCULATION AND TRANSIT ELEMENT
The circulation and transit element provides a description of streets and roads, highways,
transit services, and other transportation services and facilities within the city and the general
plan study area. The element provides a plan for the transportation and transit services and
facilities necessary to serve the development of city as envisioned in the land use element of the
general plan.
1. Description of Existing Conditions
a. Streets and Roads
The city of Lincoln is served by state highways 65 and 193. State Route 65 provides
direct access to the cities of Roseville and Rocklin in southern Placer County and to
Interstate 80 and points west. It also provides access to the north valley towns of
Marysville, Yuba City and Oroville. State Route 193 is a short route linking Lincoln and
Newcastle. It is the city's connecting link with Auburn and points east on Interstate 80.
Major streets are Nicolaus Road ( Ninth Street), 1st Street, 3rd Street, 7th Street, 12th
Street, East Avenue, 0 Street and Aviation Boulevard.
State Route 65 through the city is a two- lane conventional highway. There are
signalized intersections and a 25 mph speed limit. This segment of the highway also
serves locally- generated traffic. According to the CalTrans Route Concept Report for
State Route 65, this segment of the highway is currently operating at level of service
( LOS) C ( see Figure 10 for definition of levels of service). Traffic in this segment is
expected to almost double to more than 18,000 average daily trips ( ADT) by 1995,
creating service at E level of service.
FIGURE 10
LEVEL OF SERVICE DEFINITIONS
Level of
Service
“ A”
“ B”
“ C”
“ D”
“ E”
“ F”
Intersection
Uncongested operations, all queues clear in a single- signal
cycle.
Uncongested operatons, all queues clear in a single cycle.
Light congestion, occasional back- ups on critical
approaches.
Significant congestion of critical approaches but intersection
functional. Cars required to wait through more than one
cycle during short peaks. No long queues formed.
Severe congestion with some long- standing queues on
critical approaches. Blockage of intersection may occur if
traffic signal does not provide for protected turning
movements. Traffic queue may block nearby intersection( s)
upstream of critical approach( es).
Total breakdown, stop- and- go operation.
Highway
Free flow vehicles unaffected by other vehicles in the
traffic stream.
Higher speed range of stable flow. Volume 50 percent
of capacity or less.
Stable flow with volumes not exceeding 75 percent of
capacity.
Upper end of stable flow conditions. Volumes do not
exceed 90 percent of capacity.
Unstable flow at roadway capacity. Operating speeds
30- 25 MPH or less.
Stop- and- go traffic with operating speeds less that 30
MPH
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State Route 193 is a two- lane undivided conventional highway. The highway enters the
city from the east on McBean Park Drive. The CalTrans 1986 Traffic Volumes Report
indicates that annual average traffic volume for the highway at its junction with State
Route 65 was 7,800 ADT. East of Lincoln, outside of the city limits, the ADT volume
drops to 5,000. Most of the roadway between Lincoln and Auburn is narrow, with no
shoulders, and operates at LOS D. Trucks comprise a comparatively large percentage of
the traffic. CalTrans projects that the volume of traffic along State Route 193 will almost
double by the year 2005, and the LOS will drop to LOS E.
Average daily trips for selected points along Routes 65 and 193 are illustrated below:
TABLE 3
AVERAGE DAILY TRIPS FOR STATE ROUTES 65 AND 193
Source: 1986 Traffic Volumes report, Caltrans.
There are only a few major arterials in the planning area, including Industrial Avenue,
Aviation Boulevard, and Nicolaus Road. Arterials are intended to carry large volumes of
traffic. Nicolaus road is a well- traveled road connecting SR 65 and the Lincoln Airport.
Indus- trial Avenue is in the unincorporated area, in the southern end of the planning
area, and provides access to the Sunset Industrial Park.
Collector streets carry traffic from neighborhood residential streets to arterials, but are
not designed to carry large volumes of traffic. Existing collector streets include Third
Street, Fifth Street, L Street, 0 Street, East Avenue, Seventh Street and D Street.
The remainder of the streets in the existing city area are local streets, whose principal
function is providing access to property. While moving traffic is a primary function, they
are not designed to carry high volumes of traffic.
Intersection Peak Month Annual Average
SR 65/ Moore Road 12,700 11,500
SR 65/ Junction SR 193 14,900 13,500
SR 65/ Markham Ravine Bridge 8,500 7,700
SR 193/ Junction SR 65 9,000 7,800
SR 193/ Auburn Ravine Bridge 6,200 5,300
SR 193/ Missile Road 5,900 5,000
SR 193/ Sierra College Boulevard 5,700 4,800
Average Daily Trips
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b. Public Transit
Public transit service in Lincoln is provided by the Lincoln Transit service. Lincoln
Transit is operated by the city, and provides weekday fixed- route service within the city
limits from 7: 30 a. m. to 8: 12 a. m. and then from 10: 30 a. m. to 3: 45 p. m. Lincoln Transit
also provides a morning and afternoon commuter shuttle to McClellan Air Force Base.
Greyhound Bus Lines provides scheduled service to Lincoln from Sacramento twice
daily. Carpools and vanpools can also be arranged in the Lincoln area by calling the
CalTrans Rideshare office. A park- and- ride facility exists at McBean Park.
c. Railroads
Southern Pacific Railroad operates a mainline through the center of Lincoln along the
west side of Highway 65. This line is used only for freight service within Lincoln,
although Amtrak service operates through the city. Amtrak terminals are located in
Sacramento and Marysville. The railroad tracks cross seven streets at grade in the
downtown area, and the gate controlled track crossings can cause queues of waiting
vehicles to form while trains pass.
d. Bicycle Facilities
To date, bicycle use in Lincoln is limited to existing streets without bike lane
delineations. The city does have, however, an adopted bike route plan. This plan is
illustrated in Figure ll. The Placer County Master Bikeway Plan, shown in Figure 11a,
also incorporates Lincoln into the regional bikeway system.
e. Truck Route System
Lincoln has an adopted truck route system, the purpose of which is to manage truck
traffic within the city to minimize congestion and undesirable noises. Trucks can use
State Routes 65 and 193, H Street, and Nicolaus Road. The city's truck route system is
illustrated in Figure 12.
f. Lincoln Municipal Airport
The Lincoln Municipal Airport serves as an important transportation link. During
1986, there were an estimated 200 aircraft based at the airport, and an estimated 70,500
operations. The airport is owned by the city, and operated by the Lincoln Airport
Authority, which is a public entity created through a joint powers agreement between
Lincoln and Placer County. In addition to serving recreational flying needs, the airport is
increasingly being used by corporate aircraft as industrial development continues in the
South Placer County area as a whole.
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2. Future Circulation and Transit
Growth and development in the city will significantly impact the existing circulation and
transit system. The present system will be unable to handle the growth expected. Major
expansion of the circulation and transit system will be required if service levels are to remain
as they are. Without these new facilities and services, service levels will deteriorate, possibly
to unacceptable levels. The following sections describe the expected long term expansion
needs for circulation and transit.
a. State Highways
1. State Route 65
State Route 65 is a south to north highway that traverses Placer and Yuba counties
and passes through the Lincoln General Plan study area. Route 65 enters the existing
city on " G" Street and continues on " G" through the central area of the city. This
segment is a two- lane conventional highway through the city. There are signalized
intersections, a 25- mile per hour speed limit in this segment, and local traffic is added
to the highway.
This segment is currently operating at level of service C ( LOS C). ( See Figure 10
on p. 45 for level of service definitions.) Traffic on this segment is expected to almost
double, to more than 18,000 vehicles per day at LOS E, by the year 1995. The
CalTrans Route Development Plan for Route 65 lists as an improvement, purchase of
right- of- way for a new four- lane expressway of Lincoln west of the current alignment.
However, no specific state route has been adopted for this corridor. According to the
CalTrans " Route Concept Report for State Route 65," the 65 bypass of Lincoln would
ideally be built within the 1995- 2005 period. With- out improvements, this segment is
projected to be operating at LOS F through Lincoln by the year 2005 with more than
40,000 vehicles per day.
This general plan circulation element designates a route for a 65 bypass. It is the
city's intent to reserve this right- of- way at 210 to 230 feet in width so that it could
ultimately be adopted by the state as the bypass route consistent with engineering
standards for state highways. The bypass could then be developed in a phased manner
over time, as funds become available through state and city sources.
2. State Route 193
The segment of State Route 193 serving Lincoln connects Lincoln and Newcastle
and provides through traffic service between several valley communities and 1- 80 to
the east. Logging and agricultural trucks use this route in significant numbers.
Recreational travelers also use this route. Due to projected growth in western Placer
County and its relative importance as a through route, this segment of SR 193 has a
Route Concept LOS C with present LOS D. No major improvements are planned for
the next 10 years.
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During the second ten- year period, the CalTrans Route Concept Report states a
possible realignment from south of Lincoln to Sierra College Boulevard may be
warranted to upgrade the LOS. As an alternative to this improvement, CalTrans states
that a new alignment for the entire Route 193 roadway from Lincoln to Newcastle
should be considered in the 1995- 2005 timeframe.
Because of the uncertainties regarding the need for and loca- tion of a State Route
193 bypass of Lincoln, an alignment for such a bypass has not been included in this
circulation element. How- ever, the internal circulation problems created by the
routing of Route 193 into the city of Lincoln on Fourth Street and potential growth
into the Southeast area have been considered and dealt with in the arterials section of
this element.
3. State Route 102
Route 102 is an unconstructed route described by the state as " from Route 5 near
Elkhorn to Route 80 near Auburn." The CalTrans Route Concept Report for State
Route 102 proposes an alignment north of and generally parallel to 1- 80 from the
junction of Routes 5/ 99 to 1- 80 east of Auburn near Bowman. The corridor for Route
102 proposed by CalTrans is shown in Figure 13. The corridor passes just south of the
current city boundaries and then cuts across Route 193 east of the city.
The City of Lincoln strongly supports the development of State Route 102. Such a
route would greatly improve access from Lincoln to both the Sacramento area and 1-
80 to the east. Such a route would also solve at least some of the problems with Route
193 from Lincoln to Newcastle discussed earlier.
b. Arterials1
Future development in the city will require major additions to the system of arterials
in all areas. These expansions will be needed to serve the expanding population in both
the existing area of the city and in the newer areas. Exact timing of these additions
depends upon the pace of growth and development approvals. Likewise, detailed de-signs
for arterials, intersections, and other configurations must wait for specific
development plans.
In the existing area, arterial improvements needed will include a four- lane Joiner
Parkway, connecting on the north to Lincoln Airpark Drive at the SR 65 bypass; a four-lane
Nicolaus Road from Joiner Parkway to Airport Road; and two to four lanes from
Aviation Boulevard to Lincoln Airpark Drive.
1 Arterials are major local streets, which carry the bulk of traffic between residential
areas and state highways, commercial centers, places of employment, and recreation
areas.
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In the northern area, no new arterials will be required and no major expansions of
existing arterials are expected.
In the southeast area, a completely new circulation system will be required. Arterial
requirements are centered on arterial A, a north-- south four- to six- lane arterial acting as
the major transportation corridor in this area. On the north, Arterial A connects to Arterial
B, which runs east- west from Arterial C and D. Arterial C is intended to carry traffic
from SR 193 south to existing SR 65. Arterial D is expected to be a longer- term
requirement, servicing some of the development through 2010, but primarily designed for
service to the present- ly designated urban reserve area. Arterials J and K are two- lane
arterials connecting Arterials B, C. and D.
In the western side of the southeast area, Arterial E will serve industrial uses, then as it
crosses Arterial A it will serve residential uses and the future uses in the urban reserve
area. The western portion of Arterial E crosses the existing SR 65, and connects up with
Ganadero Boulevard in the southwest area. Arterial F will be the primary service road for
the industrial area and connects to Arterial G and SR 65 south of the city. This
configuration will allow trucks to service the industrial areas without impacting
residential areas.
In the southeast area, Arterial G will be a major four to six- lane facility providing
access to both the east and the west side of SR 65 and the railroad tracks. Arterial G,
connecting at SR 65 south of the city, will allow access to the new areas without going
further north along SR 65 and will provide a southern east- west route across SR 65 and
the railroad tracks.
On the west side of SR 65 south of the existing city, Ganadero Boulevard will be the
main arterial. This circular arterial will ex- tend south from the end of Joiner Parkway
and circle back and connect south of Moore Road. Arterial H connects Ganadero
8oulevard to Arterial G and allows for southern access. Arterial I forms a loop off of and
back on to Ganadero Boulevard north of the proposed SR 65 bypass, while Arterial J
connects Arterial I to existing SR 65.
c. Public Transit
As Lincoln grows, the routes covered by the Lincoln Transit service will be expanded
to serve newly developed areas. The city will continue to require that private developers
dedicate appropriate transit amenities such as bus turnouts, bus shelters and park- and- ride
lots as feasible, the city will be linked up with the Placer County Transit System so as to
provide inter- city public transportation services for city residents.
d. Bicycle Facilities
Bicycle facilities within the existing city area will be developed incrementally as part
of individual projects in accordance with Lincoln's adopted bike routes plan. In newly
annexed areas, the city will work with developers to assure the provision of appropriate
bike routes and facilities as development occurs.
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e. Airport Expansion
The growth of Lincoln Municipal Airport is likely to be dramatic especially since
airports are closing in nearby north Sacramento County, and major industrial
development is predicted to occur in the south Placer County and Lincoln areas. Other
general aviation airports in Sacramento County are crowded, and Lincoln Airport is the
only Placer County airport which has a large growth capacity. The Lincoln Airport
Authority has proposed major improvements to the airport over the next 20 years. These
improvements are discussed in detail in the Lincoln Municipal Airport Layout Plan
( September 1979).
f. Rai1roads
Changes are not expected to occur with respect to railroad operations as they affect the
city. Grade separations to reduce automobile queues when trains pass through Lincoln
will be strongly encouraged in new developments.
g. Truck Routes
As the city grows, adopted truck routes will be periodically examined, and modified if
necessary, to keep congestion and noise impacts to a minimum.
3. Circulation and Transit Goals and Policies
GOAL: To provide and maintain a safe and efficient system of streets, highways, and public
transportation to meet community needs and promote sound land use.
Policies
1. To maintain existing streets in a safe condition and require that new streets be built
to city standards.
2. To ensure that streets and highways will be available to serve new development by
requiring detailed traffic studies as a part of all major development proposals.
3. To require bike lanes in the design and construction of major new street and highway
improvements, and to establish bike lanes on those city streets wide enough to
accommodate bicycles safely.
4. To designate truck routes in order to keep truck traffic away from residential areas.
5. To promote and support public transit services that meet residents needs.
6. To promote pedestrian convenience through development conditions requiring
sidewalks, walking paths, or hiking trails that connect residential areas with
commercial, shopping, and employment centers.
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7. To require landscaping and tree planting along major new streets and highways.
8. To encourage a variety of building sites, building types, and land use treatments
along major streets and highways.
9. To seek construction of new grade separated crossings in newly developing areas.
10. To pursue the funding and construction of a bypass for State Route 65.
11. To promote the use of public transit through development conditions requiring park-and-
ride lots, bus turnouts and passenger shelters along major streets adjacent to
areas of high residential density.
12. To enforce the transportation system management requirements of the existing
ridesharing ordinance.
13. To promote and support the development of regional bikeway links as established in
the County Bikeway Master Plan.
14. To maintain a minimum level of service " C" for all streets and intersections.
15. To support future bypass studies for State Route 193.
16. Support the study of State Route 102 provided that the study includes alternative
transportation corridors and alternative modes of transportation: e. g. light rail,
dedicated high occupancy vehicle ( HOV) lanes, etc. Further, that the state pursue an
alignment for the route which will pass through those areas designated as either
Urban Reserve or Industrial Reserve.
17. To require a landscaping setback up to a maximum of 50' and a tree planting
program along State Highway 65 and State Highway 193.
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D. COMMUNITY SAFETY ELEMENT
The community safety element provides a description of activities and services which provide
protection from natural and manmade hazards. Consideration will be given in this element to
various hazards associated with earthquakes, fires and flooding. The desired result is to reduce
the loss of life, injuries, damage to properties, and dislocations resulting from the hazards
identified.
1. Description Of Existing Conditions
a. Seismic Safety
The city of Lincoln is located in the southwestern portion of Placer County which is
relatively secure from damage and loss due to earthquakes and subsequent seismic
occurrences. In a rating of Maximum Expectable Earthquake Intensity from low to high,
the city is within the low intensity severity zone, with minor to moderate probable
damage occurring in the event of an earthquake. While no active or inactive faults are
known to exist near the Lincoln area, the 6.1 magnitude earthquake which rocked
Oroville on August, l, 1975 indicates that ancient stable faults or an unknown fault can be
reactivated through some unforeseen mechanism.
Historically, seismic activity in the northern Sacramento Valley has been slight in
comparison to the rest of the state. Throughout recorded history, no major movements
have occurred. Earthquakes felt locally are from seismic disturbances to the west of the
valley and include the San Andreas, Calaveras and Hayward faults. The greatest ground
shaking in the Sacramento area occurred on April 21, 1892. The epicenter was between
Winters and Vacaville in Yolo County. No fatalities occurred in Lincoln and only minor
structural damages resulted from the earthquake.
b. Flood Protection
The city experiences two types of flooding. The first is associated with the Markham
and Auburn Ravines and their tributaries. The second is localized in nature and due to
inadequate surface flow. Heavy rainfall periods can result in both types of flooding
occurrence.
General rainy season floods can occur in the city of Lincoln any time during the
period from November through April. This type of flood results from prolonged, heavy
rainfall and is characterized by high peak flows of moderate duration and by a large
volume of runoff. Flooding is more severe when prior rainfall has resulted in saturated
ground conditions.
Cloudburst storms, sometimes lasting as long as three hours, can occur any time from
late fall to early spring, and may occur as an extremely severe sequence within a general
winter rainstorm. These are high intensity storms that can produce peak flows equal to or
somewhat greater than those of general rainstorms in portions of the city. Flooding from
cloudbursts is characterized by high peak flow, short duration of flood flow, and a small
volume of runoff.
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Flood insurance maps prepared for Lincoln by the Federal Emergency Management
Agency ( FEMA) indicate that land directly adjacent to Markham Ravine, Auburn Ravine
and their major tributaries are within the lO0 year floodplain. Base flood elevations were
not determined for the Markham Ravine watershed, but have been determined for Auburn
Ravine. The floodplain areas of Auburn Ravine have little existing structural
development. The Markham Ravine crosses Nicolaus Road where flooding has closed
and washed out the roadway on a regular basis.
A general lack of curbs and gutters in portions of the city and locally inadequate or
incomplete storm drains results in standing water that is both a nuisance and a potential
hazard. Airport Road and portions of Nicolaus Road both experience closure on occasion
from localized flooding during the winter season.
Other drainage problems are manmade obstacles to natural drainage flow, such as the
existing railroad and highway bridges at the city limits on Auburn Ravine. During periods
of high water runoff, these barriers back water up south along SR 65 in a natural
depression, and south between the railroad tracks and SR 65.
Figure 15 illustrates lO0 year floodplain areas within the city. More detailed
information can be found by consulting the Flood Insurance Rate Maps prepared by
FEMA, which are available at the Lincoln Planning Department.
c. Fire Protection
Provided via a single transmission line connecting the Water Agency Sunset Water
Treatment Plant to the city's two water storage et c Municipal Airport. Prior to the
development of these wells and their interconnection to the city water system, numerous
pipe ruptures occurring between the Sunset Plant and the city's water tank had threatened
to deplete the water available to fight fires. Connection of the well system has, however,
provided an alternate source of water should such ruptures occur in the future. Addition
of a new 1.5 million gallon water tank adjacent to McBean Park has also assisted in
securing a reliable water supply.
A significant amount of rangeland exists within the planning area, and fire danger is
high in summer months in these areas. Dry range grass is susceptible to wildland fires
which can move quickly if accompanied by a stiff breeze. The Lincoln Fire Department
serves the area within the city limits and the California Division of Forestry serves the
remainder of the Lincoln planning area.
d. Hazardous Waste Management
The production, storage and transportation of hazardous materials within the city
creates the potential for accidents or spills. While the city has little control over
transportation through the city of hazardous wastes by truck or rail, it does require
businesses located within the town to report the existence of such materials on an annual
basis. Such reporting allows for the quick identification of hazardous materials in
emergency situations.
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Ordinance No. 453B, " An Ordinance of the City of Lincoln Relating to Hazardous
Materials Disclosure," has been adopted in order to pro- vide information on the presence
of hazardous materials to firefighters, health officials, planners, elected officials and
residents so as to protect- the health and welfare of the community. The ordinance defines
hazardous material in accordance with the pertinent sections of the California Labor
Code, the California Health and Safety Code, the California Administrative code and by
the Nuclear Regulatory Commission. Enforcement of the ordinance's disclosure
requirements is the responsibility of the city.
e. Emergency Preparedness
The city adopted an emergency plan in October 1983, the goal of which is to help save
lives and minimize property damages through prior planning and emergency
preparedness training in the event of a major disaster. The plan is an extension of both the
county and state emergency plans, and it establishes an emergency government
organization, assigns tasks, provides guidance, specifies policies and general procedures
and provides for the integration and coordination of the planning efforts of various
emergency staff and service elements.
f. Lincoln Municipal Airport Safety Areas
The Foothill Airport Land Use Commission has adopted a Comprehensive Land Use
Plan ( CLUP) for the Lincoln Municipal Airport and the city of Lincoln adopts the CLUP
by reference as part of its general plan. The CLUP establishes specific safety areas
surrounding the airport and contains policies and land use compatibility guidelines which
regulate the type of use allowed within each safety area. These airport safety areas are
illustrated in Figure 16.
Within Safety Area l, the CLUP defines most urban uses as being incompatible.
Within Safety Area 2, single family residential development in excess of two units per
acre is prohibited, as are uses resulting in concentrations of people. Such uses include
shopping centers, restaurants, schools, factories, hospitals, office complexes and
hospitals. Most uses are permitted within Safety Area 3, with the exception of uses such
as stadiums, auditoriums, concert halls, theaters and others which could result in very
large concentrations of people. In addition to the above provisions, the CLUP limits
residential density located within one mile of the runway to five or less dwelling units per
acre.
The policies and land use compatibility guidelines in the Lincoln Municipal Airport
CLUP should be consulted to determine the compatibility or incompatibility of specific
land uses within each safety zone.
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g. Other Hazards
Areas of steep ground slope generally do not occur within the existing city limits.
Steep slopes which could be a hazard to future development do, however, exist within the
eastern portion of the city's planning area. In the future, if this area is annexed to the city
for urban development, site planning and environmental controls will be governed by the
policies of the general plan.
Natural gas transmission lines cross through the planning area are shown in Figure 25,
contained in the Public Services and Facilities Element. The potential for manmade
hazards occurring from the rupture of these lines will continue to be considered carefully
in the planning and development of the city and in emergency response plans.
An additional hazard is the possibility of train derailment along the Southern Pacific
rail lines which bisect the city. The tracks can also present a barrier to movement of
emergency equipment from one side of the city to the other.
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2. Future Community Safety
Development and expansion of the city will not result in the exposure of residents and
property to unacceptable natural hazards. Continuation of existing standards for engineering
analysis of new developments, the maintenance and periodic update of the city's Emergency
Plan and the prohibition of residential construction below 100 year flood levels and in areas
of steep slope will minimize the danger of hazards that do exist.
The effectiveness of fire service can be hindered by poor street design and inadequate
water systems. Currently a number of dead- end streets exist within the city. As new
development occurs, efforts will be made to connect dead- end streets and to continue
provision of an assured water supply system to maintain and improve the ability of existing
fire services to serve the city.
The Southern Pacific railroad tracks which could present a barrier to emergency
equipment could be mitigated with grade separation. A bridge would allow crossing of the
tracks when they are in use and would alleviate any delay of fire fighting and police services.
3. Community Safety Goals And Policies
GOAL: To minimize the danger of natural and man- made hazards and to protect residents
and visitors from the dangers of earthquake, fire, flood other natural disasters, and man- made
dangers.
Policies
1. To require engineering analysis of new development proposals in areas with possible
soil instability, flooding, earthquake faults, or other hazards, and to prohibit
development in high danger areas.
2. To cooperate with and support the formation of a coordinated approach for the
construction, operation, and maintenance of drain- age and flood control facilities.
3. To require master drainage plans as a condition of approval for large development
projects.
4. To maintain a current city emergency plan for use in emergency situations.
5. To require new residential construction to have its lowest habitable floor elevated
above the base flood level elevation.
6. To prohibit development along stream channels that would reduce the stream
capacity, increase erosion, or cause deterioration of the channel.
7. To require disclosure of hazardous materials by those using them within the city or
proposing to use them in new industrial or commercial activities.
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8. To enforce the city building code, fire code, and city ordinances in regard to fire
safety and fire protection.
9. To limit development in areas with severe slopes.
10. To discourage the location of firms in the planning area which require treatment of
industrial waste, unless the waste is pre- treated to a secondary stage level as defined
by the State of California.
11. To require that development around the Lincoln Municipal Airport be consistent with
the safety policies and land use compatibility guidelines contained in the approved
Airport Land Use Commission Plan.
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E. NOISE ELEMENT
The noise element provides an analysis of community noise and the exposure to noise by
citizens. The purpose of the noise element is to protect citizens from noise that could jeopardize
their health or welfare.
The ambient noise of a community is all environmental noise, which is usually a composite of
sound from many sources near and far. The noise of individual events, such as a passing car or
train, an aircraft flying overhead or a lawn mower in the neighborhood, are superimposed on this
composite of sound.
The human ear can hear frequencies from 20 to 20,000 Hertz, although it does not hear them
all equally well. In measuring sound frequency, the most widely used decibel scale is the A-weighted
sound pressure level which is measured in A- weighted decibels or dbA. The A-weighted
scale covers a frequency range of 400 to 12,000 Hertz. Like the ear, it is more sensitive
to the higher, rather than the lower frequencies. The measuring unit " decibel ( db)" is used to
express the relative loudness of sound.
Community Noise Equivalent Level ( CNEL) and Day- Night Level ( Ldn) are descriptions of
daytime noise levels. They are a weighted average of daytime and nighttime sound levels, with
the nighttime noise being weighed more heavily. Ldn or CNEL differ slightly, but for the
purposes of this Noise Element will be regarded as being the same. Figure 17 shows the
correlation between measured Ldn values and various types of community noise.
1. Existing Conditions
Major sources of noise within the planning area are a result of vehicular traffic, aircraft,
and railroad operations.
a. Traffic Sources
Vehicular traffic, including autos, trucks, buses, utility, and maintenance vehicles,
generally establish the ambient sound ( normal background sounds) in a community. This
ambient level varies through- out the day based upon the intensity of other community
sound sources. Furthermore, the ambient level is dependent upon traffic flow rate,
average vehicular speed, distance to sound receivers and the ratio of types of vehicles.
Superimposed upon this ambient level are the intrusive, single- event sounds emitted from
" specially- equipped" trucks, cars and motorcycles. All vehicular sounds are attributable
to four sources: rolling stock ( tires, gears, etc.), body rattles, vehicular aerodynamics and
engine noises.
The major source of vehicular traffic noise within the city is Highway 65, with the
most significant noise levels being contained within the existing Central Business
District. CalTrans estimates that traffic levels along Highway 65 through the city will
nearly double by 1995 and will nearly triple by the year 2005. This estimate does not
assume the construction of a Highway 65 bypass during these time periods. Should the
bypass be constructed, projected traffic levels along the existing route could be reduced
by as much as 50 percent due to the reduction in through- traffic. Projected noise contours
would therefore also be decreased.
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The following noise contour information illustrates estimated present and future noise
exposure levels for these areas adjacent to Highway 65.
TABLE 4
NOISE CONTOURS ALONG HIGHWAY 65 THROUGH LINCOLN
Noise in excess of 65 Ldn along local streets and roads is generally limited to street
righ