REPORT TO THE PLANNING COMMISSION
January 21, 2026
FROM: JENNIFER K. CLARK, AICP, Director
Planning and Development Department
ASHLEY ATKINSON, AICP, Assistant Director
Planning and Development Department
THROUGH: Sophia Pagoulatos, Planning Manager
Planning and Development Department
BY: JUAN LARA, Planner III
Planning and Development Department
SUBJECT
Title
HEARING to consider the adoption of the Central Southeast Area Specific Plan and related Environmental Assessment. The following applications have been filed by the Fresno City Council and pertain to approximately 2,067 acres in the Southeast area of the City of Fresno:
1. RECOMMEND ADOPTION (to the City Council), of a finding set forth in Environmental Assessment No. P23-00400 dated December 19, 2025, of a Mitigated Negative Declaration pursuant to CEQA Guidelines Section 15168(d) (see Exhibit H).
2. RECOMMEND APPROVAL (to the City Council) of Plan Amendment Application P23-00400 which proposes to:
a. Repeal the Roosevelt Community Plan, pertaining to approximately 15,721 acres, and the Butler/Willow Specific Plan, pertaining to approximately 563 acres (see Exhibit B).
b. Adopt the Central Southeast Area Specific Plan and accompanying Planned Land Use Map (see Exhibits A, B and C).
c. Amend the Planned Land Use Map (Figure LU-1) of the Fresno General Plan to incorporate the land use changes proposed in the Central Southeast Area Specific Plan (see Exhibit D).
d. Rezone approximately 119 acres of property within the Central Southeast Area Specific Plan area to be consistent with the planned land uses proposed in the Plan (see Exhibit E).
Body
EXECUTIVE SUMMARY
The proposed project is the adoption of the Central Southeast Area Specific Plan (Plan), which entails the repeal of the Roosevelt Community Plan and the Butler/Willow Specific Plan, amendment of the Fresno General Plan, and the rezoning of approximately 119 acres in the Plan Area. This report describes the planning process as well as the key elements of the Plan. The City of Fresno Planning Commission last heard this item on May 31, 2023, when it recommended approval of these actions. The Plan is now being presented for the Commission’s consideration with subsequent minor updates and recent outreach to property owners affected by land use changes.
BACKGROUND
The creation of a specific plan for the Central Southeast Area originated with community members who desired an actionable plan to address a broad array of neighborhood concerns. The last comprehensive planning effort that had been undertaken specifically for that part of the City of Fresno was the Specific Plan for the Butler/Willow Area adopted in 1971, and the Roosevelt Community Plan adopted in 1992. Since that time, conditions had changed enough to merit a new focused planning effort. In 2017, $550,000 in Community Development Block Grant (CDBG) funding was allocated to finance the specific plan and a related environmental assessment. Since CDBG funds must be spent within the City, the boundaries of the specific plan area coincide with City limits (see Vicinity Map in Exhibit A). City Council initiated the plan in June 2020.
The Specific Plan Area is approximately 2,067 acres east and southeast of Downtown Fresno and is bounded by Belmont Avenue to the north, Fourth Avenue to the west, Church Avenue to the south, and Peach Avenue to the east. Additionally, the Specific Plan Area is located within the Roosevelt Community Plan area and overlaps a portion of the Butler/Willow Specific Plan area.
Specific Plans in the California Government Code. California Government Code Section 65450 defines Specific Plans and sets out the regulations for their use. Fresno’s Specific Plans systematically implement the Fresno General Plan for all or part of the area under their scopes in one of three ways: 1) by acting as statements of planning policy that refine the Fresno General Plan policies applicable to a defined area; 2) by directly regulating land use, or 3) by bringing together detailed policies and regulations into a focused development scheme. The Plan most closely represents 1) and 2), since it includes a new planning policy for the area, and it proposes to regulate land use by amending the planned land use of strategic properties in the area and correspondingly rezoning said property for consistency.
Specific Planning Process & Community Outreach
The process of creating the Central Southeast Area Specific Plan consisted of the following steps:
• Project Kick-off and Existing Conditions Report
• Initial Community Outreach / Develop “Big Ideas”
• Selection of Guiding Principles and Priority Goals and Strategies
• Recommendation of Proposed Land Use Map
• Plan Initiation through Planning Commission and City Council
• Completion of Environmental Assessment and Specific Plan
• Public Review of Draft Specific Plan and Environmental Assessment
Outreach and participation during the planning process was multifaceted and extensive. It included numerous stakeholder interviews, three community workshops, 20 mobile workshops, two surveys and nine steering committee meetings. All steering committee meetings were noticed according to the Brown Act. Hard copies of key documents were placed in libraries and community centers in the Plan Area. The components of the outreach process are described in more detail below:
Steering Committee Meetings. A 15-member steering committee made up of neighborhood residents, business owners, and other stakeholders was appointed by Councilmember Chavez. Represented on the committee were community organizations such as Habitat for Humanity, Leadership Counsel for Justice and Accountability, the Fresno Fair, the Fresno Center, Reading and Beyond, Neighborhood Church, and the Southeast Fresno Community Economic Development Association. The committee’s task was to translate community input into the development of the Proposed Land Use Map and Guiding Principles. The steering committee had a series of meetings on several subjects and elements of the Plan and provided input to the project team. The meetings on Land Use and Goals and Strategies were structured to incorporate community input as decisions were made.
Stakeholder Interviews. The project team held stakeholder interviews on October 10 and 11, 2017 with 16 different groups, which included resident groups, Fresno Unified School District, Southeast Fresno Community Economic Development Association, religious leaders, Fresno Pacific University, community benefit organizations, and other representatives of stakeholders.
Community Workshops. The initial phase of the planning process included three community workshops, held on June 20, July 17, and October 4, 2018. They were attended by approximately 65, 75 and 20 persons, respectively. The participants at the first workshop were asked to identify issues and opportunities in the plan area, as well as community vision and guiding principles; the second workshop invited residents to comment on “Big Ideas” for the Specific Plan, and provide input on the Draft Goals and Strategies of the Plan; and the third workshop invited input on the Draft Goals and Strategies. All of the activities provided guidance to the steering committee on the development of the Guiding Principles and Proposed Land Use Map.
Mobile Workshops. The project team developed an outreach process designed to overcome common barriers of public participation. Outreach efforts were integrated into established and ongoing community meetings and events. City staff brought mobile workshops to over 20 community group meetings in and near the project area, receiving input from residents.
Surveys. Three surveys were produced and distributed to residents, business owners, and other interested parties. The first survey was aimed at acquiring an understanding of the community’s view of the project area as well as identifying key issues and desires of the community; the second survey allowed residents to identify where they would like to see more park space; and the third survey was intended to get an initial ranking of the Plan’s Goals and Strategies. Approximately 255, 175, and 145 individuals responded to the surveys, respectively. The results of the survey were shared with the community and the steering committee.
Public Review Draft. Several opportunities for community involvement followed the release of the Public Review Draft. These included workshops to share key elements of the Plan and to solicit feedback from residents and stakeholders. It should be noted that the COVID-19 pandemic overlapped with this phase, therefore engagement occurred through written communication and online meetings.
• Six topic-based Community Conversations held in partnership with the West Area Neighborhoods Specific Plan
• Several committee meetings announcing the Public Review Draft to bodies such as the Bicycle Pedestrian Advisory Commission, Fresno Youth Commission, District Review Committees, etc.
Social and Other Media. Social media was used to share updates and announcements throughout the planning process via the City of Fresno Facebook and Twitter accounts. One radio announcement was made on Punjabi Radio USA to share information about the release of the Draft Specific Plan and the topic-based Community Conversations series. Plan documents were featured on a webpage created for the project (www.fresno.gov/CentralSoutheast Plan) and hard copies were placed in the Central Branch Fresno Library and the Mosqueda branch library in the Plan Area.
A project liaison was dedicated to answer questions about the Plan and communication materials were routinely provided in English, Spanish, Punjabi, and Hmong.
Plan Initiation. The plan was initiated by the City Council on June 18, 2020, after staff concluded work with the community and stakeholders to develop guiding principles, big ideas, and a proposed land use map. As part of the Council motion, the following sites were removed from the project area and directed to be incorporated into the boundary of the South Central Specific Plan per Council Resolution No. 2020-147: 48005006, 48005026S, 48005008S, 48005009, 48005025U, 48005003, 48005010S, 48005011S, 48005012S, 48005023U, 48005017, 48005016, 48007053, 48007065S, 48011014, 48011029S, 48011022, 48011041S, and 48011042S; and 48006012, 48006017S, 48006015, 48006003, 48001031U, 48007051U and 48006002U. Maps showing the initial plan boundary and the modified plan boundary after removal of these sites are included in Exhibit A.
Plan Features
Key features of the plan are outlined below, including its relationship to other plans, vision and “big ideas,” land use changes, and implementation.
Relationship to Other Plans. The Central Southeast Specific Plan relates to other Fresno land use plans as follows:
Specific Plan for the Butler/Willow Area. The Specific Plan for the Butler/Willow Area was adopted on June 15, 1971 and was intended primarily to provide a detailed plan for zoning and circulation of the 564 acre area surrounding the Internal Revenue Service Center. This Plan would replace the Butler/Willow Specific Plan, but carries forward relevant policies.
Roosevelt Community Plan. The Roosevelt Community Plan was adopted on April 7, 1992 and its primary purpose was to address issues and concerns affecting the community as it was experiencing growth, and stimulate the development of well-balanced quality neighborhoods. This Plan would repeal the Roosevelt Community Plan to avoid overlap and confusion, but carries forward relevant policies.
General Plan. The General Plan, adopted on December 18, 2014, created policies and implementation strategies to achieve a long-term vision which emphasizes infill development, complete neighborhoods, and multi-modal transportation. The Central Southeast Specific Plan utilizes the General Plan as its foundation and will provide a more defined vision for the Central Southeast Area. General Plan Policy D-7-a, relating to implementation of urban form policies, calls for the amendment or repeal of outdated specific and community plans as new plans are adopted to avoid confusion.
Downtown Neighborhoods Community Plan. This plan was adopted on October 20, 2016, and abuts the plan area to the northwest, but does not overlap it.
Active Transportation Plan. The Active Transportation Plan (ATP) was adopted on March 2, 2017 and serves as the city’s comprehensive guide for active transportation. The ATP envisions a complete, safe, and comfortable network of trails, sidewalks, and bikeways that serve as a means for people to safely get to their destinations while reducing roadway congestion and vehicle miles travelled and improving the air quality. The population of the Central Southeast Specific Plan Area utilizes several modes of active transportation and the Plan expands on the ATP’s vision of walking and biking in the Central Southeast Area.
Parks Master Plan. The Parks Master Plan (PMP) was adopted on December 14, 2017 and serves as a community-based vision and road map for planning a complete and functional park system. It examined the General Plan’s goals for park land and determined the amount of acreage needed for the city’s existing and future population. The Plan builds on the PMP by including recommendations on locations for future parks, amenities and schools for joint-use agreements.
Vision Statement and Guiding Principles. The Vision Statement and Guiding Principles of the Plan were created in conjunction with the Steering Committee (see pages 23-27 of the Plan) and provided the foundation for all elements of the Plan. Generally, the community vision is that over the next 30 years, Central Southeast Fresno will become a lively, beautiful, walkable, and healthy community supported by enhanced mobility options, an activated public realm, a variety of housing choices, greater economic opportunity, and a strong sense of place.
Big Ideas. The project team conducted a four-day charrette with the Steering Committee and community members to brainstorm strategies that would stimulate positive change in Plan Area. That session helped identify key opportunity or “change” areas and accompanying design concepts that would implement the Specific Plan’s overarching vision and Guiding Principles. These land use concepts, which became known as the “Big Ideas,” were presented at a Steering Committee meeting, a community workshop, and several mobile workshops, and further refined based on community feedback. The eight Big Ideas build upon the Vision Statement and Guiding Principles and were used to create key Goals and Strategies for Land Use and Design, Transportation, Public Realm, and Infrastructure.
Land Use. The land use map was developed using the Big Ideas and Goals and Strategies approved by the steering committee as a basis. Proposed land use changes affect just under 6% of the total Plan Area. These changes were considered and voted on by the steering committee at public meetings held on July 30 and August 13, 2019 using a voting rule of a 75% majority. Additionally, owners of properties affected by land use changes were contacted individually and invited to indicate their support or opposition. See “Public Input” below for additional detail.
Implementation. The Specific Plan articulates the community’s vision and creates an action-driven framework to transform the Plan Area into a safe, livable, and prosperous community over the next 20 to 30 years. The Next Steps & Funding Chapter (8) outlines how to leverage existing resources, and identifies collaborators. The chapter outlines the community’s priorities and next steps, and potential funding and financing strategies to implement the Plan’s recommended improvements and programs.
Public Input
The plan was made available for public comment from April to July 2021, February to May 2023, and December 19, 2025 to January 19, 2026. Public comments from the most recent round are attached in Exhibit G; prior public comments were considered and either incorporated or included in the record.
In addition, in October 2025 the owners of the approximately 100 properties proposed for rezoning within the Plan Area were notified of proposed changes to land use designation and zoning affected their. The owners of four properties expressed opposition: 2467 S. Bundy Avenue, 4805 E. Tulare Avenue, 4995 E. Tulare Avenue, and 5329 W. Home Avenue. Staff has discussed their concerns with each of the property owners. Notice of the Planning Commission public hearing was mailed to these property owners in December 2025 and no further opposition has been received.
The Plan Area includes Council Districts 5 and 7. The Plan was presented to the Project Review Committee for District 5 for their input and feedback on June 12, 2023. District 7 does not have an active project review committee.
Notice of Planning Commission Hearing
The Planning Commission hearing was noticed in the Fresno Bee pursuant to Section 15-5007-d of the Fresno Municipal Code (see Exhibit K). Courtesy notices were mailed to residents and property owners with proposed or requested land use changes on December 23, 2025.
Airport Land Use Commission (ALUC)
The Airport Land Use Commission (ALUC) reviewed the proposed project at its regular meeting on June 5, 2023, and voted to recommend approval of this project, 7 votes to 0 with no additional recommendations for the project.
General Plan Consistency
The Central Southeast Specific Plan is consistent with the Fresno General Plan. The proposed policies in the plan are within the scope of the General Plan policies, and a general plan land use amendment is one of the proposed actions that will ensure land use consistency between the General Plan and the Specific Plan. For details on consistency, see Exhibit I.
Housing Element Findings
California Government Code requires that findings be made for any proposed land use changes on sites designated for housing development by the 2023-2031 Housing Element. Specifically, Section 65863 (b) of the Government Code states that a city may not reduce residential density unless it can make written findings that both of the following are true:
1. The reduction is consistent with the adopted Fresno General Plan; and
2. The remaining sites identified in the Housing Element are adequate to accommodate the jurisdiction’s share of the regional housing need allocation (RHNA).
The changes proposed for Housing Element sites are consistent with the Fresno General Plan policies, as described above. Additionally, the adoption of the Plan also includes a General Plan Amendment to align planned land uses and make them consistent.
Three of the designated Housing Element sites in the Plan Area are affected by proposed land use changes. These changes result in 489 additional units of lower-income capacity, four fewer units of moderate-income capacity, and 218 fewer units of above-moderate income capacity on designated Housing Element sites. If these rezones are approved, surplus capacity citywide will be 4,035 lower-income, 1,382 moderate-income, and 2,646 above-moderate income units. Therefore, and the remaining sites identified in the Housing Element are adequate to meet the requirements of Government Code Section 65583.2 and to accommodate the City's share of the regional housing need pursuant to Section 65584 (Exhibit J).
Housing Crisis Act of 2019 (SB 330)
Senate Bill 330, also known as the Housing Crisis Act of 2019 or SB 330, prevents cities from changing land use or zoning designations, or altering the intensity of existing land use designations or zone districts, in a manner that reduces housing capacity below the capacity that was available on January 1, 2018 unless, there is a concurrent increase of capacity elsewhere within the city. The land use changes proposed by the Plan would result in a net gain in capacity for 2,938 housing units. Therefore, adoption of the CSESP is consistent with the provisions of SB 330.
Affirmatively Furthering Fair Housing
Under California Assembly Bill 686 (AB 686), public agencies have a legal obligation to take meaningful, deliberate actions to overcome patterns of segregation, eliminate disparities in access to opportunity, and foster inclusive communities free from discrimination. To fulfill this obligation, the City has committed through the Housing Element to prioritize projects that support integration, expand access to opportunity, and reduce racial and economic disparities and that promote inclusive community engagement and equitable development practices across the city. The CSESP is in alignment with these principles, as it brings more resources and opportunity to an area designated as low-resource and high-poverty on the State Department of Housing and Community Development’s 2026 Affirmatively Furthering Fair Housing (AFFH) Mapping Tool. Specifically, the plan includes land use changes that provide more housing along High Quality Transit Corridors (such as the Q along Route 1/Cesar Chavez Boulevard); plans for more robust bicycle and pedestrian infrastructure; policies that call for needed sewer; water and storm drain upgrades; plans for upgrades to parks, recreation and open space amenities; and additional tree canopy. In addition, it includes goals and strategies to provide increased economic opportunity for residents, including workforce development and education and small and local business support.
ENVIRONMENTAL FINDINGS
An initial study was prepared for this project in accordance with the requirements of the California Environmental Quality Act (CEQA). This included the distribution of requests for comment from other responsible or affected agencies and interested organizations.
The Initial Study has concluded that the Project will not result in any adverse effects which fall within the "Mandatory Findings of Significance" contained in Section 15065 of the CEQA Guidelines. The finding is, therefore, made that the Project will not have a significant adverse effect on the environment.
Preparation of the initial study necessitated a thorough review of the proposed project and relevant environmental issues. The environmental and technical studies have examined projected sewage generation rates of planned urban uses, the capacity of existing sanitary sewer collection and treatment facilities, and optimum alternatives for increasing capacities; groundwater aquifer resource conditions; water supply production and distribution system capacities; and traffic carrying capacity of the planned major street system.
All necessary mitigation measures have been applied to ensure that the project will not cause significant adverse cumulative impacts, growth-inducing impacts, or irreversible significant effects. Additionally, Staff has determined that no substantial changes have occurred and that no new information has become available pursuant to Public Resources Code, Section 21157.6(b)(1). Therefore, it has been determined based upon the evidence in the record that the project will not have a significant impact on the environment and that the filing of a Mitigated Negative Declaration is appropriate, in accordance with the provisions of CEQA Guidelines Sections 15070 and 15074.
The Environmental Assessment was released on December 19, 2025, for a 30-day public comment period closing on January 19, 2026. Two comment submissions were received. The comments focused on aligning the plan with regional mobility objectives, reducing traffic congestion, and improving connectivity between local streets and county roadways.
FRESNO MUNICIPAL CODE FINDINGS
Based upon analysis of the applications, staff concludes that the required findings of Section 15-5812 of the Fresno Municipal Code can be made. These findings are attached as Exhibit I.
CONCLUSION
The appropriateness of the proposed project has been examined with respect to its consistency with goals and policies of the Fresno General Plan; its compatibility with surrounding existing or proposed uses; and its avoidance or mitigation of potentially significant adverse environmental impacts. These factors have been evaluated as described above and by the accompanying Environmental Assessment. Based upon this evaluation, the Central Southeast Specific Plan, as adopted through the applications noted in the title of this staff report, is appropriate for the subject properties. Approval of these actions will be a recommendation to City Council.
Attachments:
Exhibit A - Vicinity Map and Plan Boundaries
Exhibit B - Maps of the Roosevelt Community Plan Area & Butler/Willow Specific Plan Area
Exhibit C - Proposed Planned Land Use Map
Exhibit D - Proposed Changes to General Plan Planned Land Use Map
Exhibit E - Proposed Changes to the Zoning Map
Exhibit F - Central Southeast Area Specific Plan Public Review Draft
Exhibit G - Public Comment
Exhibit H - Environmental Assessment & Comment Letters
Exhibit I - Fresno Municipal Code Findings
Exhibit J - Housing Element Findings
Exhibit K - Fresno Bee Notice
Supplemental Exhibit L - Public Comments Received