REPORT TO THE PLANNING COMMISSION
November 5, 2025
FROM: JENNIFER K. CLARK, AICP, Director
Planning and Development Department
THROUGH: ASHLEY ATKINSON, AICP, Assistant Director
Planning and Development Department
SOPHIA PAGOULATOS, Planning Manager
Planning and Development Department
BY: MICHELLE ZUMWALT, Architect
Planning and Development Department
SUBJECT
Title
Public hearing to consider the adoption of the Tower District Specific Plan, the Tower District Design Standards and Guidelines, and related Environmental Impact Report (EIR), State Clearinghouse (SHC) No. 2025050309. The following applications have been filed by the Planning and Development Director and pertain to approximately 1,869 acres in the Tower District Specific Plan Area:
1. RECOMMEND APPROVAL (to the City Council) of the findings set forth in Final Environmental Impact Report (EIR SCH No. 2025050309), apply the Council’s independent judgment and analyses to the review, and then certify the Final EIR as having been completed in compliance with the California Environmental Quality Act (CEQA), based on the Commission’s recommendations on the proposed Final EIR and comments thereon (see Exhibits M, N and O).
a. RECOMMEND ADOPTION (to the City Council) of findings, based upon testimony presented by staff, that there are significant, unavoidable environmental impacts which have not been mitigated to a level below significant. Therefore, the City Council should adopt the Findings of Fact and Statement of Overriding Considerations.
b. RECOMMEND APPROVAL (to the City Council) of an appropriate Mitigation Monitoring and Reporting Program (MMRP) as required by Public Resources Code Section 21081.6 and CEQA Guidelines Section 15097; and,
2. RECOMMEND APPROVAL (to the City Council) of Plan Amendment Application P25-03196 which proposes to repeal the 1991 Tower District Specific Plan (Plan Boundary as shown in Exhibit A).
3. RECOMMEND APPROVAL (to the City Council) of Plan Amendment Application P25-03197 which proposes to repeal the Tower District Design Guidelines (2005) (Guidelines Boundary as shown in Exhibit A).
4. RECOMMEND APPROVAL (to the City Council) of Plan Amendment Application P25-03198 which proposes to adopt the updated Tower District Specific Plan, pertaining to approximately 1,869 acres (see Exhibits B and F), including the revisions set forth in Exhibit D.
5. RECOMMEND APPROVAL (to the City Council) of Plan Amendment Application P25-03201 which proposes to adopt the updated Tower District Design Standards and Guidelines (see Exhibit C), including the revisions set forth in Exhibit D.
6. RECOMMEND APPROVAL (to the City Council) of Plan Amendment Application P25-03200 which proposes to update the Land Use Map (Figure LU-1) of the Fresno General Plan, pertaining to 118 acres, to incorporate the planned land use changes proposed in the Tower District Specific Plan (see Exhibit G), including the land-use-related revisions set forth in Exhibit D.
7. RECOMMEND APPROVAL (to that the City Council) of Rezone Application P25-03202 which proposes to rezone approximately 138 acres of property within the Tower District Specific Plan area to be consistent with the planned land uses proposed in the Tower District Specific Plan and expand the Apartment Housing Overlay District (see Exhibit H), including the zoning-related revisions set-forth in Exhibit D.
8. RECOMMEND APPROVAL (to the City Council) of Resolution authorizing Director of the Planning and Development Department or her designee to correct any typographical errors and update the text, policies, maps, tables and exhibits contained in the Tower District Specific Plan, the Tower District Design Standards and Guidelines, and the Fresno General Plan to reflect the final action taken by the Council, to the extent that such updates are necessary to maintain consistency.
Body
EXECUTIVE SUMMARY
The proposed project is the adoption of the Tower District Specific Plan (Plan), which includes: repeal of the 1991 Tower District Specific Plan; repeal of the Tower District Design Guidelines (2005); adoption of updated Tower District Design Standards and Guidelines (Design Standards and Guidelines); the corresponding amendment of approximately 118 acres in the Fresno General Plan Planned Land Use map; and the rezoning of approximately 138 acres in the Tower District Specific Plan area to be consistent with the planned land use changes and to expand the Apartment House Overlay District. This report describes the planning process as well as the key elements of the Plan.
BACKGROUND
Origins. The Plan is one of several specific plans developed for the purpose of community-led refinement of the Fresno General Plan (see Policies D-7-a and D-7-b). It builds upon a key component of the General Plan Implementation Element, which is to support investment and development in the Infill Opportunity Zone, of which the Plan area is a part (pages 12-23 and 12-24, and Figure IM-1). The City Council established the Tower District Specific Plan Implementation Committee on May 27, 2021, to encourage and facilitate community involvement in the preparation and implementation of the Plan update. The City Council first allocated funding for the Plan update in April of 2022. The planning consultant Wallace, Roberts and Todd was hired to help update the specific plan and design guidelines, with LSA Associates on the consultant team providing the environmental analysis.
Specific Plans. California Government Code Section 65450 defines specific plans and sets out the regulations for their use. Specific plans systematically implement the 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 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 Plan area, and it proposes to regulate land use by amending the planned land use and zoning of property in strategic areas.
Process. The planning process was kicked off in January 2022 at the first meeting of the Tower District Specific Plan Implementation Committee, and was focused throughout on community input and engagement. This is described in Chapter 1 of the Plan and is summarized below.
Implementation Committee. A seven-member Implementation Committee (Committee) was established by City Council Resolution 2021-147, representing Council Districts 1, 3 and 7. Its purpose was to encourage and facilitate community involvement in the update of the Plan and its subsequent implementation, and to report its findings and work product to the community, Planning Commission and City Council. The Committee met monthly throughout the planning process. Committee meetings were open to the public and compliant with the Brown Act. Agendas posted to the Plan website and the City’s Facebook page, and sent to interested residents through regular email updates.
Community Involvement. In early 2023, the public outreach process was launched through a new website (www.fresno.gov/tdsp <http://www.fresno.gov/tdsp>) and video, narrated by Pastor Booker T. Lewis, which highlighted the history of the Tower District community and called for community participation in the planning process. Community input was essential to the development of the Plan throughout, and included public meetings, community workshops, stakeholder interviews, pop-up events, and online surveys.
City staff engaged with the business community in the Tower District to post flyers at businesses and alert residents and patrons of the Plan update. A survey was distributed throughout the Tower District that received 682 responses. Key survey results are highlighted below:
• 99% of respondents said it is important to preserve and protect historic buildings and resources in the Tower District.
o Top community priorities for preservation: more art and history focus, reuse of existing buildings, maintenance of the historic quality of neighborhood
• 58% of respondents saw the need to create more mixed-use development along “main streets.”
o Top community priorities for housing and businesses: new grocery store/healthy food access, affordable housing, housing programs for new homeowners, streamline permitting to encourage small businesses
• 89% of respondents believed that the Tower District has insufficient green spaces and recreation
o Top community priorities for parks and public facilities: Tower public library, community garden, open schools for evenings and weekend green spaces
During the summer of 2024, the City hosted two public workshops to receive community input on the future of neighborhoods within the Tower District. The first workshop, hosted at Let’s Roll Ice Cream Shop on June 6, focused on circulation, public space, housing, business and amenity needs, qualities of new buildings, and historic preservation. The second workshop, hosted at Fresno City College on August 26, built on feedback received at the first workshop and focused on the top three priorities for various neighborhoods within the Tower District. Together, the workshops garnered more than 330 attendees.
Throughout the planning process, City staff engaged in ongoing outreach efforts. This included regularly canvassing Tower neighborhoods; sending mailers to Tower residents in August 2023, February 2024 and July 2024; and attending local events in the community such as Porch Fest and the farmer’s market. An additional ongoing outreach effort, called Tower Rocks, involved painting on rocks to create a scavenger hunt around the Tower community. Participants were encouraged to find the rocks, scan the QR code located on the rock, participate in the survey, post a photo with the rock and include the hashtag #TowerRocks and place it in a new location. In addition, City staff regularly attended local events in the Tower District to provide updates on the planning process. This unique public outreach effort was recognized by California’s professional planning association with an award of excellence.
During the public review period, the Plan, Design Standards and Guidelines, and EIR documents were featured on the project website and hard copies were placed in the Central Branch Fresno Library and the Gillis Branch Library.
In July of 2024 and October of 2025, the City mailed formal letters to inform property owners whose properties are proposed to be rezoned through the adoption of the Plan. Feedback received is discussed in the public comment section.
Plan Features
Plan Area. The geographic area covered by the Plan is approximately 1,869 acres and is home to approximately 20,200 residents. The Plan Area is generally bound by Shields Avenue to the north, Blackstone Avenue to the east, SR-180 to the south, and Fruit Avenue and the Union Pacific Railroad tracks to the west. All of the land is within the Fresno City Limits.
Relationship to Other Plans. The Fresno General Plan was adopted on December 18, 2014, and set a forward-looking course for the city focusing on infill development, complete neighborhoods, and multimodal transportation to achieve fiscally sustainable and environmentally responsible growth. The Plan builds upon and refines the Fresno General Plan with area-specific goals and policies. It also contains a proposed land use map which contemplates land use changes on approximately 6 percent of the Plan Area. Thus, the adoption of the Plan will require an amendment to the Fresno General Plan Land Use Map to maintain consistency (see Exhibit G).
The original Tower District Specific Plan, adopted in 1991, is proposed to be repealed and replaced with an updated Tower District Specific Plan to respond to both continuing and new issues in the Tower District. Changing conditions in the neighborhood in recent decades have led to greater emphasis on housing availability and affordability, expanding recreational opportunities, and calming auto-oriented roadways. At the same time, the Plan Update maintains the guiding principles from the 1991 Specific Plan and continues its focus on neighborhood character, walkability, and historic resources.
The Tower District Design Guidelines, adopted in 2005, are proposed to be repealed and replaced by the Tower District Design Standards and Guidelines. These new Design Standards and Guidelines reflect the policy direction of the Plan and are intended to result in compatible development. In addition, they contain objective standards that are measurable and verifiable, in contrast to those that may involve subjective judgement, as required by recent state legislation pertaining to residential development.
Guiding Principles. The Plan has seven Guiding Principles. Some principles are carried forward from the 1991 Tower District Specific Plan, representing continuity of the values and needs of the community:
1. Enhance the livability and social diversity of the Tower District’s residential neighborhoods and create housing opportunities that make the District inclusive and welcoming.
2. Nurture the mutually supportive relationship between the Tower District’s residential neighborhoods and vibrant commercial areas.
3. Conserve and revitalize the Tower District’s historic resources.
4. Shape the character of new development to complement the Tower District’s character as a walkable place not dominated by the automobile.
5. Provide effective transportation access for pedestrians, bicyclists, motorists, and transit users, and emphasize the importance of pedestrian-friendly environments.
6. Increase opportunities for recreation within walking distance of Tower District residents.
7. Promote environmental sustainability and climate resilience.
Policies. There are 111 policies in the Plan: 20 covering conservation and historic preservation; 32 addressing land use; 14 regarding parks and public facilities; 37 about circulation; and eight covering utilities.
Chapter 2 - Conservation and Historic Preservation
This Chapter highlights the importance of preservation and use of historic resources in retaining a community’s distinct character and sense of place. All eight conservation and historic preservation policies included in the 1991 Plan were carried over into the plan update and revised. The proposed draft also includes 10 new policies that have been incorporated in the draft update. New policies focus on developing a historic context statement for the Tower District, encouraging the rehabilitation and adaptive reuse of historic buildings, and ensuring historic resources are properly maintained.
Chapter 3 - Land Use
This Chapter considers how land should be used in the Tower District and sets parameters regarding allowable activities and the character of new development. All land use policies from the 1991 Plan were carried over into the Draft Plan and revised. The updated Plan also includes 19 new policies. These policies address topics such as increasing the affordable housing inventory in the Tower District, supporting commercial businesses, and encouraging new retail options, namely a grocery store, in the Tower District.
Chapter 4 - Parks and Public Facilities
This Chapter emphasizes the ability of parks and open spaces to not only support community life but also contribute to the physical and physiological well-being of District patrons. All policies from the 1991 Plan were incorporated into the updated Plan with revisions. The update also includes 11 new policies that focus on strengthening the relationship between agencies to enhance public park space, fostering parks as safe public spaces and identifying opportunities for a public library in the Tower District.
Chapter 5 - Circulation
This Chapter focuses on circulation across the overall street network in the Tower District and the design of streets themselves. From the 1991 Plan, three policies remain unchanged, and eight policies were revised for incorporation into the updated Plan, while one policy was removed. Twenty-four policies were added, which focus on improving multi-modal functions of key corridors, providing extended transportation options and enhancing main street corridors.
Chapter 6 - Utilities
This Chapter highlights existing utility infrastructure in the Tower District. As individual projects are proposed, existing utility infrastructure and capacity will be evaluated in conformance with the Department of Public Utilities standards. Improvements will be required as necessary to meet demand.
Proposed Land Use Changes
To align with existing uses and community feedback received during the public outreach process, the Implementation Committee reviewed potential land use changes to areas within the Tower District. A summary of the proposed 118 acres of planned land use changes is as follows (see Exhibit G):
• Increase mixed-use and residential density to address the need for more diverse and affordable housing;
• Replace office and commercial uses with mixed use to gain residential capacity while maintaining business opportunities; and
• Slightly increase park acreage to account for recently built pocket parks.
Proposed Zoning Changes
To be consistent with the land uses changes proposed in the Plan, this project also proposes to rezone approximately 118 acres of property within the Plan area. It also proposes to expand the Apartment Housing Overlay District by 19.73 acres to allow multifamily development without ground-floor commercial in locations where greater flexibility is needed (see Exhibit H).
Objective Design Standards
The Tower District Specific Plan Design Guidelines were adopted in June 2005. These guidelines were established to assist property owners and developers by clearly describing what is expected of projects in the Plan area, in order to maintain its historic character.
State law now requires that only objective design standards may be applied to residential development.
California Government Code Section 65913.4 defines objective design standards as “design standards that involve no personal or subjective judgement by a public official and are uniformly verifiable by reference to an external and uniform benchmark of criterion available and knowable by both the development applicant and the public official prior to submittal.” As such, the City is required to update the existing Design Guidelines to establish objective design standards in compliance with state law.
Public Comment
On August 15, 2025, the City released the Draft Plan, Design Standards and Guidelines, and EIR for a 45-day public review and comment period. The Draft EIR was submitted to the State Clearinghouse for distribution to reviewing agencies. The documents were posted on the City’s website (www.fresno.gov/tdsp <http://www.fresno.gov/tdsp>) and made available at the City’s Planning and Development Department, Fresno County Public Library, and Gillis Branch Library. A notice of availability of the Draft EIR was published in the Fresno Bee and distributed to a project-specific mailing list on August 15, 2025. The public review period ended on September 29, 2025.
As a result of these notification efforts, written and oral comments were received from agencies, organizations, and individuals on the content of the Draft Plan and EIR. The Final EIR “Response to Comments” identifies these commenting parties, their respective comments, and responses to these comments (Exhibit N). For comments and responses on the Plan and Design Standards and Guidelines made during the public review period see the Comment Summary Matrix and Comment Letters (Exhibit I).
Comments on the Plan
• Request to strengthen the Plan’s noise, traffic, and overflow parking impacts
• Request to show more park space, require air monitors, provide better bus shelters
• Opposition expressed toward bike lanes on H Street, increasing residential density, restricting residential density, and truck traffic through residential neighborhoods
• Land use change requests to reflect existing conditions and correct an error (see line items 16, 25, 26, and 27 in Exhibit D)
Comments on the Design Standards and Guidelines
• Recommendations to add the following: 1) design standards for employment uses, including industrial uses; 2) pedestrian oriented lighting standards and protected bike lanes to keep active transportation methods safe from truck traffic, especially for H and Weber Streets; 3) photos, graphics, and examples on approximately 80 pages; 4) specific changes to narrative, standards, and guidelines; and 5) acknowledgements.
Based on these comments, staff recommended revisions to the August 2025 Draft Tower District Specific Plan and Tower District Design Standards and Guidelines (Exhibit D).
Public Notice and Property Owner Notification
In addition to the legal notice published in the Fresno Bee on October 10, 2025 (Exhibit L), the City of Fresno sent a letter dated October 14, 2025, to the property owners within the Plan Area whose property is proposed to change land use and/or zoning designations. A map was included for reference along with the November 5 and November 20 hearing dates, and the link to the Plan website.
Council District Project Review Committees
The Tower District Specific Plan boundary includes Council Districts 1, 3 and 7. City staff provided an update on the Draft Specific Plan update to all active Council District Project Review and Tower District Design Review Committees prior to Plan initiation in 2024. Committee comments and questions are included below:
District 1: Staff provided an update to the District 1 Project Review Committee on August 8, 2024. The Committee recommended establishing quantifiable metrics for engagement reporting and implementation of Plan principles, objectives and policies.
District 3: Staff provided an update to the District 3 Project Review Committee on July 23, 2024. The Committee expressed questions regarding the 30-day public comment period, how changes can be made to policies after a plan has been updated, and implementation committee members.
District 7: No active committee.
Tower District Design Review: Staff provided an update to the Tower District Design Review Committee on August 6, 2024. The Committee expressed interest in collaborating with the Tower District Implementation Committee in preparing the objective design standards.
Airport Land Use Commission
The Plan proposes zoning changes within the Airport Influence Area (AIA) of the Fresno Chandler Executive Airport and as such was referred to the Fresno County Airport Land Use Commission (ALUC) for mandatory review under the provisions of the State of California Public Utilities Code. On September 23, 2025, the City applied for a land use compatibility determination by the ALUC. On October 6, 2025, at the ALUC public meeting, the ALUC determined the proposed rezones are consistent with the AIA. No further action is required.
Notice of Planning Commission Hearing
The Planning Commission hearing was noticed in the Fresno Bee on October 10, 2025, pursuant to Section 15-5007-d of the Fresno Municipal Code (see Exhibit L). A courtesy notice was also mailed to property owners on October 14, 2025, whose land use and/or zoning is proposed to change.
ENVIRONMENTAL FINDINGS
EIR Process
The City, as the lead agency under CEQA, determined that an EIR was required for the proposed project. The review and certification of the EIR included the following procedural steps:
Notice of Preparation (NOP): A NOP was circulated for agency review as well as public review on May 7, 2025 in the Fresno Bee. Responses to the NOP were requested within 30 days after receiving the NOP, or no later than June 9, 2025. Comment from the five letters received from the public, agencies, and organizations and were incorporated into the Draft EIR (DEIR) Appendix B.
Public Scoping Meeting: During the agency and public review period for the NOP, the City of Fresno held a public scoping meeting on May 27, 2025, at the Fresno City Hall, 2600 Fresno Street, Room 2120, Fresno, CA 93721. No comments were received from the public, State agencies, or other interested parties at the public scoping meeting.
Draft EIR (DEIR): A DEIR was prepared that includes an evaluation of potential environmental impacts associated with the implementation of the Plan. (see Exhibit M)
Notice of Completion (NOC): Upon completion of the DEIR, the City filed a NOC with the State Clearinghouse, Office of Planning and Research, on August 15, 2025 to begin the public and agency review period.
Public Notice/Public Review: Concurrent with filing the NOC, the City provided public notice of the availability of the DEIR for public review by posting on the website, with the City and County Clerks, publishing in the Fresno Bee, mailing to all commenters, Committee members, and other interested parties on August 15, 2025. Comment was invited from the general public, agencies, organizations, and other interested parties. The length of the public review period was 45 days, from August 15 through September 29, 2025, during which time written comments on the DEIR were submitted to the City of Fresno.
Response to Comments: After the close of the public review period, the City and consultant prepared formal responses to the written comments received. A total of eleven written comment letters and two emails were received from government agencies, non-governmental organizations/private companies, and members of the public regarding the DEIR. As required by CEQA Guidelines, 15088(b), City responses will be sent to public agencies that submitted comments 10 days prior to City Council consideration.
Final EIR (FEIR): A FEIR was prepared that includes a Response to Comment document containing comment letters, responses, and revisions to the DEIR (see Exhibit N).
Certification of the EIR: The City Council must hold a public hearing to consider the adequacy and completeness of the EIR under CEQA and to certify the EIR and adopt the necessary Findings of Fact and Statement of Overriding Considerations.
Mitigation Monitoring and Reporting Program (MMRP): The City Council will also consider adopting a program to implement the EIR’s recommended mitigation measures to mitigate, avoid, or substantially lessen the significant impacts of the project. The final Mitigation Monitoring and Reporting Program is included in the FEIR (See Exhibit N).
Environmental Impact Report Analysis and Conclusions
Project Objectives: Pursuant to the CEQA Guidelines, Section 15124, the EIR must identify the objectives of the project (the “project” means the Tower District Specific Plan, or “the Plan” and the Tower District Design Standards and Guidelines). The objectives of this proposed Project are to:
• Enhance the livability and social diversity of the Tower District’s residential neighborhoods and
create housing opportunities that make the District inclusive and welcoming.
• Nurture the mutually supportive relationship between the Tower District’s residential
neighborhoods and vibrant commercial areas.
• Conserve and revitalize the Tower District’s historic resources.
• Shape the character of new development to complement the Tower District’s character as a
walkable place not dominated by the automobile.
• Provide effective transportation access for pedestrians, bicyclists, motorists, and transit users,
and emphasize the importance of pedestrian-friendly environments.
• Increase opportunities for recreation within walking distance of Tower District residents.
• Promote environmental sustainability and climate resilience
Impacts Analyzed: Through an initial study it was determined that the following environmental areas will have “no impact” or “less than significant” impact and therefore were not included in the DEIR: aesthetics, agriculture and forestry resources, energy, geology and soils, hazards and hazardous materials, hydrology and water quality, land use and planning, mineral resources, population and housing, public services, transportation and traffic, utilities and service systems, and wildfire.
The EIR analyzed impacts to the following environmental areas determined to have potential impacts: air quality, biological resources, cultural and tribal cultural resources, greenhouse gas emissions and climate change, noise, and recreation.
The EIR includes recommended mitigation measures in these areas (See Exhibit N). The recommended mitigation measures were found to reduce impacts to less than significant in all but recreation, which sustained significant and unavoidable impacts.
Overriding Considerations: Pursuant to CEQA requirements, findings of fact and a statement of overriding consideration are required to approve the project, because the project will result in significant unavoidable impacts. Staff recommends that the following overriding considerations be considered in approving the project despite its unavoidable significant impacts:
1. The project would meet the project objectives established by the City.
As demonstrated by the EIR, the Findings, this Statement, and the additional documents and evidence comprising the administrative record, the project meets the following objectives established by the City in the EIR, which are fundamental to the approval of the project:
○ Enhance the livability and social diversity of the Tower District’s residential neighborhoods and create housing opportunities that make the District inclusive and welcoming.
○ Nurture the mutually supportive relationship between the Tower District’s residential neighborhoods and vibrant commercial areas.
○ Conserve and revitalize the Tower District’s historic resources.
○ Shape the character of new development to complement the Tower District’s character as a walkable place not dominated by the automobile.
○ Provide effective transportation access for pedestrians, bicyclists, motorists, and transit users, and emphasize the importance of pedestrian-friendly environments.
○ Increase opportunities for recreation within walking distance of Tower District residents.
○ Promote environmental sustainability and climate resilience.
2. The project would enhance livability and social diversity within the Tower District by supporting mixed-use infill, reinvestment in aging infrastructure, and new housing opportunities at varied affordability levels. This would improve neighborhood vitality and help meet the City’s housing goals while maintaining the area’s historic character.
3. The project would encourage small business development, cultural programming, and entertainment uses that strengthen the Tower District’s role as a local and regional destination. These activities would generate employment, expand the local tax base, and reinforce the district’s identity as Fresno’s historic arts and cultural hub.
4. The project would support walkability, bicycle and transit connectivity, and multimodal street design consistent with the Fresno General Plan and Active Transportation Plan. By promoting sustainable infill growth, energy efficiency, and reduced vehicle trips, the project would contribute to sustainability and climate-adaptation goals citywide.
5. The project is consistent with and would contribute to achieving the policies, goals, and objectives established by the City of Fresno General Plan. Objectives and policies relating to Conservation and Historic Preservation, Land Use, Parks and Public Facilities, Circulation, and Utilities would provide regulatory guidance to facilitate growth and development in the Plan Area consistent with the City of Fresno General Plan. Specifically, the Plan Update implements key policies of the Fresno General Plan and Parks Master Plan by guiding equitable development, improving access to open space, and fostering complete neighborhoods. Although the City’s parkland service ratio would remain below target levels, the plan identifies strategies and opportunity areas for long-term recreation improvements for future development.
Accordingly, the City finds that these collective benefits substantially outweigh the remaining significant and unavoidable impact related to recreation, and that approval of the Tower District Specific Plan Update is warranted in light of the project’s enduring community, environmental, and economic advantages.
FRESNO MUNICIPAL CODE FINDINGS
Fresno General Plan Consistency
The Government Code requires consistency between the Fresno General Plan and a Specific Plan. Since the Plan contains proposed land uses that are different than those on the Fresno General Plan Land Use Map (Figure LU-1) a General Plan Amendment is proposed to ensure land use consistency between both plans.
In terms of policy, the Tower District Specific Plan is a refinement of the Fresno General Plan that includes goals and policies reflecting the needs and desires of Tower District residents and stakeholders. The Plan is found to be consistent with the following Fresno General Plan Elements: Economic Development; Urban Form, Land Use, and Design; Mobility and Transportation; Parks, Open Space, and Schools; Public Utilities and Services; Resource Conservation and Resilience; Historic and Cultural Resources; and Healthy Communities. See Exhibit J for full General Plan consistency findings.
Housing Element Consistency
In addition to Fresno General Plan consistency, the Government Code requires that findings be made for any proposed land use changes on Housing Element sites. Specifically, Section 65863 (b) of the Government Code states the City shall not reduce or permit the reduction of the residential density for any parcel at a lower 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 Needs Allocation (RHNA).
The land use and zoning changes proposed in the Specific Plan result in 22 additional units of lower-income capacity and one additional unit of above market-rate capacity. Therefore, the proposed residential densities are consistent with the Housing Element, 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. (See Exhibit K).
Housing Crisis Act of 2019 (SB330) Analysis
The Housing Crisis Act of 2019 is State legislation that restricts affected cities (including the City of Fresno) 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 (i.e. a corresponding up-zone) to ensure there is no net loss of housing capacity. Under the Plan, some parcels are proposed to change to a land use with a lower housing capacity; however, the offset of other parcels that are increasing housing capacity within the Plan Area results in an overall net gain of capacity of 1,516 units. Therefore, the Plan is compliant with the provisions of the Housing Crisis Act of 2019.
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, it can be concluded that the Tower District Specific Plan, Design Standards and Guidelines and related applications are appropriate for the subject properties. Action by the Planning Commission will be a recommendation to City Council.
Attachments:
Exhibit A - Vicinity Map
Exhibit B - Plan Amendment P25-03198: Public Review Draft TDSP (August 2025)
Exhibit C - Plan Amendment P25-03201: Public Review Draft TDDSG (August 2025)
Exhibit D - Proposed changes to the TDSP and TDDSG
Exhibit E - Existing General Plan Planned Land Use Map
Exhibit F - Plan Amendment P25-03198: TDSP Planned Land Use Map
Exhibit G - Plan Amendment P25-03200: Proposed changes to General Plan Planned Land Use Map
Exhibit H - Rezone P25-03202: Proposed Zoning Changes in the TDSP Area Map
Exhibit I - Comment Summary Matrix and Comment Letters
Exhibit J - Fresno Municipal Code Findings
Exhibit K - Housing Element Findings
Exhibit L - Fresno Bee Public Hearing Notice
Exhibit M - Draft EIR
Exhibit N - Final EIR: Response to Comments
Exhibit O - Mitigation Monitoring and Reporting Program