REPORT TO THE CITY COUNCIL
FROM: JENNIFER K. CLARK, AICP, Director
Planning and Development Department
ASHLEY ATKINSON, AICP, Assistant Director
Planning and Development Department
BY: JUAN LARA, Planner III
Planning and Development Department
SUBJECT
Title
HEARING to Consider Annexation Application No. P21-05090; Pre-zone Application No. P21-05373; Vesting Tentative Tract Map No. 6376; and related Environmental Assessment No. T-6376/P21-05090/P21-05373 for approximately 39.90 acres of property located on the west side of South Armstrong Avenue, between the Southern Pacific Railroad line and East Church Avenue (Council District 5) - Planning and Development Department.
1. ADOPT - Mitigated Negative Declaration prepared for Environmental Assessment No. T-6376/P21-05090/P21-05373 dated April 25, 2025, for the proposed project pursuant to California Environmental Quality Act (CEQA) Guidelines.
2. RESOLUTION - Approving Annexation Application No. P21-05090 (for the California-Armstrong No. 3 Reorganization) proposing detachment from the Kings River Conservation District and Fresno County Fire Protection District and annexation to the City of Fresno.
3. BILL - (for Introduction and Adoption) - Approving Pre-zone Application No. P21-05373 proposing to pre-zone approximately 37.98 acres of property from the Fresno County AL20 (Limited Agriculture) zone district to the City of Fresno RS-5 (Single-Family Residential, Medium Density) zone district.
4. APPROVE - Vesting Tentative Tract Map No. 6376, proposing to subdivide approximately 37.98 acres of property into a 202-lot conventional single-family residential development, subject to compliance with the Conditions of Approval dated June 4, 2025, and contingent upon approval of Annexation No. P21-05090, Pre-zone Application No. P21-05373 and the related environmental assessment.
Body
RECOMMENDATION
1. ADOPT the Mitigated Negative Declaration prepared for Environmental Assessment No. T-6376/P21-05090/P21-05373 dated April 25, 2025, for the proposed project pursuant to California Environmental Quality Act (CEQA) Guidelines.
2. ADOPT RESOLUTION approving Annexation Application No. P21-05090 (for the California-Armstrong No. 3 Reorganization) proposing detachment from the Kings River Conservation District and Fresno County Fire Protection District and annexation to the City of Fresno.
3. INTRODUCE AND ADOPT BILL approving Pre-zone Application No. P21-05373 proposing to pre-zone approximately 37.98 acres of property from the Fresno County AL20 (Limited Agriculture) zone district to the City of Fresno RS-5 (Single-Family Residential, Medium Density) zone district.
4. APPROVE Vesting Tentative Tract Map No. 6376, proposing to subdivide approximately 37.98 acres of property into a 202-lot conventional single-family residential development, subject to compliance with the Conditions of Approval dated June 4, 2025, and contingent upon approval of Annexation No. P21-05090, Pre-zone Application No. P21-05373 and the related environmental assessment.
EXECUTIVE SUMMARY
John Bonadelle of Bonadelle Neighborhoods has filed Annexation Application No. P21-05090, Pre-zone Application No. P21-05373, and Vesting Tentative Tract Map No. 6376 pertaining to approximately 37.98 acres of property located on the west side of South Armstrong Avenue, between the San Joaquin Valley Railroad and East Church Avenue.
Annexation Application No. P21-05090 (California-Armstrong No. 3 Reorganization) is a request for annexation to the City of Fresno and detachment from the Fresno County Fire Protection District and the Kings River Conservation District.
Pre-zone Application No. P21-05373 proposes to reclassify the subject property from the Fresno County RR (Rural Residential) zone district to the RS-5 (Residential Single Family) zone district.
Vesting Tentative Tract Map No. 6376 proposes to subdivide approximately 37.98 acres of property into a 202-lot single-family residential development , which is contingent upon City Council approval of Annexation Application No. P21-05090, Pre-zone Application No. P21-05373, and the related environmental assessment.
The subject property is located within the boundaries of the Fresno General Plan and Roosevelt Community Plan, and both plans designate the subject property for Medium Density Residential (5 to 12 dwelling units per acre (du/ac)). The proposed density of the subdivision is 5.82 du/ac. Based upon the submitted subdivision design, and conditions of approval, the proposed subdivision can be found consistent with the Medium Density Residential planned land use for the subject property.
Fresno City Planning Commission Action
On June 4, 2025, the Planning Commission considered the item. After a complete hearing, the Planning Commission voted and recommended the City Council approve the annexation, pre-zone, vesting tentative tract map, and related environmental assessment. The Planning Commission Resolutions (Exhibits M, N and O) are attached for more information.
BACKGROUND
The subject property is located in the County of Fresno, but within the City of Fresno’s Sphere of Influence (SOI). The SOI is a boundary for land that is expected to be annexed by the City as development is proposed, but until then remains under the jurisdiction of the County of Fresno. The proposed zone district will take effect once the annexation is approved by the Local Agency Formation Commission (LAFCo) of Fresno.
The subject property is a vacant site located on the west side of South Armstrong Avenue, adjacent south of the railroad (California Avenue alignment) between East Church and East Hamilton Avenues. The area surrounding the property consists of single-family residential uses to the north and east, rural residential uses to the west, and vacant land planned for single-family and multi-family uses to the south.
Surrounding Properties / Annexation Boundary
The annexation proposal (approximately 39.90 acres in gross area) includes additional street rights-of-way adjacent to the subject property proposed for development.
Staff from the Planning and Development Department met with representatives from the Fresno County Local Agency Formation Commission (LAFCO) and County Public Works and Planning Department (County). Both LAFCO and the County recommended annexation into the City of Fresno for the entirety of the subject property and full South Armstrong Avenue rights-of-way along the project frontage south to the current location of City limits at East Truman Avenue.
Community Facilities District (CFD) No. 18
Vesting Tentative Tract Map No. 6376 is required to enter into CFD No. 18, which was created to offset Police and Fire costs associated with the annexation.
Landscaping/Walls/Open Space
The subject property is located within the Roosevelt Community Plan and along two collector streets (East California Avenue alignment and South Armstrong Avenue), which are south of Belmont Avenue and east of Chestnut Avenue. Pursuant to Roosevelt Community Plan Policy No. 1-5.8, a minimum 15-foot landscaped setback is required for all arterial and collector streets south of Belmont Avenue and east of Chestnut Avenue. Vesting Tentative Tract Map depicts 15-foot-wide outlots along the East California Avenue alignment and South Armstrong Avenue frontages.
The developer is required to provide street trees on all public street frontages per FMC Section 15-4108. Street trees shall be planted at the minimum rate of one tree for each 40' of street frontage or one tree per home (whichever is greater) by the Developer. The developer is required to provide irrigation for all street trees; the irrigation system shall comply with FMC Section 15-2309 (Irrigation Specifications) and the Model Water Efficient Landscape Ordinance (MWELO) Title 24, Part 11, Chapters 4 and 5 of the CalGreen Building Code.
The long-term maintenance and operating costs, including repair and replacement, of required public improvements (Services) associated with new single-family developments (e.g., landscaped areas, concrete curb and gutters, sidewalks, curb ramps, median islands, etc.) are the ultimate responsibility of the developer. The developer shall provide for maintenance of these Services by a mechanism approved by the Public Works Department or by annexing to City of Fresno Community Facilities District (CFD) No. 11. Because the subject property requires annexation into the City of Fresno, the proposed subdivision is also included in CFD No. 18, which offsets the Police and Fire costs of residential projects on properties annexed after October 20, 2022 (pursuant to Resolution No. 2023-273).
It should be noted that there is an existing 10-foot-wide PG&E easement along the western subdivision boundary line. The project is required to dedicate 10-foot-wide outlots that encompass the existing PG&E easement for future development of a trail. The existing PG&E easement extends an additional 30 feet on the adjacent western property. When the western property develops, the entirety of the 40-foot-wide PG&E easement will be developed as a trail for bicycle and pedestrian purposes. The purpose of dedicating these 10-foot-wide outlots is to facilitate the ultimate construction of a trail.
Walls
An Acoustical Study was completed for the project dated July 12, 2024, and the recommendations that will be included as conditions of approval are as follows:
• A minimum 7-foot-high sound wall shall be constructed along the entire project site frontage along the railroad right-of-way, excepting that portion of frontage along Lot 60 which shall be a minimum of 8’-6” high. Additionally for Lot 60, the 8’-6” high sound wall shall be located along the northern 20 feet of property frontage along South Armstrong Avenue.
• Mechanical ventilation or air conditioning shall be provided for all homes so that windows and doors can remain closed for sound insulation purposes.
Pursuant to FMC Section 15-4105.F.2, the rear of all lots with frontage along the East California Avenue alignment and South Armstrong Avenue shall construct a minimum 6-foot-high decorative masonry wall. Pursuant to FMC Section 15-4105.G.2.a, major street entryways into the subdivision will incorporate enhanced 10-foot-wide landscaped outlots along the street side yards of adjacent lots.
Open Space
An approximate 21,783 square-foot open space area is proposed along the western boundary of the proposed subdivision, adjacent south of the East California Avenue alignment. Pursuant to FMC Section 12-4.705.a.ii, the minimum amount of open space required for 202 lots is 16,578 square feet, thus the project is in compliance with the minimum open space requirement.
Public Services
Public Utilities
The Department of Public Utilities (DPU) has determined that adequate sanitary sewer and water services are available to serve the project site subject to implementation of the Fresno General Plan policies and the mitigation measures of the related Program Environmental Impact Report; and, the construction and installation of public facilities and infrastructure in accordance with Department of Public Works standards, specifications and policies.
Infrastructure improvements and facilities for sanitary sewer service include the construction and extension of sanitary sewer mains and branches within the interior of future proposed tract from the existing 8-inch stub-out at the intersection of East California and South Armstrong Avenues. The proposed project will also be required to pay for sewer connection charges.
Infrastructure improvements and facilities for water service include construction of a water supply well site; installation of a 16-inch water main (including City fire hydrants) in East California Avenue from the existing 14-inch water main located in South Armstrong Avenue west across the project frontage; and installation of water mains within the interior of the proposed tract, providing an adequate, reliable, and sustainable water supply for the project’s urban domestic and public safety consumptive purposes.
Fresno Metropolitan Flood Control District
According to the Fresno Metropolitan Flood Control District (FMFCD), the subject site is not located within a flood prone or hazard area. Master Plan Facilities are required to be constructed including 24-inch and 60-inch storm drain pipelines connecting to the ponding basin north/northwest of the subject property to the southern subdivision boundary along the proposed connector street (South Burgan Avenue).
Fire Department
The Fire Department offers a full range of services including fire prevention, suppression, emergency medical care, hazardous materials, urban search and rescue response, as well as emergency preparedness planning and public education coordination within the Fresno City limit, in addition to having mutual aid agreements with the Fresno County Fire Protection District and the City of Clovis Fire Departments.
Based on the conditions received from the Fire Department, the subject property will be served by Fire Station 15 (approximately 1.3 miles away).
Streets and Access Points
Traffic Impact Study
The Fresno General Plan designates East California and South Armstrong Avenues as collector streets. The proposed project will be required to dedicate and construct improvements along all major street frontages and on all interior local streets within the proposed subdivision. Direct vehicular access will be relinquished along all major street frontages of single-family residential lots. The subdivision design includes two major street entryways to the interior of the subdivision, each from East California (both north and south) and South Armstrong Avenues. Interior local streets are proposed to be dedicated in accordance with the City standard 50-foot right-of-way, which will provide for parking and sidewalks on both sides of all streets. South Burgan Avenue will be dedicated for a Connector Street City with 56-foot right-of-way width.
The proposed project is located within Traffic Impact Zone III pursuant to Figure MT-4 of the Fresno General Plan, which generally represents areas near or outside the City Limits, but within the Sphere of Influence as of December 31, 2012. In accordance with Policy MT-2-I of the Fresno General Plan, when a project is projected to generate 100 or more peak hour new vehicle trips, a Traffic Impact Study (TIS) is required to assess the impacts of new development projects on existing and planned streets. Applying the factors outlined in the Institute of Traffic Engineers (ITE) Trip Generation Manual, the proposed project would generate 1,905 Average Daily Trips (ADT), with 141 vehicle trips occurring during the morning peak hour travel period (7 to 9 a.m.) and 190 vehicle trips occurring during the evening peak hour travel period (4 to 6 p.m.). Therefore, a TIS was prepared to assess the impacts of the new development on existing and planned streets.
The TIS evaluated the impacts of the project by analyzing the following five study intersections and two roadway segments in the vicinity of the project during the AM and PM peak hours for the traffic analysis scenarios required by the City of Fresno. These scenarios include: (1) Existing Conditions; (2) Existing plus Project Conditions; (3) Near Term (Existing plus Approved/Pending Projects plus Proposed Project) Conditions; and, (4) Cumulative Year 2040 plus Project Conditions.
Study Intersections:
1. Fowler and Hamilton Avenues
2. Armstong and Hamiliton Avenues
3. Temperance and Hamiliton Avenues
4. Armstrong and California Avenues
5. Temperance and California Avenues (future intersection)
6. Fowler and Church Avenues
7. Armstong and Church Avenues
Roadway Segments:
1. Armstrong Avenue between Geary and Church Avenues
The City of Fresno General Plan includes multiple policies related to transportation funding and regional level coordination. These policies are crafted so that new development pays the proportional share of the developments impacts. The project conditions of approval and mitigation measures also require payment of the Fresno Major Street Impact (FMSI) Fee, the Traffic Signal Mitigation Impact (TSMI) Fee, and the Regional Transportation Mitigation Fee (RTMF).
The Fresno General Plan establishes growth projections and includes goals, objectives, and implementing policies for the transportation system. A traffic model was prepared that was consistent with the General Plan and based on traffic volume growth forecasts generated by the model, the City’s Public Works Department provided an FMSI Fee Program.
The FMSI fee will be determined at the time of building permit. This fee is creditable towards major street roadway improvements included in the nexus study for the fee.
The TSMI fee facilitates project impact mitigation to the City of Fresno Traffic Signal infrastructure so that costs are applied to each new project/building based on the generated ADT. The TSMI fee is credited against traffic signal installation/modifications and/or Intelligent Transportation System (ITS) improvements (constructed at their ultimate location) that plan to build out the General Plan circulation element and are included in the Nexus Study for the TSMI fee. If the project is conditioned with traffic signal improvements in excess of their TSMI fee amount, the applicant may apply for fee credits (security/bonding and/or developer agreement required) and/or reimbursement for work in excess of their fee as long as the infrastructure is in place at the ultimate location. For project specific impacts that are not consistent with the General Plan, Public Works Standards, and/or not incorporated into the TSMI fees, the infrastructure costs may not be eligible.
The Regional Transportation Mitigation Fee (RTMF) is an important part of the Measure “C” Extension approved by Fresno County voters in 2006 (continuing a one-half cent sales tax for transportation purposes). The RTMF is intended to ensure that future development contributes to its fair share towards the cost of infrastructure to mitigate the cumulative, indirect regional transportation impacts of new growth in a manner consistent with the provisions of the State of California Mitigation Fee Act. The fees will help fund improvements needed to maintain the target level of service in the face of higher traffic volumes brought on by new developments. The RTMF is governed by a Joint Powers Agency which is the same as the Fresno Council of Governments (COG) Board. Fresno COG’s primary functions are transportation planning and programming. As a state-designated Regional Transportation Planning Agency (RTPA) and federally-designated Metropolitan Planning Organization (MPO) for Fresno County, Fresno COG must comply with both designation requirements. Fresno COG prepares a Regional Transportation Plan (RTP) that looks 25 years into the future, and sets policies for a wide variety of transportation options and projects. It guides how and where people and goods will travel by identifying both existing and needed transportation facilities. Fresno COG prepares the region’s Federal Transportation Improvement Program, a four-year program of financially constrained transportation projects consisting of highway, transit, bicycle, and pedestrian projects that are selected through an approved project selection process.
The Public Works Department, Traffic Engineering Division has reviewed the potential traffic related impacts for the proposed project and has determined that the streets adjacent to and near the subject site will be able to accommodate the quantity and kind of traffic which may be potentially generated subject to the requirements outlined within the memoranda from the Traffic Engineering Division (Exhibit K). These requirements generally include: (1) The provision of a minimum two points of vehicular access to major streets for any phase of the development; (2) Major and local street dedications; (3) Street improvements, (including, but not limited to, construction of concrete curbs, gutters, pavement, underground street lighting systems; and, (4) Payment of applicable impact fees (including, but not limited to, the Traffic Signal Mitigation Impact (TSMI) Fee, and the Fresno Major Street Impact (FMSI) Fee).
The proposed project shall also construct safe route to school asphalt paths, four feet in width, along the west side of Armstrong Avenue from the southern project boundary to Church Avenue and along the south side of Church Avenue from Armstrong Avenue to the existing sidewalk (approximately 0.2 miles east of the Fowler and Church intersection) prior to occupancy of any dwelling unit. Additionally, the proposed project shall install high-visibility school crosswalks at the intersection of Armstrong and Church Avenues prior to the occupancy of any dwelling unit.
Therefore, the Public Works Department/Traffic Engineering Division has determined that, based upon the proposed traffic yield from and the expected traffic generation of the proposed project for the subject property, the proposed project will not adversely impact the existing and projected circulation system based upon compliance with the project specific mitigation measures referenced herein (Exhibit L).
Council District Project Review Committee
There is no Council District 5 Project Review Committee at this time.
Notice of City Council Hearing
The Planning and Development Department mailed notices of this City Council hearing to all property owners within 1,000 feet of the subject property, pursuant to FMC Section 15-5007 (Exhibit I).
ENVIRONMENTAL FINDINGS
An initial study was prepared for this project in accordance with the requirements of the California Environmental Quality Act (CEQA) Guidelines. This process included the distribution of requests for comment from other responsible or affected agencies and interested organizations.
Preparation of the initial study included a thorough review of the proposed project and relevant environmental issues. These 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 21157.5(a)(2) and 15178(b)(1) and (2).
Based upon the attached initial study and mitigation monitoring and reporting program, staff has determined that there is no evidence in the record that the project would have a significant effect on the environment and has prepared a Mitigated Negative Declaration for this project. A public notice of the attached Mitigated Negative Declaration for Environmental Assessment Application No. T6376/P21-05090/P21-05373 (Exhibit L) was published in the Fresno Bee on April 25, 2025, with no comments received to date.
FRESNO MUNICIPAL CODE FINDINGS
Based upon analysis of the applications, staff concludes that the required findings contained within FMC Sections 15-3309, 15-6103, and 15-6104 et seq. can be made. These findings are attached as Exhibit H.
GROUNDS FOR DENIAL OF TENTATIVE MAP
Section 66474 of the Subdivision Map Act (SMA) (California Government Code §§ 66410, et seq.) provides that approval of a proposed subdivision map shall be denied if any of the following findings are made.
1. That the proposed map is not consistent with applicable general and specific plans as specified in Section 65451 of the SMA.
2. That the design or improvement of the proposed subdivision is not consistent with applicable general and specific plans.
3. That the site is not physically suitable for the type of development.
4. That the site is not physically suitable for the proposed density of development.
5. That the design of the subdivision or the proposed improvements are likely to cause substantial environmental damage or substantially and avoidably injure fish or wildlife or their habitat.
6. That the design of the subdivision or type of improvements is likely to cause serious public health problems.
7. That the design of the subdivision or the type of improvements will conflict with easements, acquired by the public at large, for access through or use of, property within the proposed subdivision. In this connection, the governing body may approve a map if it finds that alternate easements, for access of or use, will be provided, and that these will be substantially equivalent to ones previously acquired by the public. This subsection shall apply only to easements of record or to easements established by judgment of a court of competent jurisdiction and no authority is hereby granted to a legislative body to determine that the public at large has acquired easements for access through or use of property within the proposed subdivision.
Staff has reviewed the proposed annexation, pre-zone, and vesting tentative tract map and has determined that none of the findings above apply to the project, and has recommended approval subject to the Conditions of Approval (Exhibit J).
CONCLUSION
The appropriateness of the proposed project has been examined with respect to its consistency with goals and policies of the Fresno General Plan and the Roosevelt Community Plan; compliance with the provisions of the FMC; compatibility with surrounding existing or proposed uses; and avoidance or mitigation of potentially significant adverse environmental impacts. These factors have been evaluated as described above and by the accompanying environmental assessment and exhibits. The proposed project does not meet the findings for denial per the SMA, and staff concludes that the required findings contained within Sections 15-3309, 15-6103, and 15-6104, et seq. of the FMC can be made. Based upon this evaluation, it can be concluded that the proposed projects are appropriate for the project site.
LOCAL PREFERENCE
Local preference was not considered because this project does not include a bid or award of a construction or service contract.
FISCAL IMPACT
Affirmative action by the Council will result in timely deliverance of the review and processing of the applications as is reasonably expected by the applicant. Prudent financial management is demonstrated by the expeditious completion of this land use application in as much as the applicant has paid to the City a fee for the processing of this application and that fee is, in turn, funding the respective operations of the Planning and Development Department.
Attachments:
Exhibit A - Vesting Tentative Tract Map No. 6376 [4-02-2025]
Exhibit B - Operational Statement [11-18-2022]
Exhibit C - Aerial Map
Exhibit D - Vicinity Map
Exhibit E - Fresno General Plan Land Use & Zoning Map
Exhibit F - Proposed Pre-zone Exhibit
Exhibit G - Proposed Annexation Exhibit
Exhibit H - Fresno Municipal Code Findings
Exhibit I - Public Hearing Notice Radius Map (1,000 feet)
Exhibit J - Conditions of Approval for Vesting Tentative Tract Map No. 6376 [6-04-2025]
Exhibit K - Comments and Requirements from Responsible Agencies
Exhibit L - Environmental Assessment No. T-6376/ P21-05090/P21-05373 [4-24-2025]
Exhibit M - Planning Commission Resolution No. 13898 (Annexation Application No. P21-05090)
Exhibit N - Planning Commission Resolution No. 13899 (Pre-zone Application No. P21-05373)
Exhibit O - Planning Commission Resolution No. 13900 (Vesting Tentative Tract Map No. 6376)
Exhibit P - City Council Ordinance Bill for Pre-zone Application No. P21-05373
Exhibit Q - City Council Resolution for Annexation Application No. P21-05090
Exhibit R - City Council Hearing PowerPoint Presentation