The purpose of this chapter is to establish objectives, policies and programs that will preserve and improve Novato's unique sense of place. Strengthening Novato's sense of community was given a high priority in the survey carried out for the General Plan and in public meetings. Suggestions included keeping the small town character, having more local events, and beautifying the Downtown. Residents and business people stated that there was a need for better-designed developments, maintaining the attractiveness of older, more traditional residential areas, and greater variety in residential development, in contrast to standard subdivision tracts.
The objectives, policies, and programs of this Chapter are intended to further the following goals of the Vision and Goals Statement adopted by the City Council on September 29, 1992:
| Goal | Retain and promote the small town character of Novato including preservation of the historic features and landmarks. |
| Goal | Protect the integrity of residential neighborhoods from conversion and/or intrusion of incompatible land uses. Create transition buffers separating incompatible land uses. |
2. BACKGROUND
Much of the new residential development that will occur in Novato will be infill, the development of land usually on individual lots in already developed areas. Ensuring that infill development fits harmoniously with the surrounding neighborhood is a key function of the objectives, policies, and programs in this chapter.
Many of the infill sites are located where residential and commercial land uses are near one another. Residential areas next to Downtown, such as the Northwest Quadrant, and single-family areas surrounding neighborhood shopping centers such as Nave Center and The Square are examples where using design guidelines ensures that new development fits harmoniously with what exists.
Novato also has a few large, undeveloped sites where additional housing will be developed, such as Hamilton Field. A unique opportunity exists on these larger sites for new housing to create a sense of place by encouraging a traditional pattern of pedestrian-scale neighborhoods. Similar neighborhoods are found in the older residential areas adjacent to Downtown Novato and in other nearby communities, such as San Anselmo and Petaluma.
The Community Identity Element is closely related to the Land Use and Transportation Elements. The design of public and private projects must be consistent with the entire General Plan, however.
3. OBJECTIVES, POLICIES, AND PROGRAMS
| CI Objective 1 | Build on and strengthen Novato's unique identity and sense of place. |
| CI Objective 2 | Preserve the character of existing residential neighborhoods. |
| CI Objective 3 | Ensure that new residential development demonstrates quality, excellence of design, and sensitivity to the character of the surrounding neighborhood. |
| CI Objective 4 | Encourage compact development that reduces the need for annexations and urban sprawl. |
Other chapters of the Plan implement many of these objectives. A more compact city is obtained by emphasizing infill development and promoting mixed use development Downtown and in neighborhood shopping areas, and by discouraging sprawl at suburban densities in outlying areas.
CI Policy 1 Compatibility of Development with Surroundings. Ensure that new development is sensitive to the surrounding architecture, topography, landscaping, and to the character, scale, and ambiance of the surrounding neighborhood. Recognize that neighborhoods include community facilities needed by Novato residents as well as homes, and integrate facilities into neighborhoods.
CI Program 1.1: Establish Design Guidelines to be applied as part of the Design Review process.The guidelines may address: massing (the relationship between the size and bulk of buildings), use of colors, materials and detailing, landscaping, lot circulation, signage, and privacy, in order to promote attractive development that is compatible with surrounding land uses, emphasizing compatibility of uses and buildings in residential neighborhoods. Compatibility does not require that residential densities and building types be identical on adjoining properties.
Novato is primarily a residential community. The character and livability of its neighborhoods define, to a large extent, Novato's sense of place. New residential development must fit in harmoniously with its surroundings, support and enhance the City's identity, without necessarily conforming to any given architectural style or motif.
CI Program 1.2: Continue the Design Review process.
The Design Review process recognizes the interdependence of land values and aesthetics and provides a method to promote good site planning, building design, and sound land use development.
CI Program 1.3: Adopt specific design guidelines for the Downtown, the North West Quadrant, and for mixed use development.
CI Program 1.4: Continue to recognize the rural character of some of Novato's residential areas and to implement the City's rural residential street standards.
CI Policy 1A Gates on Private Streets and Gated Communities. Preserve Novato's small town character and integrated sense of community by prohibiting the creation of gated communities and the placement of gates on private streets serving two (2) or more independent single-family dwelling units. (43B)
CI Policy 2 Explore the use of traditional site design and architectural principles in areas with established patterns or sufficiently large development areas to use those principles successfully. Elements of traditional site design and architecture include:
In many newer single family subdivisions front yards are rarely used. The streets are wide and dominated by driveways and garage doors. There are few porches or verandahs which reduce human presence. Traditional residential design is found in communities built before the 1940s and the principles used then may be appropriate in some Novato locations. These residential neighborhoods promoted activity in front yards and established a stronger connection between the house and the street, and increased opportunity for interaction among neighbors. This contributes to neighborhood safety and sense of place. A return to the more traditional residential neighborhood design is occurring in cities across the United States. The Hamilton Design Guidelines incorporate some of these principles.
CI Policy 3 Variety in Design. Discourage sameness and repetitive designs.
CI Program 3.1: Consider revising the Zoning Ordinance to include the following guidelines:
- discourage new residential construction with identical or similar facades on opposing or adjacent lots;
- encourage varied roof styles, reversed building footprints, and changes in elevation for the same unit floor plan.
Revising the Zoning and Subdivision Ordinances to reflect the intent of CI Policy 3 will result in increased choice and variety in the design of development. In most subdivisions one builder constructs all of the homes in the project using only a few different house plans. This can result in a monotonous and sterile residential environment. Through a variety of measures, it is possible to create more interesting neighborhoods without significantly adding to costs.
CI Policy 4 Noise Mitigation. The preferred method of noise mitigation is buffering through distance. Other methods, in order of preference, are wooden walls and masonry walls.
CI Program 4.1: The City shall request that Caltrans perform a visual analysis for all new, proposed sound walls in Novato. The analysis shall show existing and future views at critical points along the route. This data will be used to determine whether the sound walls should be constructed.
CI Policy 5 Property Maintenance and Nuisance Abatement. Encourage property maintenance and abate nuisances.
CI Program 5.1: Revise the nuisance abatement ordinance to strengthen its property maintenance provisions.This ordinance could regulate the storage of recreational vehicles, boats, and automotive repair in residential areas. The ordinance permits the levying of fines for repeat offenders.
CI Policy 6 Mixed Use Developments. Ensure that mixed use developments are well-designed aesthetically and functionally.
CI Program 6.1: Amend the Zoning Ordinance to address:
- shared parking, trash and recycling facilities;
- required ground floor retail or personal service uses wherever appropriate; and
- site and building design which are compatible with and enhance the adjacent and surrounding residential neighborhood in terms of scale, building design, color, exterior materials, roof styles, lighting, landscaping and signage.
Many of the mixed use areas are located adjacent or near to residential neighborhoods. It is essential that mixed use developments be developed in a manner which contributes to and preserves the residential character of these neighborhoods.
CI Policy 7 Landscaping. Encourage attractive native and drought-tolerant, low-maintenance landscaping responsive to fire hazards.
CI Program 7.1: Maintain and periodically update minimum landscape standards.CI Program 7.2: Maintain a list of drought-tolerant plants for public distribution.
The Public Facilities Chapter contains water conservation policies limiting turf areas and requiring drought-tolerant landscaping.
CI Policy 8 Pedestrian-Oriented Land Uses. Encourage pedestrian-oriented, rather than auto-dependent uses in areas such as Downtown, Ignacio, and other activity centers where mixed uses, shared parking (on- and off-street), transit service, and other conditions facilitate pedestrian circulation.
CI Policy 9 Undergrounding Utilities. Continue to require undergrounding of utilities.
CI Policy 10 Provide for the proper placement, removal and replacement of above-ground utilities.
CI Program 10.1: Work with utility companies to remove inactive or abandoned above ground utility lines and facilities.CI Program 10.2: Explore funding programs to facilitate the undergrounding of utilities in addition to current methods.
CI Program 10.3: Consider amending the zoning ordinance to incorporate guidelines or regulations, to the extent feasible, regarding the aesthetics, proliferation and location of above ground utilities, appurtenance and antennas.
CI Policy 11 Entryways. Encourage the development of entryways to the City through use of distinctive signs, street lighting, landscaping and street trees.
| CI Objective 5 | Improve the appearance and effectiveness of parking facilities. |
Off-street parking facilities occupy a significant portion of the City's lands. Design guidelines should improve their effectiveness, attractiveness and safety, while removing conflicts between motorists and pedestrians.
CI Policy 12 Parking Standards. Reduce the visibility of parking facilities and the amount of land necessary for them to the maximum extent feasible.
CI Program 12.1: Consider the following revisions to the Zoning Ordinance for parking facilities:
- use continuous (except for wheelchair ramps) curbs around the perimeter of parking areas;
- require motorcycle parking in all new parking facilities with more than five spaces;
- encourage shared access to parking areas to reduce curb cuts and save space;
- ensure that the glare from vehicular headlights in the parking lot does not have an adverse impact on adjacent land uses;
- improve pedestrian movement and safety, by such means as signals, bollards, and other features;
- require that parking facilities be located behind buildings wherever possible;
- allow shared parking and driveways for commercial uses having day/night activity patterns.
- review and evaluate the off-street parking requirements for commercial and multi-family areas to reduce on street parking.
Lighting
Lighting should serve functional, safety, and aesthetic purposes. Light can be used to identify important civic and historic buildings, giving cohesion to the physical structure of the community and increasing the use of public places at night.
Exterior lighting for pedestrian areas, building facades, and landscape should be complementary in style, color, and intensity with public street and pedestrian lighting. Fixtures proposed for building exteriors should work effectively with street lighting.
The following guidelines for architectural lighting are intended to improve the lighting of public and private development throughout the City.
| CI Objective 6 | Improve the appearance and effectiveness of outdoor lighting and reduce conflicts related to lighting. |
CI Policy 13 Lighting Design Guidelines. Amend the Zoning Ordinance to incorporate design guidelines for exterior lighting addressing issues such as security, appearance , and intensity. The guidelines shall provide the types of lights and lighting to be used in various types of development so that new projects mitigate impacts on open space or other valuable City views to the extent feasible.
Open Areas and Landscaping
CI Policy 14 Open Areas and Landscaping. Require provision of adequate landscaped, open areas in project design.
CI Program 14.1: Consider revisions to development regulations to provide for adequate landscaped and open areas.
Pedestrian Circulation
Convenient and safe pedestrian access to and from commercial, recreational and residential areas of the City is essential to the well-being of the community. The Transportation Chapter contains policies and programs for additional pedestrian walkways and related facilities. This section addresses the design of pedestrian paths and walkways in Novato.
CI Policy 15 Pedestrian Paths. Provide for maximum feasible pedestrian circulation.
Pedestrian paths and walkways should connect residential areas, parking facilities, schools and commercial areas.
CI Program 15.1: Consider adopting the following design guidelines for pedestrian facilities:Downtown
- provide physical separation of vehicular and pedestrian movement wherever possible and plant street trees to create a safer and more pleasant environment for walkers;
- provide pedestrian-oriented lighting to improve security and the sense of safety;
- require convenient, secure pedestrian access from parking lots and entrances to commercial uses;
- encourage commercial developments to include pedestrian walkways and street furniture at street level adjacent to buildings, public transit and parking facilities; and
- encourage clustering of commercial buildings to create pedestrian zones and avoid wide expanses of parking between building entrances.
- Encourage landscaped open areas and outdoor furniture in areas to be provided as gathering places for employees and customers in commercial office and industrial areas.
The City is preparing a specific plan to revitalize Downtown and to help ensure that it becomes again the economic, social and cultural center of Novato. It is the result of an extensive grass-roots effort started in 1994. The desire for a Downtown Specific Plan grew out of many public workshops and hearings. A storefront "Downtown Gallery" containing examples of how the Downtown could be improved drew over 2,500 responses from the public. Planning the future of Downtown Novato clearly touched the heart of the community.
Specific plans are tools to implement the General Plan for selected areas of the City. They are more detailed than the general plan and direct all phases of future development - the distribution of land uses; the location and sizing of supporting infrastructure; and methods of financing public improvements.
This section presents overall goals, objectives, policies which provide the legal framework for the Downtown Specific Plan. Other chapters of the General Plan also support the Downtown Specific Plan:
Historically Downtown Novato was the center of a thriving small community. It had a railway station, theaters, bars, and many stores. After Highway 101 was constructed around Novato, the visibility and importance of the Downtown decreased significantly. The suburban, low-density residential development built during the 1960s and 1970s, combined with the establishment of large shopping centers readily accessible from the freeway in San Rafael and other nearby communities further reduced the commercial vitality of the Downtown. Most recently, the Vintage Oaks Shopping Center added retail space equivalent to the entire Downtown.
Community sentiment has changed. There now is a desire for the sense of place created by the traditional, small-town main street, providing a safe, pedestrian-friendly atmosphere where people can gather, shop, and be entertained.
The Downtown Specific Plan will implement this vision by building upon the unique assets that exist: the large number of historic and attractive older buildings; the proximity to the railway and Highway 101; the diverse building supply and related light industrial businesses located north of Grant Avenue; the Community House and City Hall campus; and the hillside views surrounding Downtown.
| CI Objective 7 | Establish the Downtown as the primary center for community and cultural activities. |
| CI Objective 8 | Establish the Downtown as a commercial and business center for the community. |
| CI Objective 9 | Provide a variety of housing Downtown. |
| CI Objective 10 | Improve the appearance and attractiveness of the Downtown. |
CI Policy 16 Downtown Specific Plan. Adopt and maintain a Downtown Specific Plan.
CI Program 16.1: Develop an education/information program for the Downtown Specific Plan.Responsibility: Redevelopment Agency.
CI Program 16.2: Coordinate development Downtown with the updated Downtown Specific Plan. Refer to CI Map 2: Downtown Specific Plan.
Responsibility: Community Development Department and the Redevelopment Agency.
CI Policy 17 Downtown Diversity. Maintain and support the diversity of businesses and services Downtown.
CI Program 17.1: Consider establishing a Business Improvement District (BID) specifically for the area within the Downtown Specific Plan area.Responsibility: Redevelopment Agency.
CI Policy 18 Tourism. Refer to the Economics/Fiscal Chapter.
CI Policy 19 Farmers Market. Continue to support the Farmers Market.
CI Policy 20 City Hall. Maintain the City Hall campus and appropriate community facilities Downtown.
CI Program 20.1: Identify possible Downtown locations for additional community facilities.Responsibility: Community Services and Community Development Department.
CI Policy 21 Ground Floor Retail. Encourage the establishment of ground floor retail uses wherever feasible.
Stores, restaurants, cafes, theaters, and similar businesses facilitate a pedestrian-friendly Downtown which remains a bustling activity center after business hours.
CI Policy 22 Town Square/Plaza. Consider the establishment of a "Town Square/Plaza" Downtown.
CI Policy 23 Automobile-Intensive Uses. Discourage the location of new automobile-intensive uses such as gas stations, oil changers, car washes, fast foods and mini-marts Downtown.
CI Policy 24 Additional Parking. Facilitate the provision of adequate parking, emphasizing a combination of public and private parking facilities.
CI Program 24.1: Encourage shared parking, trash and recycling agreements wherever feasible. Utilize, as appropriate, development agreements, conditions of approval, and other means to encourage shared parking, trash and recycling arrangements.CI Program 24.2: Consider revising parking requirements for mixed use developments in the Zoning Ordinance to account for alternate use times.
CI Policy 25 Architectural and Landscape Design. Require attractive architectural and landscape design for all new developments as well as for expansion to existing uses, consistent with Downtown Specific Plan guidelines.
CI Policy 26 Pedestrian Movement. Encourage a pedestrian-friendly Downtown with outdoor seating.
CI Policy 27 Public/Private Partnerships. Encourage cooperation and collaboration between the City and Downtown property and business owners to implement the Downtown Specific Plan.
CI Program 27.1: Consider implementing a Main Street type program.Responsibility: Community Development and Central Administration.
CI Program 27.2: Consider various funding vehicles to encourage existing businesses to renovate and stay Downtown.
Responsibility: Administrative Services.
CI Policy 28 Additional Housing. Accommodate additional housing on upper floors over commercial and office uses where appropriate.
The Land Use Chapter establishes a Mixed Use designation for the Downtown which permits residential development.
CI Policy 29 Neighborhoods Adjacent to Downtown.
Several residential neighborhoods, such as the North West Quadrant Area, are located adjacent to Downtown. Policies and programs will be considered to preserve and enhance these neighborhoods and ensure that they will not be adversely affected by future development Downtown.
Historic Resources and Public Art
Conservation of Architectural and Historic Resources
Novato's archaeological and historic resources should be preserved. They provide a link to the past and strengthen the City's sense of place and community identity. Members of the community take a strong interest in the preservation of historic buildings and sites. The Novato Historical Museum and Archives - a volunteer organization exhibiting many artifacts and documents relating to Novato's past has identified a total of 80 historic buildings and sites in the Novato area.
| CI Objective 11 | Preserve archaeological and historic resources. |
The California Environmental Quality Act (CEQA) requires evaluation of any archaeological resource on the site of a development project. Unique resources, as defined by State law, should be protected, either by physical measures or by locating development away from the site.
CI Program 30.1: Require that areas found to contain significant historic or prehistoric artifacts be examined by a qualified consulting archaeologist.CI Program 30.2: Require development applicants to research records for sites identified as having a potential for archaeological resources, to determine if a survey has been made and if resources have been identified. If there has been no survey, the City may require that the applicant conduct one.
CI Program 30.3: Halt all work if archaeological resources are uncovered during construction, and require an evaluation by a qualified archaeologist prior to recommencing construction.
CI Program 30.4: Locate and/or design development to avoid impacts on sites with identified archaeological resources by placing building to avoid the site, incorporating the site into a permanent open space area, covering the site with a layer of soil, deeding the site as a permanent conservation easement, or taking other actions recommended by the archaeologist, as approved by the City.
CI Program 30.5: If site has potential for archeological considerations, institute measures to protect these resources.
CI Policy 31 Historic Buildings, Sites and Districts. Identify, recognize and protect sites, buildings, structures and districts with significant cultural, aesthetic and social characteristics which are part of Novato's heritage.
CI Program 31.1: Adopt a Cultural Resources Management Ordinance to define, identify, evaluate, protect and preserve sites, buildings, structures, districts and objects that reflect significant elements of Novato's cultural, social, economic, political, aesthetic and architectural heritage use the Novato History Museum documents identifying 80 historic buildings and sites in Novato as a resource in developing the ordinance as well as the information regarding the existing historical districts.A Cultural and Historic Resources Management Ordinance would supplement the present design review requirements for the Downtown Historic District. Boundaries of the District are shown on CI Map 1.
CI Program 31.2: Publish and distribute historic information about Novato.CI Program 31.3: Consider establishing incentives for preservation and restoration of historic buildings and sites.
Public Art
Art located in public spaces such as parks, thoroughfares, Downtown, and around public and private buildings provides beauty, a sense of place and a human quality to urban areas. Public art can often becomes a landmark treasured by the community. Public art does not have to be large or monumental in size. Murals, fountains, sculptures and other forms have been used successfully to soften and beautify urban spaces. Many communities throughout California and the nation have implemented highly successful art-in-public-places programs.
Novato is located in an area with a large population of artists. The annual Marin County Open Studios lists many artist studios in Novato. The City's sense of place and its attractiveness would be enhanced through public art. Art has the ability to reflect the cultural life of the community.
Public art can be achieved through programs like the Percent-for-Art Program and through the support of private donors. Development can be encouraged and required to include artwork with new buildings and expansions.
| CI Objective 12 | Support public art and sculpture. |
CI Policy 32 Public Art. Promote public art that enhances the cultural life of the community.
CI Program 32.1: Consider adopting an Arts-in-Public Places program voluntary art in public places and Percent- for-Art program with encouragement for selection of local artists.Responsibility: Community Services Department
CI Program 32.2: Consider supporting a Novato-based art organization(s) in developing and establishing art programs and work towards Novato becoming a center for the artists in the North Bay.
These programs would require a percentage of the cost of new public and commercial building to be spent for public art, and/or require new development to contribute to the cost of art in public places.
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