chapter 1 - introduction

1.0  Introduction

River Oaks: The Next Chapter (TNC) is the next step in the community building process, amending the Borkey Area Specific Plan (Specific Plan).
TNC is a desirable and sustainable village designed to meet the needs of today’s varied lifestyles. Residents will enjoy convenient access to shopping, recreation and educational opportunities. Distinctive homes in diverse, pedestrian-friendly neighborhoods will give TNC a unique, close-knit feel with a common thread of order and balance.
Envisioned as a community fostering the values and character of Paso Robles, TNC accommodates responsible, sustainable, consistent growth through thoughtful neighborhood crafting. The plan emphasizes a range of residential densities in a village-like setting and mutually supporting land uses within the context of agricultural preservation and respect for the character of the land. 
TNC includes a plan that balances new economic, social and environmental values into the community. The Specific Plan Amendment promotes a healthy community with efficient infrastructure systems that protect and enhance the quality of life and the community’s economic base. The plan has been designed to reduce the demand on natural resources and energy use. The incorporation of green building practices to reduce the impacts on natural resources and the environment and to improve the qualify of life through innovative design, water efficiency, energy use, efficient use of rapidly renewable and local materials and improved indoor air quality is a key element of the plan.
The proposed ±270-acre development in portions of Subarea A and F of the Specific Plan has strong recreation, open space and village links to the southern River Oaks development and anticipates close ties with the Cuesta College North County Campus. The land plan addresses development by zones, allowing for form-based planning with densities and setbacks that respect the Salinas River and preserve the Oak trees and the agricultural Purple Belt character of the site.
Establishing a sense of “place” while preserving the natural resources and beauty of Paso Robles is paramount at River Oaks. Energy and resources will be conserved through sustainable measures and compact development patterns while creating a beautiful, livable and vibrant series of neighborhoods. Agriculture and the outdoors are a prominent feature in the plan for River Oaks, and a focus on pedestrians and ease of movement will translate into accessible amenities and a more walkable and livable community. To support these planning and development measures, the Master Developer has developed a locally-calibrated checklist for TNC combining elements from USGBC, California Green Building, Build It Green and state code requirements. Planning features of TNC and the standards of the River Oaks Sustainability Checklist will ensure TNC develops in a sustainable and environmentally responsible manner.

1.1  Plan Framework

TNC is a ±270-acre walkable master planned village including 13 residential neighborhoods with a target of 1,219 homes, a 130-room resort hotel, 111,500 square-feet of commercial, recreation opportunities, community facilities and extensive open space as described in more detail below:

Open Space
Active and Passive open space is incorporated throughout TNC comprising approximately 38% of the site. Passive open space includes nearly 77 acres of vineyards and natural open spaces; most notably, 22.1 acres of natural preserve allows for a generous development setback from the Salinas River. Active open space such as the Par Course, sports fields, golf course and open space around the Community Plaza and Conference Center provide additional recreation venues of more than 21 acres.
      Lakes and Basins
The lakes and basins contribute to the feeling of open space while providing infrastructure for drainage, irrigation and water storage throughout the site.
      Par Course
Along the north edge of the village, the Par Course acts as an open space and recreation amenity and gentle transition between development and the rural edge.
      Golf Course
TNC adds 3 new holes to the existing River Oaks Golf Course, increasing this active open space amenity for residents and resort guest. A Pro Shop and restaurant are planned for this new portion of the golf course supporting the core development of the village.
      Sports Practice Fields
Community sports fields along the Salinas River are in a naturalized open space setting accessible by North River Road and pedestrian trails from the village. These practice fields will not be lighted.
Residential Neighborhoods
Thirteen residential neighborhoods are proposed at TNC for a target of 1,219 homes. There will be a broad spectrum of residential densities, types and sizes in compact, walkable neighborhoods. 
Hospitality/Retail
Slated for a resort-style development, the hospitality/retail area allows for integrated commercial, resort and residential opportunities serving as a village node. The destination resort includes:
      The Resort
A Prairie-style, 130-room resort hotel with restaurant and golf-shop facilities will be the central feature of TNC.
      Spa, Health & Wellness and Fitness Centers
The River Oaks Hot Springs Spa (Spa) will be relocated adjacent to the Resort. It is planned to be sited in conjunction with a Health & Wellness Center and a Fitness Center. This hospitality/resort area will provide jobs for the community and activate the core of TNC.
      The Promenade
The central circulation corridor connecting residential, resort, golf course and community elements is The Promenade. This engaging streetscape experience along the central corridor of the village provides for a strong pedestrian theme and supports pedestrian connectivity. This formal pedestrian promenade makes open space and walkable connections a vital element of residential and commercial development.
Community Facilities
A number of community facilities will be provided for the residents and visitors of River Oaks:
      Community Plaza & Conference Center
At the center of the village is the Community Conference Center, linked to the resort, amphitheater and commercial areas facilitating continuous learning and cultural opportunities and bringing activity to the core of the village.
      Amphitheater
The topography of the site features a natural bowl creating an ideal location for an open-air amphitheater for cultural arts, village gatherings and entertainment set among the vineyards.
      Neighborhood Recreation
Directly along the Promenade of TNC is the neighborhood recreation center, providing recreation, meeting and sports opportunities for residents.
      Active Adult Community Center
The current 5,000-square-foot Active Adult Community (AAC) pavilion
will be remodeled and enclosed to include recreation, meeting and lounge amenities for the exclusive use of the new Traditions Active
Adult community.
Radio Transmission Tower
The existing low frequency am radio tower will be relocated to the northern portion of the site.
Aquatic and Tennis Facility
Adjacent to TNC, a competitive swimming and tennis facility, accompanied by appropriate parking, will be designed in conjunction with the future Cuesta College Trades/Technology Complex, and is intended for joint use by the River Oaks residents, college and the community.

1.2  Site Location

TNC is comprised of portions of Subarea A and  Subarea F of the Specific Plan. Annexation of the 20± acre parcel across Buena Vista Drive has been added to the Specific Plan area. Outparcels of Subarea A (marked with hatching) are excluded from the TNC Amendment; one of these out parcels was previously donated to Cuesta College for their future Trades/Technology Complex.
The amendment area lies northerly and easterly of the existing urban portion of the City of Paso Robles along State Highway 46 and the Salinas River. The area is bounded roughly by the centerline of the Salinas River channel on the west, existing development within Subarea B on the south, Buena Vista Drive on the east and privately-owned vineyards to the north. Circle B Road represents the northern boundary of the annexation. Figure 1-2 shows the location of the project site in relation to Specific Plan and the Paso Robles community.
A 23-acre parcel at the southeast corner of the project site adjoining Buena Vista Drive is the future home of Cuesta College Trades/Technology Complex, as part of the North County Campus. This parcel is not included in the development plan for this Specific Plan. However, design of the Tennis and Aquatic Facility located within this parcel could be part of the development plan.
The site has been primarily utilized for rangeland with some dry farm agriculture. Topography of the western and eastern portion is generally flat, while the central part is characterized by gently rolling hills,  drainage swales and contains a small lake formed by an earthen dam near the north central property boundary.

1.3  Background

1.3.1  Historical Context

Paso Robles is “California’s oldest watering place” for springs and mud baths. In the 1790’s, Franciscan missionaries recorded that large numbers of Salinian Indians gathered at the hot springs and mud pools near the oak groves along the banks of the Salinas River. The reason for this ritual soon became clear; these waters relieved the aches and pains caused by arthritic joints. Soon the padres and soldiers were joining the Native Americans at this primitive spa between the oaks and sycamores.
In 1886, the Southern Pacific Railroad connection from San Francisco and San Jose to Paso Robles was nearly complete. The Blackburns and Drury James began laying out a town site, with the Hotel El Paso de Robles at the center. By the end of 1887, there were 523 residents and 100 buildings in Paso Robles and two years later the city was incorporated. As in mission days, cattle and horse ranching continued to be a primary agricultural activity. Wheat, barley and sugar beets became key crops.
In the late 1800s, many German Mennonites and Lutherans immigrated to the Paso Robles area to escape persecution. Because they had to give up possessions in order to retain individual freedoms, these immigrants learned to live very simply. This was reflected both in the home and at church, where their dress and their buildings were plain. Other than making simple buildings, typically ranch buildings, these settlers followed the prevailing building practices of their respective communities for materials and visual style. 
During the First World War, San Luis Obispo literally “fed Western Europe.” The north county, and especially Paso Robles, grew apricots and plums for dried fruits and nuts. By 1920, Paso Robles was known as “Almond City,” it had the largest concentration of almond orchards in the world. Today, many of these aging orchards have been transformed into beautiful vineyards producing world-class wines.
In 1980, Paso Robles had a population of 9,045, which grew to 24,297 in the 2000 census. This steady growth has continued, with the latest figure of 27,964 in 2006. Paso Robles still impresses visitors with its small-town friendliness, and its reputation for vineyards and mineral bathing is resurging.

1.3.2 Site History

Franciscan Juan Vincente Cabot, who served at the San Miguel Mission in the early years, also recognized that Paso Robles, with its hot springs and safe crossing of the Salinas River, was an important gateway connecting the valleys of Central California. While his efforts to expand the mission system eastward were frustrated by both Mexican officials and Indian raiding parties, he truly is the “father” of the Highway 46 and 41 connections into the San Joaquin Valley.
The beautiful rolling hills of the Central Coast that are known as El Paso de Robles have always been renowned for thermal springs. The mineral springs at River Oaks Hot Springs Spa (Spa) are unique in their mineral composition and healing properties. Rich in sulfur compounds, trace minerals which assist healing in a variety of ways. Hydrogen sulfide gas (responsible for the aroma) is a powerful antibacterial agent, stimulating to the body’s mucus membranes, soothing to the respiratory system and calming to the skin.
Kermit King elementary school off Highway 46 East, which opened in 2001, was named after Kermit King who served as a teacher for 36 years and a principal for 3 years in Paso Robles City Schools.
The Willhoit family has been active in community service and businesses in Northern San Luis Obispo County since 1916. In 1954, Al Willhoit was appointed as Postmaster serving the Templeton Post Office until he retired in 1977. From 1983-85, Al served as President of the San Luis Obispo County Historical Society. He presided over the organization as it modernized the operations of the County Museum, the Dallidet and Dana adobes and other historic sites throughout the County. Al went on to help establish the Templeton Historical Museum and Society. He died in 1989.
Kathryn McKean, Dick Willhoit’s grandmother came to Templeton in the 1920s to teach. One of the school buildings was name in her recognition in the 1950s.
Richard “Dick” Willhoit has served as a member of the Paso Robles School Board and is Past Chair of the Paso Robles Chamber of Commerce and Visitors Bureau. He is the founder of Estrella Associates. Dick Willhoit purchased the original River Oaks property in April of 1998 and the TNC property in December of 2005. Dick began developing design concepts for TNC in 2006 through a number of design charettes. In June of 2007, a community meeting with over 500 invitees was held to obtain community input which resulted in the Vision plan submitted to the City of Paso Robles in July of 2007. This Specific Plan implements that vision.

 1.3.2  Amendment Background

The Borkey Area Specific Plan (originally adopted January 8, 1990) was created to establish a policy framework, guidelines and standards for the long-term evolution and development of land use and supportive infrastructure for the area.
Encompassing approximately 767 acres of land, the Specific Plan created 6 planning areas to be developed as residential single family, low-density residential single family, commercial services, public facilities and agriculture. Since 1990, the Specific Plan has been amended 13 times to continually address and modify land use and development standards of the plan. Subarea B of the first phase of River Oaks, is nearly built out.
Since the adoption of the Specific Plan, the needs and goals of the City of Paso Robles continue to evolve, prompting the Master Developer to reevaluate the potential of the site. With the previous donation of 23 acres to Cuesta College, and the continuing need for housing within the City, rezoning of portions of Subareas A and F as a mixed-use development will better serve the adjacent infrastructure and agritourism potential of the site. To this end, this amendment to the Specific Plan addresses the modification and development of portions of Subarea A and F to create standards for long-tem residential, mixed-use and resort development to extend the quality residential and non-residential development established in Subarea B.

1.4  Existing Conditions

The existing conditions for Specific Plan are varied. The majority of Subarea A is currently fallow and undeveloped. Subareas B, C and D of the Specific Plan have currently been developed to some extent.

1.4.1 TNC, Subarea A

The ±270-acre TNC site currently consists of rolling hills dominated by 161 acres of dry land farm crops including oats and barley. A drainage system carries storm water across the property from south to north with a dam  retaining water, forming a 7-acre lake. River wells supply irrigation via the lake to irrigate nearly 15 acres of landscaped grounds surrounding the lake.
Approximately 20 acres of the parcel are west of North River Road, in the Salinas River basin with grain crops intermittently planted on the 4 acres within the flood plain. The remaining 16 acres consist of islands of cottonwoods and willows supporting diverse bird and mammal populations.
Two buildings currently exist within Subarea A. The River Oaks Hot Springs Spa (Spa) is located at the current terminus of Clubhouse Drive. The Spa will be relocated to the retail/hospitality core within TNC to allow for expansion of the Spa in close proximity to the future hotel. The current Spa facility will be remodeled to be a combined HOA office and maintenance facility. The architectural character will be updated to be consistent with the Prairie vernacular.
The second existing 5,000 square foot facility will become the Active Adult Community Center (AAC). This facility will be remodeled to function as a  recreation and meeting center for the new Active Adult communities in the TNC development.

1.4.2  Subarea B - Existing River Oaks Development

The initial phase of River Oaks took place within Subarea B of the Specific Plan. Located south of the TNC Amendment boundary, these 198 acres has been developed with homes, commercial opportunities, community elements and recreational amenities. Currently River Oaks includes:
•   481 homes of various lot size, home size and lifestyle needs including single-family homes, Active Adult homes, motor court homes and large-lot estate homes
•   River Oaks Golf Course with 6 holes on 22.5 acres
•   3,800-square foot Prairie-style Golf Clubhouse
•   Kermit King Elementary School
•   River Oaks Center, a Gold level LEED-CS certified Prairie-style neighborhood office retail center, comprised of 2 buildings with a total of 50,000 square feet
•   51 approved single-family lots to be developed
The neighborhood crafting, range of housing types, Prairie style non-residential buildings and focus on place making at the existing River Oaks sets the standards future development within TNC. See Figure 1-3 for a plan of existing River Oaks development.

1.4.2  Subarea C -

Cuesta College North County Campus
The proposed Trade and Technology Complex is of the comprehensive master plan for Cuesta College. The complex is located on a 23-acre parcel northwest of the North County Campus. This planned complex responds to the local desire for career education opportunities that support the community of Paso Robles.

1.4.3  Subarea D - Local Industry Commercial

Additional commercial development supporting the local wine industry is located at the intersection of Buena Vista Drive and Highway 46. The west corner features the Martin and Weyrich Wine Tasting Room in characteristic wine country architectural styling. The east corner features La Quinta Inn & Suites Paso Robles.

1.5  Purple Belt

While the City of Paso Robles has not identified particular properties to be a part of the Purple Belt (wine grape and other agriculture belt), it intends to formulate a set of criteria for determining properties outside the City limits that would be most appropriate for consideration. However, the Purple Belt is intended to protect vineyards, other agricultural resources and open space to prevent urban sprawl. The Purple Belt is intended to preserve the County’s sense of rural character by preserving open space corridors between existing communities.
TNC has established a “Purple Belt-like” buffer of 300 feet along the northern edge of the property that will be planted with vineyards and reserved as natural open space. In addition, vineyards will planted within the central core of TNC to integrate the rural Paso Robles character into the development.

1.6  Specific Plan Amendment Purpose & Intent

TNC proposes a form-based land use framework and development code for portions of Subareas A and F that is in line with the goals of the City and the City’s adopted Economic Strategy; provides a buffer for adjacent agricultural land and respects natural open space amenities. Specifically, the intent and purpose of this Amendment is to enable, encourage and qualify the implementation of the following policies:
•   Establish a land plan that provides a range of residential opportunities in a setting that respects the open space and agricultural amenities.
•   Integrate a mix of land uses to serve the needs of the local community, showcase natural hot mineral waters and provide regional agritourism opportunities.
•   Guide the character of the land planning to ensure that high-quality, place making improvements are made to create an inviting, pedestrian-oriented village that supports the vision and goals of the City plan.
•   Provide compatibility and buffers between uses to enhance access, walkability and recreation opportunities throughout the village.

1.7  Sustainable Development

TNC is inspired by sustainability and, wherever feasible, environmentally preferable choices have been or will be selected. While there is no agreed upon term for sustainability, one of the most universally accepted definitions considers “development that meets the needs of the present without compromising the ability of future generations to meet their own needs.” Sustainable development involves the simultaneous pursuit of economic prosperity, environmental quality and social equity also known as the “triple bottom line” in a continually evolving process. The process of achieving sustainability is vitally important but only as a means of getting to the “destination” of a desired future state. The desired future state is not a “fixed place” but a set of wishful characteristics of a future system. Environmental quality is sometimes prioritized over economic prosperity and social equity considerations in the health and well being of communities. However, treating one element over the other is by definition not sustainable.
Usually the term “green building” does not address site issues and relates to the building only.  As defined on the City of Paso Robles website, “green building” relates to: “the practice of increasing the efficiency of buildings and their use of energy, water, and materials, and reducing building impacts on human health and the environment, through better siting, design, construction, operation, maintenance, and removal of the structure at the end of use, the complete building life cycle.”

The master plan for TNC has considered the context and topography of the site. The low impact design protects the water quality of the area and integrates vineyards within community. In conjunction with the storm drainage, the landscape treatments shall assist in providing for bioretention, aesthetic enhancement and potential habitat. The variety of housing types and increased density are a more efficient use of the land, allowing food production to be promoted within the remaining open space. Reduction in the water demand has been key factor in the design of the community. Turf will only be allowed in areas for recreational needs instead of being used as a unifying element in front yards and parkways. The remaining plant palette is climate-appropriate reducing the water demand for TNC. Separate irrigation water meters and non-potable water sources should service irrigation water supply as those sources become available. The water used for landscape will be further reduced through the use of high efficiency irrigation systems. Required low-flow fixtures have been identified in Chapter 3 further reducing the water demand. TNC has also been designed to promote walkability within the community with public gathering places linked with pedestrian paths with transit stops located throughout the community. Way-finding devices and site features will provide interest, aid orientation and instill community pride.

The California Department of Housing and Community Development and the California State Building Standards Commission are in the process of updating the California Building Code (CBC) to mandate many sustainable elements over the next several years. Many of these future mandated sustainable elements have costs associated with them that are difficult to predict, creating challenges to establishing a sustainable program today. TNC will be developed in a sustainable manner aimed at reducing the use of finite resources, saving utility and energy costs, improving indoor air quality, creating healthier environments and longer building life. To achieve this, the Master Developer has developed a locally-calibrated sustainability checklist that combines elements from USGBC, California Green Building, Build It Green and state code requirements. This checklist (see River Oaks Sustainability Checklist in the Appendix) shall be updated periodically to reflect new technologies, advances/revisions in sustainable programs and new legislative requirements.

In reality, sustainability is about balance. For example, west-facing mountain views inspire the preference to maximize window area, however from an energy efficiency standpoint this should be avoided, or more sophisticated window systems and generous overhangs should be considered. For landscapes, vegetable and herb gardens are not necessarily drought tolerant, but local production would reduce fuel dependency. Buyer preferences for various “green” finish materials, i.e. rapidly renewable sources such as bamboo floors or recycled-content carpets should continue to be a buyer choice and not a mandated feature.

1.8 How to Use This Specific Plan

TNC, as an amendment of the Borkey Area Specific Plan, sets parameters on the overall amount of development and allowable land uses while providing a vision through physical and character standards for the development area. Regulation of the area is provided by general standards for Transect Zones, Building Types, frontages, street dimensions, parking, improvement and landscaping, and overall height limits and density limits of this document.
This Specific Plan amendment creates a framework for design and development that will happen over many years. To aid in understanding the practical application of the requirements of this plan, illustrative renderings are included to show the intent of various requirements and provisions. These illustrative renderings and photographic images should not be interpreted as requiring a specific mix, use or type of development or the specific style of design elements, and are simply a prototypical depiction of the possible arrangements of conforming development.

As the TNC area is built out, the City shall review design and landscaping of development parcels through the plot plan review process provided in this document. Prior to the commencement of any residential or non-residential construction within TNC and the submission of any plans to the City, each builder and/or homeowner must first receive approval from the River Oaks Community Design Review Board (DRB). The purpose of this initial design review process is to ensure compliance with all TNC development standards, design guidelines and technical requirements contained herein. DRB approval shall be required prior to submittal and completion of an application for all residential and non-residential construction within TNC.

Form-based code approaches the development of land by regulating the form, character and street presence of a building to focus attention on the public presentation of buildings, creating a public realm that is comfortable for pedestrians. To proceed through this form-based Specific Plan amendment, first the Transect Zone should be identified to establish the intensity and form permitted. After identifying permitted land uses, Building Types and frontages permitted in the Transect Zone and applicable to the development type should be established. Application of development code standards, design guidelines and landscape standards to the parcel create a full-fledged development. This layering of standards prepares the applicant for River Oaks Design Review Board and, upon approval, City application and processing.  

The following flow chart is a guide to using this Specific Plan for the evaluation of parcels and the process of submitting City applications.