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Receive a background report on the Collinsville Water Dependent Industrial (WDI) area including brief history, allowable uses under the General Plan, and applicable policies and zoning; Encourage the property owners/project proponents of the shipbuilding concept in the Collinsville area to directly engage with the County on details of the proposal and necessary steps to achieve General Plan compliance; and Provide direction to staff on next steps including directly addressing cities regarding the County’s jurisdictional responsibilities in the Collinsville area
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Published Notice Required? Yes ____ No _X _
Public Hearing Required? Yes ____ No _X _
DEPARTMENTAL RECOMMENDATION:
The Department of Resource Management recommends that the Board of Supervisors:
1. Receive a background report on the Collinsville Water Dependent Industrial (WDI) area including brief history, allowable uses under the General Plan, and applicable policies and zoning; and
2. Encourage the property owners/project proponents of the shipbuilding concept in the Collinsville area to directly engage with the County on details of the proposal and necessary steps to achieve General Plan compliance; and
3. Provide direction to staff on next steps, including directly addressing cities regarding the County’s jurisdictional responsibilities in the Collinsville area
SUMMARY:
At the April 8th Board of Supervisors meeting, Chair Mashburn discussed recent newspaper articles and virtual town hall presentations highlighting intensified interest in shipbuilding opportunities in the Collinsville area. This interest has been expressed by property owners and project proponents, as well as by cities and other entities at the local and regional level.
The Collinsville area has long been recognized by Solano County as a site of strategic importance for industrial and maritime development. The County’s legacy in shipbuilding includes the historic Mare Island Naval Shipyard, which played a pivotal role in U.S. naval history, and the Benicia waterfront, which contributed to regional port activity and industrial employment. These historic assets reflect Solano County’s unique geographic and economic strengths and provide context for renewed interest in maritime infrastructure.
Over the past several decades, the County has undertaken multiple planning efforts that address the Collinsville waterfront for long-term industrial use. These efforts include the 1979 Collinsville-Montezuma Hills Area Plan, the 1989 Development Study, and the 2008 General Plan, which designated over 1,400 acres (182 acres in the Montezuma Wetlands and 1,223 acres east of the Collinsville community) for Water Dependent Industrial uses. The area lies outside any city’s Municipal Service Area (MSA), and land use authority resides solely with Solano County.
Recent federal initiatives, including the bipartisan SHIPS Act and recent Presidential Executive Order on Restoring America’s Maritime Dominance, further have increased interest in the Collinsville Water Dependent Industrial Area in regard to its’ potential to contribute to domestic shipbuilding capacity and maritime supply chain resilience. While the County has historically supported the concept of water dependent industries in that area, given the current zoning (A-160) and mix of agricultural, utility, and open space uses, any future proposals will require rezoning and a thorough review for consistency with the General Plan and environmental policy frameworks.
This discussion is intended to provide the Board an opportunity to receive information on the County’s General Plan, particularly the Collinsville Water Dependent Industrial area, discuss allowable uses, and provide direction on continued regional engagement and land use evaluation.
FINANCIAL IMPACT:
The cost for preparation of this staff report is nominal and included in the Department of Resource Management’s FY2024/25 Working Budget.
DISCUSSION:
On March 25th, the Board received a presentation from the Department to begin discussion on the upcoming update to the County’s 2008 General Plan and directed staff to prepare a process that included an invitation to the seven cities to present their future expansion plans to the County to inform the General Plan update. Since that time, there has been numerous newspaper articles, City Council meetings, and various presentations focused on shipbuilding opportunities in the Collinsville area.
Geographic Location
The unincorporated lands east of Collinsville benefit from deep-water access along the Sacramento River Deep Water Ship Channel, and proximity to regional transportation infrastructure. The area’s scale and geographic assets make it one of the few remaining sites in Northern California suitable for shipbuilding, naval repair, and related supply chain activities. The area lacks significant infrastructure which would need to be addressed with any formal proposal for a shipbuilding facility. The site along the waterfront is relatively flat then begins sloping into the Montezuma hills.
Historical Policy Foundation
Solano County’s policy framework for the Collinsville area spans more than 40 years:
• The 1979 Collinsville-Montezuma Hills Area Plan recognized the site’s long-term potential for industrial and waterfront uses.
• The 1989 Development Study identified feasible land uses, infrastructure needs, and environmental parameters.
• The 2008 Solano County General Plan formalized and designated over 1,400 acres for Water Dependent Industrial uses, reinforcing the County’s intent to preserve this area for significant, water-served industry outside city MSAs. (See Attachment A - GP Land Use Designation Description and Attachment B - Collinsville General Plan Special Study area.)
These planning efforts established the Collinsville Special Study Area as a regionally important, future-oriented site for maritime oriented industrial growth.
General Plan and Zoning Context
The Water Dependent Industrial General Plan designation consists of approximately 1223 acres approximately 2.5 feet east of the Collinsville residential community and 182 acres west of Collinsville fronting the Montezuma wetlands. The Water Dependent Industrial designation is specifically intended to accommodate water dependent industrial uses along the Sacramento River including waterfront storage facilities, waterfront manufacturing or processing facilities, water using facilities, support facilities and associated manufacturing or processing uses. Further details of this designation are attached. Most of the area is zoned A-160 (Exclusive Agricultural, 160-acre minimum), intended for agricultural and conservation purposes but could be rezoned consistent with the General Plan land use designation. Existing land uses in the area east of Collinsville is primarily grazing land and wetlands with wind turbines in the hills backing this area. There is no public road access to this area at the present time. The overarching goal for this area in the General Plan is “Protect and maintain the historic communities of Birds Landing and Collinsville while continuing to provide opportunities for industrial development that are compatible with the Collinsville area”. (SS.G-3).
Any proposal for shipbuilding or maritime industrial development would require rezoning to align with the General Plan’s WDI designation and possible amendments to the General Plan. The County would evaluate such proposals for consistency with the General Plan, compatibility with existing uses, and environmental considerations through the discretionary review process. Development of any project would also require public input, environmental review, and coordination with state and regional permitting agencies.
Applicability of Measure T
The County’s Orderly Growth Measure, also known as Measure T, prohibits any change in land use designation of “Agriculture” or “Open Space” lands on the County’s Land Use Diagram (GP Figure LU-1) without voter approval. In the case of the 1,223 acres designated as Water Dependent Industrial (WDI) in Collinsville, a Measure T vote would not be required for any development proposal within the boundaries of that WDI designation; however, any proposal to expand shipbuilding and related uses outside of the WDI boundaries would require voter approval. The County’s current understanding is the geographic area of the WDI is large enough to accommodate a shipbuilding proposal.
Presidential Executive Order: Restoring America’s Maritime Dominance
On April 9, 2025, the President issued an Executive Order titled Restoring America’s Maritime Dominance, directing federal agencies to invest in domestic shipbuilding capacity, strengthen maritime supply chains, and prioritize infrastructure projects that support naval and commercial shipyards. In reviewing the EO, staff notes:
• The goals of this Executive Order appear generally consistent with the Collinsville Special Study Area’s General Plan designation and historical planning intent:
• The site’s deep-water access, potential Water Dependent Industrial land use designation, and absence of residential encroachment make it uniquely suited for large-scale shipbuilding operations.
• The County’s current designation of Collinsville for Water Dependent Industrial Use directly supports the national objective of expanding U.S. maritime infrastructure.
• Solano County’s legacy in shipbuilding - particularly the Mare Island Naval Shipyard - and its central location in Northern California position it to contribute meaningfully to national defense industrial capacity and maritime innovation.
Staff believes that any future proposal for a shipbuilding facility in Collinsville will be competitive in seeking federal support under the Executive Order and related appropriations and recommends early engagement with state and federal stakeholders to explore potential alignment with the General Plan update.
Shipbuilding Concept and Regional Benefits
California Forever and Flannery LLC have expressed interest in developing a commercial and defense shipbuilding facility in Collinsville. While preliminary, this concept could:
• Support a large number of high-quality manufacturing and skilled labor jobs
• Attract defense, innovation, and energy investments
• Expand California’s role in U.S. maritime supply chains
Permitting and Environmental Review Framework
Any shipbuilding or port-related proposal will require compliance with a complex web of environmental regulations, including:
• Federal Agencies: U.S. Army Corps of Engineers, MARAD, U.S. Fish and Wildlife Service, EPA
• State Agencies: California Department of Fish and Wildlife, State Water Resources Control Board, CEQA
• Regional Bodies: BCDC, Delta Stewardship Council, Solano County Department of Resource Management
BCDC and Delta Stewardship Council Roles
BCDC has designated portions of the Collinsville waterfront as a Priority Use Area for Water-Related Industry, reflecting regional recognition of the site’s value for port and maritime infrastructure. BCDC review is required for any development within the Suisun Marsh and adjacent shoreline areas under the McAteer-Petris Act and Suisun Marsh Preservation Act. It does not appear the areas referenced in newspaper articles and virtual town halls directly fronting the Sacramento River channel would be subject to BCDC review.
The Delta Stewardship Council (DSC) also plays a permitting role for projects within the legal Delta. A project in Collinsville may constitute a covered action under the Delta Reform Act and require consistency certification under Delta Plan policies such as GP1 (Best Available Science), DP P1 (Siting), and ER P2/P3 (Ecosystem Protection).
Staff is prepared to assist proponents in coordinating these regulatory processes and identifying early feasibility and mitigation considerations.
Jurisdictional Considerations and Regional Coordination
It is important to note that the County has an extensive history of planning for the Collinsville area including a detailed framework specific to this area in the 2008 General Plan. Recent reports of cities interested in expansive annexations far beyond their Municipal Service Areas including potentially the subject area are quite concerning, undermine the County’s jurisdictional responsibilities and planning for this area, and contradict the County’s long-standing tradition of cooperative planning among agencies. Staff recommends the Board consider issuing statements to the cities regarding the County’s intent to retain land use authority in the Collinsville area consistent with the General plan and encourage appropriate cooperative efforts under a County led process.
ALTERNATIVES:
The Board could choose not to receive the report. Such action is not recommended as an update was requested by the Board and there is significant interest in the community on this issue.
OTHER AGENCY INVOLVEMENT:
This report is a collaborative effort of Resource Management, the CAO’s office and County Counsel.
CAO RECOMMENDATION:
APPROVE DEPARTMENTAL RECOMMENDATION