MM 3I-1. Minimize Visual Intrusion. No mitigation was included in 2000 SEIR No new mitigation is required.

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1 Section 3I Visual Resources 3I.1 Summary The following is a summary of the proposed project s potential impacts to visual resources, any necessary mitigation measures, and the level of significance after mitigation. Potential Impact Potential Impact 3I-1. Substantially Degrade Existing Visual Character or Quality of Site and Its Surroundings Potential Impact 3I-2. Substantially Damage Scenic Resources Within View of State Scenic Highway Potential Impact 3I-3. Create New Source of Substantial Light or Glare Adversely Affecting Day or Nighttime Views Mitigation Measure(s) SANTIAGO HILLS II PLANNED COMMUNITY 2000 SEIR 1278 mitigation measure that that is still applicable: MM V-1. Guidelines and Standards for Significant Ridgelines. MM 3I-1. Minimize Visual Intrusion. No mitigation was included in 2000 SEIR No new mitigation is required SEIR 1278 mitigation measures that that are still applicable: MM V-7. Minimize Spill Over Lighting Effects. MM LU-2. Consider Light and Glare Impacts on Surrounding Areas During Design. Significance after Mitigation Significant and unavoidable (consistent with 2000 SEIR 1278 finding) Less than significant Less than significant Potential Impact 3I-4. Have Substantial Adverse Effect on Scenic Vista No new mitigation is required SEIR 1278 mitigation measures that that are still applicable: MM V-2. Use of Native Plants Adjacent to Irvine Regional Park. MM V-3. Minimize Impacts to Oak Trees Adjacent to Irvine Regional Park. MM V-5. Grading and Slope Treatment Adjacent to Irvine Regional Park. MM V-6. Dedication of Land for Expansion of Irvine Regional Park. Less than significant MM V-4 from is no longer applicable. Potential Impact 3I-5. Conflict with Adopted Visual Resource Policies No new mitigation is required. No mitigation was included in 2000 SEIR No new mitigation is required. Less than significant Planned Communities Draft SEIR/EIR 3I-1

2 Potential Impact Potential Impact 3I-1. Substantially Degrade Existing Visual Character or Quality of Site and Its Surroundings Potential Impact 3I-2. Substantially Damage Scenic Resources Within View of State Scenic Highway Potential Impact 3I-3. Create New Source of Substantial Light or Glare Adversely Affecting Day or Nighttime Views Potential Impact 3I-4. Have Substantial Adverse Effect on Scenic Vista Potential Impact 3I-5. Conflict with Adopted Visual Resource Policies Mitigation Measure(s) EAST ORANGE PLANNED COMMUNITY AREA 1 MM 3I-1. Minimize Visual Intrusion. MM 3I-2. Reduction of Temporary Construction Impacts. No mitigation is required. MM 3I-3. Limit Use of Sports Park Lighting. MM 3I-4. Implement Lighting Design Measures. No mitigation is required. No mitigation is required. EAST ORANGE PLANNED COMMUNITY AREAS 2 AND 3 AND REMAINING AREAS Potential Impact 3I-1. Substantially Degrade Existing Visual Character or Quality of Site and Its Surroundings Potential Impact 3I-2. Substantially Damage Scenic Resources Within View of State Scenic Highway Potential Impact 3I-3. Create New Source of Substantial Light or Glare Adversely Affecting Day or Nighttime Views Potential Impact 3I-4. Have Substantial Adverse Effect on Scenic Vista Potential Impact 3I-5. Conflict with Adopted Visual Resource Policies MM 3I-1. Minimize Visual Intrusion. MM 3I-2. Reduction of Temporary Construction Impacts. No mitigation is required. MM 3I-5. Minimize Spillover Light. No mitigation is required. No mitigation is required. Significance after Mitigation Significant and unavoidable Less than significant Less than significant Less than significant Less than significant Significant and unavoidable Less than significant Less than significant Less than significant Less than significant 3I.2 Introduction The purpose of this section is to describe the proposed project s regional visual character, the visual resources of the project site, the views of the project site from key viewpoints, and the changes in these views that would result from project implementation. It also discusses the impacts of the proposed project on aesthetics, and identifies mitigation measures to reduce impacts to less-than-significant levels. Public and agency comments received during the review of the notice of preparation and scoping meetings were considered during the analysis of impacts to visual resources. Comments related to aesthetics are contained in Appendix A-4. Planned Communities Draft SEIR/EIR 3I-2

3 3I.2.1 Sources of Information Several sources were consulted for information on existing and future visual resources and for regulatory standards, including: Final EIR 1278, 2000 SEIR 1278, May 2003 Design Guidelines for Santiago Hills II Planned Community and East Orange Planned Community Area 1, the County General Plan, and the City General Plan. In particular, information for this visual resources analysis was derived from the 2000 SEIR 1278, field observation, and photographic documentation. 3I.2.2 Concepts and Terminology In Webster s New World Dictionary, aesthetics is defined as the study or theory of beauty and the psychological responses to it. Aesthetics (or visual resource) analysis is, therefore, a process to logically assess visible change and viewer response to that change. Identification of existing conditions with regard to visual resources entails three steps: 1. objective identification of the visual features (visual resources) of the landscape; 2. assessment of the character and quality of those resources relative to overall regional visual character; and 3. identification of the importance to people, or sensitivity, of views of visual resources in the landscape. The criteria for identifying the importance of views are related in part to the position of the viewer relative to the resource. Generally, the closer a resource is to the viewer, the more dominant it is and the greater its importance to the viewer. Visual sensitivity also depends on the number and type of viewers and the frequency and duration of views. Generally, visual sensitivity increases with an increase in total numbers of viewers, the frequency of viewing (e.g., daily or seasonally), and the duration of views (i.e., how long a scene is viewed). Also, visual sensitivity is higher for views seen by people who are driving for pleasure; people engaging in recreational activities, such as hiking, biking, or camping; and homeowners. Sensitivity tends to be lower for views seen by people driving to and from work or as part of their work (Federal Highway Administration 1983, U.S. Forest Service 1974, and U.S. Soil Conservation Service 1978). Views from recreation trails and areas, scenic highways, and scenic overlooks are generally assessed as having high visual sensitivity. 3I.3 Setting 3I.3.1 Environmental Setting This section discusses the existing visual conditions in the proposed project area for the Santiago Hills II and East Orange Planned Communities. Existing visual character of the project region and the individual project sites are addressed. Also discussed are the existing sources of light and glare within the study area and a characterization of the viewers and their sensitivity to visual quality change. 3I Description of the Regional Context The area surrounding the proposed project site is mostly undeveloped or rural land. The diversity of existing views in and around the project site is likely to appeal to any person, and the overall existing Planned Communities Draft SEIR/EIR 3I-3

4 scenic quality would be rated as high (2000 SEIR 1278). The study area is bordered by residential and commercial developments in the City of Orange to the west, and by unincorporated areas of Orange County to the southwest. Extensive areas of natural open space abut the development areas in all other directions. These areas of open space include The Nature Reserve and IRLR. Irvine Regional Park is north of the proposed site, and Peters Canyon Regional Park is to the southwest. The western boundary of the Cleveland National Forest is a few miles east of the project area s easternmost point. The proposed project site is characterized by a series of low-lying hills and valleys on the southern flank of the Santa Ana Mountains. The eastern portion of the site is somewhat steeper and more varied than the western portion. Vegetation consists of grasslands, coastal sage scrub, scattered tree stands, and wetlands. Although the site is generally undeveloped, it is not pristine. Some manufactured slopes have been introduced into the project site through the grading for roads and utility structures. The proposed project area is bisected by SR-241/261 and Santiago Canyon Road, which is a designated scenic highway. There are a few key natural visual features of the project site. The south park ridge is a low ridgeline located adjacent to the southern boundary of Irvine Regional Park. This ridgeline provides a visual backdrop to the park. The east park ridge, the easterly extension of the same ridge, is visible from the eastern boundary of the park and is directly north of the proposed development. The Knoll is another prominent visual feature in the study area, and is located south of Chapman Avenue and east of Jamboree Road. This landform is a prominent feature both on site and from views surrounding the project site. 3I Visibility (Viewshed) Viewshed is the area of surrounding land or water that is visible from the project site, or the area from which the project site is visible. The unconstrained viewshed represents the maximum area that would be seen from the project site based on topography alone, without considering intervening buildings or vegetation. At selected viewpoints within the project site, viewsheds within a 2-mile radius were analyzed for visibility, using digital terrain modeling and GIS. 3I Viewers Different types of viewers have differing sensitivity to visual quality and visual quality change based on their familiarity with the view, their sense of ownership of that view, and their activity, which determines how much attention they can pay to the view. Viewers in the actual viewshed of the project would include primarily residential viewers, recreational viewers (e.g., motorists, bicyclists, and pedestrians), and commercial viewers (e.g., owners, employees, and customers). Residential viewers are typically very sensitive to visual quality and changes in visual quality. This is because of their familiarity with the view, their investment in the area (if they are homeowners or long-time residents), and their sense of ownership of the view. The view from their residences and yards represents a visual extension of their property, and changes in this view are noticeable and can result in strong positive or negative reactions. Residential viewers within the viewshed of the project would be located in developments west of the project site, including the homes in Santiago Hills, the homes along Jamboree Road, homes at the northern edge of Cowan Heights off of Newport Avenue, and those homes developed at the higher elevation adjacent to Canyon View Avenue. Other existing development that would have direct views of the project site is located north of Santiago Canyon Road. Recreational viewers include people engaged in active recreation or passive recreation. Viewers engaged in most active recreation, such as playing sports, tend to have only an average sensitivity to visual quality and visual change. Although they are aware of their surroundings, they are usually focused on the Planned Communities Draft SEIR/EIR 3I-4

5 recreational activity itself. People engaged in more passive recreation, such as picnicking, photography, nature hikes, bird watching, and even more active activities, such as bicycling and kayaking, are more aware of their surroundings and are more sensitive to the visual quality. Often, the visual quality is an important element in their recreation. Some of these viewers would be very sensitive to visual changes if they regularly return to the same place for their recreation. Others, such as first-time or occasional viewers, would not be as familiar with the views, and therefore would not be as apt to notice changes. Within the viewshed of the proposed project, recreational viewers would include recreationalists (e.g., bicyclists and hikers) at Irvine Regional Park, Peters Canyon Regional Park, the Irvine Lake facilities, and along nearby roadways. Other viewers, with exceptions, usually have an average sensitivity to visual quality or change. These include people on the local roadway system, including motorists, bicyclists, and pedestrians. Such viewers have varying sensitivity depending on their purpose of travel. If they are traveling to simply get from one place to another for business or pleasure, their sensitivity would normally be average. However, if they are traveling for pleasure, then it is likely that they would be more sensitive to their surroundings. Commercial viewers, such as proprietors or customers, usually have their attention on the commercial activity itself. Exceptions may include commercial uses that are focused on the view, such as a restaurant with window seats or outdoor seating. Commercial development is located within the viewshed at the corner of Jamboree and Santiago Canyon Roads. Views to the project site from this area are largely obstructed by landscaping and berming. Finally, it is important to note that this discussion addresses average viewer sensitivity. Some viewers are more or less sensitive than their activity or ownership would indicate. Individuals reactions to views vary greatly depending upon a number of factors, including how much they know or care about the view, their personal tastes, and their opinions about the activity they are viewing. 3I Key Viewpoints The following key viewpoints were chosen as representative views of the project site for the identified viewers from a variety of vantage positions. Key locations with views of the project site are Irvine Regional Park, Peters Canyon Regional Park, the existing development adjacent to the site, and Irvine Lake. Santiago Canyon Road is also considered a sensitive viewshed because it is designated as a scenic highway. The locations of these sites are illustrated in Figure 3I-1. The following provides a brief discussion of these locations. Irvine Regional Park Irvine Regional Park, listed on the National Register of Historic Places, is a 477-acre regional park and favorite spot for hiking, picnicking, biking, and equestrian use. Viewers from this location would be recreationalists. Views to the project site from Irvine Regional Park are limited by intervening topography and dense vegetation, and vary greatly depending on the viewing location from within the park. The most used portion of the park is the central portion around the natural floodplain, where many picnic and playground areas are located. The project site is visible within the middleground of views from this location. The perimeter areas of the park are bluffs and hills with riding and hiking trails. Peters Canyon Regional Park Peters Canyon Regional Park is a 359-acre regional park that offers passive recreational uses, such as hiking, mountain biking, trail running, bird watching, and equestrian uses. Recreationalists are the Planned Communities Draft SEIR/EIR 3I-5

6 primary viewers from this location. The park extends from Canyon View Avenue in Orange south to near Peters Canyon Road in Tustin. The northern portion of the park is directly west of the project site, separated only by Jamboree Road. A staging area is located off of Canyon View Avenue. There are no formal picnic or playground facilities within the park, but a few tables and portable sanitary facilities are located in the grassy area near the parking lot and trailhead. The portion of the park at the intersection of Chapman Avenue and Jamboree Road is dense with vegetation. The project site is visible as a middleground view to trail users along the reservoir. Topography and existing development separate the lower portion of the park from the project site. Existing Development Existing residential development west of the project site has views of the project site. The closest development to the project site is the homes in Santiago Hills, which are directly across from the project site. Many of the homes along Jamboree Road, which are in the closest proximity to the proposed project site, have an existing wall around them or have topographic difference between the homes and Jamboree Road. There are homes in Santiago Hills west of Peters Canyon Regional Park that have second-story, middleground, and background views of the project site. The proposed project site is in the viewshed of homes at the northern edge of Cowan Heights off of Newport Avenue, and those homes were developed at a higher elevation adjacent to Canyon View Avenue. Many of these homes are oriented with views toward the hills. These homes have middleground views of the proposed project site. Other existing development that has direct views of the project site is the development north of Santiago Canyon Road. These homes have backyard or second-story views of the project site. Irvine Lake Irvine Lake is fed by flows from Santiago and Limestone Canyon Creeks. East of Irvine Lake, well-developed riparian communities are associated with Black Star, Santiago, and Limestone Canyons. A 40-acre sand and gravel quarry and a concrete batch plant are located on the reservoir s eastern side. These facilities are in the process of closing down. Commercial and recreational uses exist adjacent to the reservoir, allowing for activities such as fishing and boating. The proposed project site, especially the East Orange Planned Community Area 2 site, is in the viewshed of Irvine Lake as foreground-tomiddleground views. Viewers from Irvine Lake are mainly recreational, recreation-oriented commercial, and industrial viewers. Santiago Canyon Road Santiago Canyon Road is designated as a scenic highway throughout the project area. This road is a favorite route for bicyclists of the region and offers views of the canyon to the north and south. Viewers at this location are mainly motorists and recreational bicyclists. Views of the project site from Santiago Canyon Road range from foreground to background views. 3I Existing Visual Characteristics Santiago Hills II Planned Community The existing visual characteristics of the Santiago Hills II Planned Community site have not changed significantly since 2000 SEIR The site is located between two open space features to the north of the site is Irvine Regional Park and to the southwest is Peters Canyon Regional Park. The aesthetic Planned Communities Draft SEIR/EIR 3I-6

7 1 2 Santiago Irvine Park 1 26 SR Ch ap m an Hills 1 Santiago Canyon Landfill ue en Av Peters Canyon Reservoir Catalina Pacific Irvine Lake Pasture Road Sa nti ag o Canyon Ja mb or ee Lomas Peak Blue Diamo Haul Road nd k Star Blac R oad 3 Road Ca ny on d oa 3 R SR - rk Sil ve ra on Road d o C a ny Legend Pa rtola Po w ay 3000' 6000' 3 Simulation Photos 3 Massing Studies Photos Figure 3I-1 View Location Map

8 character of the Santiago Hills II Planned Community site is characterized by undeveloped rolling hills vegetated with grasslands, coastal sage scrub, isolated stands of trees, and wetlands. Existing manufactured slopes can be seen on the eastern boundary of the site. Some key visual features are located in this area. The south park ridgeline is a low ridgeline adjacent to the southern boundary of Irvine Regional Park. This feature serves as a backdrop to the park. The ridgeline also extends east to what is known as the east park ridge. This portion of the ridge is directly north of the Santiago Hills II Planned Community site and is visible from the eastern boundary of the park. The Knoll is located south of Chapman Avenue and east of Jamboree Road. This landform is a prominent visual feature both on site and from views surrounding the project site. East Orange Planned Community The East Orange Planned Community site is characterized by undeveloped hills vegetated with grasslands, coastal sage scrub, isolated stands of trees, and wetlands. The landform at these locations is generally steeper and more varied than the Santiago Hills II Planned Community site. The East Orange Planned Community site has a more secluded character than the Santiago Hills II Planned Community site because of the difference in topography and visual separation from the urbanized areas along Jamboree Road. Prominent visual features of this area include Santiago Dam and Irvine Lake, which are to the east of the East Orange Planned Community Area 1 site and to the west of East Orange Planned Community Areas 2 and 3 sites. The closed Santiago Canyon Landfill within this area is currently being capped with soil. Large parcels of open space within close proximity to these sites add to the rural character of the area. IRLR and The Nature Reserve are located between the sites of East Orange Planned Community Areas 2 and 3. Limestone Canyon Wilderness Park is southeast of the East Orange Planned Community Area 3 site, and the Cleveland National Forest boundary is approximately 2 miles northeast of the project area. 3I.3.2 Regulatory Setting The project area is subject to the specific regional and local laws, ordinances, regulations, and standards for visual resources described below. 3I Regional Regulatory Setting State Scenic Highway Program (Caltrans) California s Scenic Highway Program was created in 1963 by the California State Legislature. Its purpose is to preserve and protect scenic highway corridors from change that would diminish the aesthetic value of lands adjacent to highways. A highway may be designated as scenic depending upon how much of the natural landscape can be seen by travelers, the scenic quality of the landscape, and the extent to which development intrudes on the traveler s enjoyment of the view. The state Scenic Highway Program includes a list of highways that are either eligible for designation as scenic highways or have been so designated. The status of a state scenic highway changes from eligible to officially designated when a local jurisdiction adopts a scenic corridor protection program, applies to the California Department of Transportation (Caltrans) for scenic highway approval, and receives notification from Caltrans that the Planned Communities Draft SEIR/EIR 3I-7

9 highway has been designated as a scenic highway. For the purpose of visual resource protection, this analysis treats eligible roadways with the same status as officially designated roadways (Caltrans 1996) One designated scenic highway, Santiago Canyon Road, may be affected by the proposed project. Chapman Avenue turns into Santiago Canyon Road northwest of the project site. The scenic roadway continues through the project area and extends to the southeast. Examples of visual intrusions that would degrade scenic corridors as stipulated by Caltrans include: dense and continuous development, highly reflective surfaces, parking lots not screened or landscaped, billboards, noise barriers, dominance of power lines and poles, dominance of exotic vegetation, extensive cut and fill, scarred hillsides and landscape, and exposed and unvegetated earth (Caltrans 1996). County of Orange General Plan The requirements of the County would not apply to the project site after the project is annexed to the City. However, the project s impacts relative to the aesthetics policies and regulations of the neighboring County lands (after annexation) should be considered. Table 3I-1 lists the applicable County of Orange General Plan goals, objectives, and policies. Land annexed to the City would be subject to City policies and regulations, as described later. Table 3I-1. Orange County General Plan Visual Resources Policies Goal 4: Ensure that the circulation plan conforms to applicable environmental quality standards. Natural Resources Component Goal 3: Manage and utilize wisely the County s landform resources. Open Space Component Goal 1: Retain the character and natural beauty of the environment through the preservation, conservation, and maintenance of open space. Open Space Component Goal 4: Conserve open space lands needed for recreation, education, and scientific activities, as well as cultural-historic preservation. Transportation Element Objective 4.1: Ensure that development of the circulation plan is sensitive to the environmental character of communities and neighborhoods throughout the unincorporated areas of the County. Objective 4.3: Maintain a circulation system that is compatible with the physical environment, to the extent practical, and allows for the preservation of the natural resources of the County. Resources Element Objective 3.1: Minimize to the extent feasible the disruption of significant natural landforms in Orange County. Natural Resources Component Policy 5: Protect the unique variety of significant landforms in the County through environmental review procedures and community and corridor planning activities. Objective 1.1: Designate open areas that preserve, conserve, maintain, and enhance the significant natural resources and physical features of unincorporated Orange County. Policy 1.3: Guide and regulate development of the unincorporated areas of the County to ensure that the character and natural beauty of the County is retained. Objective 4.1: Encourage the conservation of open space lands, which provide recreational, scenic, scientific, and educational opportunities. Policy 4.1: Plan for the acquisition development, maintenance, operation, and financing of open space lands, which provide recreational, scenic, aesthetic, scientific, and educational opportunities. Growth Management Element Policy 7: There shall be buffer zones established through feature plan, specific plans, and/or scenic corridor plan, which provide for the physical separation of major communities by means of open space areas/corridors. Said open space area/corridors will be based upon natural features, such as creeks or prominent topographic or aesthetic features. It is recognized that the buffer zones established pursuant to this policy will not necessarily link regional parks or serve a recreational function. Planned Communities Draft SEIR/EIR 3I-8

10 3I Local Regulatory Setting City of Orange General Plan The City General Plan addresses aesthetics and visual quality issues as described in Table 3I-2. Goals, policies, and implementation measures that address these issues are found in three elements of the general plan: the Land Use Element, the Circulation Element, and the Environmental Resources Element. The Land Use Element states that the first impression a visitor to Orange received may be a lasting one, one which makes a visitor ask Could my business thrive in this community? or Is this a good place to shop? or Can I afford a home in this community? The condition of streets, business frontages and residential neighborhoods makes a strong statement about a community. (City of Orange 1989.) According to the Environmental Resources Element, the eastern portion of the City contains plant and wildlife habitat areas, which, once removed, cannot be replaced. The City recognizes the need to preserve open space areas to protect these resources when it states, plants, and trees in particular, are welcome resources within the more urbanized areas of Orange. Trees provide a natural means of cleansing the air. They also provide shade and enhance the streetscape. Landscaping in general can improve the appearance of industrial and commercial development. (City of Orange 1989). The hills in the eastern portion of the City provide a significant visual backdrop to the urban environment. These areas, as well as open landscaped areas throughout the City, provide visual relief from expanses of roads, buildings, and signs. It is the City s intent, as stated in the Environmental Resources Element, to preserve hillside open space areas wherever possible, yet still allow for development. Also, the City encourages landscaping to be provided in the urban setting to create aesthetically pleasing boulevards, neighborhoods, and commercial and industrial developments. Table 3I-2. City of Orange General Plan Visual Resources Policies Land Use Element Goal 6.0: The City will continue to promote good urban design. Policy 6.1: Emphasizes urban design in new development, and encourages rehabilitation efforts which incorporate good design features into rehabilitation plans. Implementation 6.1.1: Continue to review projects for compliance with accepted City design standards. Implementation 6.1.2: Identify priority areas for the undergrounding of utilities. Policy 6.2: Identify districts that can benefit from a design Implementation 6.2.2: Develop possible incentives and theme, and establish urban design standards. guidelines to encourage implementation of the design standards in districts where design themes have been or will be established. Circulation Element Goal 6.0: Design and maintain City streets so that they are aesthetically pleasing. Policy 6.1: Develop a streetscape plan which establishes policies and guidance for future development of specific arterial streets in the City. Policy 6.2: Develop a parking/median treatment/landscaping programs for City streets. Environmental Resources Element Goal 2.0: The City will take an active role in the management and conservation of plant and animal resources and mineral resources. Policy 2.1: Preserve and protect existing plant resources in the City. Implementation 2.1.1: Continue to implement the existing street tree program and consider expansion of the program to include all major arterial roadways in the City. Goal 3.0: The City will protect, preserve, and enhance open space resources for active and passive recreational purposes. Planned Communities Draft SEIR/EIR 3I-9

11 Policy 3.6: Provide for future expansion and development of parks, and provide illuminated areas for night use. Implementation 3.6.1: Assess the impacts of any proposals that involve night lighting for recreational activities (tennis, baseball, football, soccer, etc.) to ensure that any adverse impacts on adjacent sensitive areas can be mitigated. Goal 5.0: The City will continue to preserve open areas that are significant in terms of aesthetic and visual resources. Policy 5.1: Encourage the development of landscaped medians and parkway landscaping along arterial streets in new subdivisions. Policy 5.5: Preserve significant ridgelines by restricting development and grading of ridgelines visible throughout the community, except as permitted by hillside grading guidelines. City of Orange Tree Preservation Ordinance Under Title 12 of its municipal code, the City established a Tree Preservation Ordinance to regulate the removal and destruction of trees from undeveloped and public interest property (Section 12.32). This ordinance applies to any tree with a single trunk circumference of at least 10.5 inches, measured at 24 inches above ground. The ordinance also makes it unlawful to remove such trees for development purposes without obtaining a permit or approval of a subdivision or grading plan by the Director Of Community Services. The Director Of Community Services issues permits based on the condition of the tree(s), potential for increases in erosion, soil retention, the diversion or increased flow of surface waters, the number and distribution of trees existing in the neighborhood, the effect of tree removal upon property values in the area, and the number of healthy trees that the parcel could support. Although the City has not established a standard tree relocation requirement or tree replacement ratio, approvals are typically conditioned upon compliance with project-specific provisions to replace or relocate trees. The City Council reserves the authority to establish a tree replacement ratio from time to time by resolution. In general, as a condition of approval, the subdivider or owner must also provide for the planting and maintenance of trees following development. Furthermore, subdivision grading plans must identify the location of each tree proposed for removal. To comply with this provision of the ordinance, Dudek and Associates, Inc., prepared four site-specific tree management and preservation plans that identify tree locations and provide information regarding the condition of those trees that occur within the areas covered by the tentative tract maps for the Santiago Hills II Planned Community and East Orange Planned Community Area 1, as well for trees within East Orange Planned Community Areas 2 and 3, for which tentative tract maps have not yet been prepared for submittal. 3I.4 Impacts and Mitigation 3I.4.1 Methodology The impacts analysis for the project was considered using three distinct approaches. For Santiago Hills II Planned Community, which has a previously certified environmental document (2000 SEIR 1278), the analysis addresses only substantial changes in the revised Santiago Hills II Planned Community from that previously approved, substantial changes in the setting or regulatory setting related to the Santiago Hills II Planned Community study area, or new information related to the Santiago Hills II Planned Community study area that was not known at the time that 2000 SEIR 1278 was certified. Such changes are addressed in the impacts analysis and mitigation is included if necessary. In addition, mitigation measures from the 2000 SEIR 1278 are considered, with a determination as to whether these mitigation measures would be applicable to the revised project or no longer applicable (because the impact would not occur or because the previous mitigation has already been implemented). Planned Communities Draft SEIR/EIR 3I-10

12 For the proposed East Orange Planned Community Area 1 activities, a project-level impact analysis is included in this environmental document because tentative tract maps have been submitted, therefore allowing this level of analysis. For the proposed East Orange Planned Community Areas 2 and 3 activities along with remaining areas, a program level of analysis of potential impacts was undertaken, reflecting the conceptual level of planning that has occurred to date. 3I.4.2 Thresholds of Significance According to Appendix G of the State CEQA Guidelines, as amended in 1998, visual resource impacts are considered significant if a project has a substantial, demonstrable negative aesthetic effect. Based on professional standards and practices, a project would normally be considered to have a significant impact it if would: substantially degrade the existing visual character or quality of the site and its surroundings; substantially damage scenic resources, including, but not limited to, trees, rock outcroppings, and historic buildings within view of a state scenic highway; create a new source of substantial light and glare, which would adversely affect day or nighttime views in the area; have a substantial adverse effect on a scenic vista; or conflict with adopted visual resource policies. 3I.4.3 Potential Impacts of the Proposed Project 3I Santiago Hills II Planned Community Tentative tract maps have been submitted to the City for Santiago Hills II Planned Community. The application for the proposed project provides additional information on the proposed infrastructure related to the project, such as the water tanks and ROMP facilities. The following Project Design Features (PDFs) have been included in the project to reduce impacts to visual resources. PDF 3I-1 Protection of Native Species For Planned Communities, avoidance of sensitive habitats, landscaping emphasizing preservation, and relocation and reforestation of oaks and sycamore would substantially reduce impacts. Natural setting would thereby be enhanced and native species, including oak and sycamore trees, would be included in the foundation of what is planted in the new communities. PDF 3I-2 Conservation of Natural Areas with Sensitive Resources The proposed Planned Communities are designed to retain natural features. Accordingly, in addition to the dedication of large amounts of internal open space, the following areas would be preserved under this PDF: key landforms and ridgelines, major natural drainageways, and sensitive habitats. Development would be clustered on the least environmentally sensitive portions of the project area, leaving remaining land in a natural and undisturbed condition. Planned Communities Draft SEIR/EIR 3I-11

13 Potential Impact 3I-1 Substantially Degrade Existing Visual Character or Quality of Site and Its Surroundings 2000 SEIR 1278 The 2000 SEIR 1278 determined that the implementation of the Santiago Hills II Planned Community project would contribute to a change in visual character. The findings of fact presented in Resolution No stated that visual impacts in the Santiago Hills II Planned Community portion of the East Orange General Plan area would be considered significant and unavoidable due to the alteration of the natural environment to an urban setting. The City determined that the associated project benefits, mitigation measures, and commitments to the permanent preservation of open space outweighed the potential impacts to the visual character of the site. Therefore, a statement of overriding considerations was adopted with respect to the visual impacts associated with the implementation of the 2000 Santiago Hills II Planned Community project. The following mitigation measure was proposed in 2000 SEIR 1278 to address the significant visual impacts. MM V-1. The [East Orange General Plan] includes designating significant ridgelines as permanent open space to provide an aesthetically pleasing backdrop to proposed development, and to maintain a natural skyline for views from the west. Guidelines and standards for site design and landscaping will be developed as part of more detailed planning of the site, and shall give special consideration to maintaining the visual integrity of the significant landforms/ridgelines as viewed from the west. In particular, implementation of a landscape design program can serve to soften viewshed impacts from both public and private areas to the west. Exhibit 74 of the Final Program EIR 1278 provides a visual simulation of how the Westbowl might appear from areas west of the site. It should be noted that the exhibit is for illustrative purposes only; the actual location and design of buildings in the Westbowl will not be determined during future detailed levels of planning. (Note: The Westbowl area includes the Santiago Hills II area.) Revised Santiago Hills II Planned Community There are no substantial changes in the Santiago Hills II Planned Community component of the currently proposed project, or new information of substantial importance, that would change the conclusions as to existence or significance of impacts and available mitigation with respect to visual resources. Significant impacts to visual character were previously found to be significant and unavoidable in 2000 SEIR 1278 and a statement of overriding considerations was adopted. This conclusion remains unaffected for the revised project. With the proposed changes to Santiago Hills II Planned Community, the potential aesthetic impacts would be less than previously found in 2000 SEIR 1278 due to slight changes associated with the current development plan. The primary revision to the Santiago Hill II Planned Community that has the potential to impact visual resources is the deletion of the Santiago Canyon Road extension. As currently proposed, Street A would replace the Santiago Canyon Road extension and would eliminate impacts to the south park ridge due to the placement of Street A away from the Open Space sector that constitutes the Santiago Hills II Planned Community northern boundary and interface with Irvine Regional Park. Therefore, impacts associated with that action in the 2000 SEIR would not occur. Visual simulations were used to document the future views of the Santiago Hills II Planned Community. Figure 3I-1 provides the location of the simulations. Figure 3I-2 shows the existing and future views of the site from Irvine Regional Park; park users would be sensitive to visual change. As shown in this simulation, houses and other structures would not be visible from the park. Figure 3I-3 shows the existing and future views from the intersection of Chapman Avenue and Jamboree Road. This view would be seen by motorists, including local residents, shoppers, and others accessing nearby land uses Planned Communities Draft SEIR/EIR 3I-12

14 After Keymap Before Figure 3I-2 Visual Simulation of Santiago Hills II Planned Community Looking South from Irvine Regional Park

15 After Keymap Before Figure 3I-3 Visual Simulation of Santiago Hills II Planned Community Looking East from Chapman Avenue and Jamboree Road

16 (including Irvine Regional Park) and the regional transportation network (including Santiago Canyon Drive and SR-241/SR-261). A tree replacement program, with a 20:1 ratio, has been proposed for the Santiago Hills II Planned Community portion of the project site. A total of 215 trees are located within the primary impact limit line, and such trees are classified for removal and replacement or relocation. The proposed replacement ratio of 20:1 ratio is substantially higher than the City s typical 3:1 replacement ratio, and would result in the installation of nearly 3,720 trees to compensate in number and species for the trees that are removed. Despite an overall reduction in visual impacts and the implementation of the Tree Management and Preservation Plan, impacts would still be considered significant and unavoidable due to the change in visual character that would result from the conversion of undeveloped land to residential uses. MM V-1, previously adopted under 2000 SEIR 1278, would continue to apply to the proposed project. Exposed white polyvinyl chloride (PVC) irrigation lines were noted as being aesthetically unpleasing by a number commenters during the scoping process. Sensitivity of local residents to this issue of exposed irrigation lines visible to the public had not been previously identified. To avoid any potential visual impact perceived by local residents due to this issue, MM 3I-1 would be implemented for all residential development areas. Mitigation Measures MM 3I-1 Residual Impacts Minimize Visual Intrusion. To minimize the visual intrusion by irrigation systems, the design guidelines will stipulate that all permanent irrigation lines are to be placed underground. Residual impacts of the project changes would be less than significant. However, significant impacts to visual character were previously found to be significant and unavoidable in 2000 SEIR 1278 and a statement of overriding considerations was adopted. This conclusion remains unaffected for the revised project. Potential Impact 3I-2 Substantially Damage Scenic Resources Within View of a State Scenic Highway 2000 SEIR 1278 Views from Santiago Canyon Road and other public roads in the area would change as a result of the proposed project. The impacts on Santiago Canyon Road were stated in 2000 SEIR 1278 as being less than significant. Revised Santiago Hills II Planned Community Additional analysis, possible because of more detailed design information, confirms the finding in 2000 SEIR 1278 that impacts to scenic highways would be less than significant. Although Santiago Canyon Road is designated as a scenic highway, this roadway was identified in the East Orange General Plan as having urban views. Some grade separation would exist between the roadway and adjacent homes, although the project site would be visible from Santiago Canyon Road. Development would be set back from the road, and landscaping, including replacement oak trees as mitigation from 2000 SEIR 1278, would be provided to soften the urban edge from the roadway. Planned Communities Draft SEIR/EIR 3I-13

17 As shown on Figure 3I-3, the view east from the intersection of Jamboree Road and Chapman Avenue, the undeveloped area would be replaced by residential units, and a portion of these units would be visible (e.g., second floors and roofs) from the road and other areas. Vegetation and walls enclosing Santiago Hills II Planned Community would provide a substantial amount of screening at sidewalk level. The visible portions of the site would change from a rural, undeveloped, natural environment to a suburbanstyle residential neighborhood. Native and nonnative unirrigated vegetation would be replaced by denser irrigated landscaping. The project, however, could be viewed as an extension of surrounding suburban development. Only the portions of the project adjacent to the road would be visible from this area. The proposed project would be compatible with the Caltrans thresholds for scenic highways. Examples of visual intrusions that would degrade scenic corridors as stipulated by Caltrans include: dense and continuous development, highly reflective surfaces, parking lots not screened or landscaped, billboards, noise barriers, dominance of power lines and poles, dominance of exotic vegetation, extensive cut and fill, scarred hillsides and landscape, and exposed and unvegetated earth (Caltrans 1996). None of these would occur within Santiago Hills II Planned Community. Therefore, impacts to scenic highways would be less than significant. Mitigation Measures No new mitigation is required. Residual Impacts Residual impacts would be less than significant. Potential Impact 3I-3 Create New Source of Substantial Light or Glare Adversely Affecting Day or Nighttime Views 2000 SEIR SEIR 1278 identified potential light and glare impacts related to residential and proposed retail uses. This impact was also discussed in the land use analysis of 2000 SEIR Retail uses are no longer included in the proposed Santiago Hills II Planned Community. Lighting associated with the proposed development would include streetlights and residential lighting. The following mitigation measures from the 1989 Final Program EIR 1278 were carried forward into the 2000 SEIR 1278: MM V-7. During site development approval for the retail site, the project applicant shall ensure that lighting is designed to minimize spill over lighting to adjacent residential units. Lighting shields shall be used to direct the lighting into the retail center. MM LU-2. The formulation and review of site, building, and landscape standards at more detailed levels of planning shall take into account views of the project site from surrounding areas as provided in Section 5.14 [Visual] of the Final Program EIR The objective of this effort will be to minimize potential visual impacts including light and glare. Revised Santiago Hills II Planned Community Most direct lighting sources from the residences would be screened, but overspill lighting would likely occur. Because of the minimal amount of lighting, the screening from topography and landscaping, and the distance from sensitive viewers (existing residents and park users), this impact would be less than significant. Planned Communities Draft SEIR/EIR 3I-14

18 MM V-7 and MM LU-2 would also be applicable to the proposed project. Mitigation Measure No new mitigation is required. Residual Impacts Residual impacts would be less than significant. Potential Impact 3I-4 Have Substantial Adverse Effect on Scenic Vista 2000 SEIR SEIR 1278 identified that Santiago Hills II Planned Community would be visible from Irvine Regional Park and Peters Canyon Regional Park. Views from Peters Canyon Regional Park were not found to be significantly impacted. The project was found to have significant impacts on views from Irvine Regional Park. The following mitigation measures were included to reduce this impact: MM V-2. In an effort to minimize the potential introduction of nonnative species into Irvine Regional Park from development in Sector G, The Irvine Company will incorporate and emphasize the use of native plants on manufactured slopes in Sectors A and G adjacent to the park. Native plants would be used on the slopes adjacent to Irvine Regional Park; however, non-invasive ornamentals, in accordance with the California Exotic Pest Plant Council guidelines, would likely be used at the top of the slope to optimize screening or development in Sector G from the park. The Irvine Company will commit to evaluate the feasibility of utilizing native plants and compatible drought-tolerant species in the common areas, graded slopes, or other areas adjacent to or visible from Irvine Regional Park. Feasibility will be evaluated as a function of cost-effectiveness, marketability, availability of native plant stock, and suitability of the areas to support native plant species. The landscape plan for Sector G shall be provided to the County of Orange, Public Facilities and Resources Department, Manager of Harbors, Beaches, and Parks for review and comment. MM V-3. To reduce the visual impact, during project design, the project applicant shall minimize the number of oak trees removed from the canyon between the low-density residential and Irvine Regional Park. Potential visual intrusion on the viewshed of Irvine Regional Park will be further reduced through the planting and/or relocation of at least two large oak trees near the existing equestrian trail to screen views from the park toward Sector K. Additionally, those oak trees removed from the canyon shall be replaced at a ratio of two to one in Sector A or adjacent to the parking (see mitigation measure LU-3). (Note: Sector K is now Sector G.) MM V-4. During preparation of the tentative tract map for Sector G, the applicant shall ensure that all buildings adjacent to Irvine Regional Park are set back from the top of the slope a minimum of 20 feet to minimize the visual intrusion of development into the park. MM V-5. During preparation of the grading plan for Sector G, the applicant shall utilize contour grading for the manufactured slope adjacent to Irvine Regional Park. To further minimize the visual intrusion of the manufactured slope, the applicant shall revegetate the slope adjacent to the park with native vegetation. A landscape plan shall be developed by a licensed architect in consultation with a restoration ecologist. The landscape plan shall identify the appropriate plant palette, appropriate size of replacement trees, irrigation systems plans, and planting method guidelines. Irrigation systems will be Planned Communities Draft SEIR/EIR 3I-15

19 designed so that no area within the drip line of preserved oaks will be wetted during operation of the system. The landscape plan shall take into consideration erosion control and fuel modification requirements. MM V-6. Upon recordation of the final tentative tract map for the residential area in the northwest intersection of Santiago Canyon Road and [SR-241/261], The Irvine Company shall provide the County of Orange with an irrevocable offer of dedication for the remaining undeveloped land between Irvine Regional Park and Sector G to serve as an expansion of Irvine Regional Park. Revised Santiago Hills II Planned Community As discussed above, no buildings, roads, or other structures would be visible from Irvine Regional Park, so some previously identified significant impacts would not occur. Therefore, MM V-4 is no longer necessary. The other mitigation measures (MM V-2, MM V-3, MM V-5, and MM V-6), which address impacts related to views from Irvine Regional Park, would continue to apply to the currently proposed project. 1 No significant impacts were identified related to views from Peters Canyon Regional Park, 2 and the revisions to Santiago Hills II Planned Community would not result in new impacts. Mitigation Measure No new mitigation is required. Residual Impacts Residual impacts would be less than significant. Potential Impact 3I-5 Conflict with Adopted Visual Resource Policies 2000 SEIR SEIR 1278 did not identify any conflicts with adopted visual resource policies. Revised Santiago Hills II Planned Community The project changes proposed for Santiago Hills II Planned Community would not result in conflicts with adopted policies. Mitigation Measure No new mitigation is required. 1 MM V-6 continues to apply; however, the wording in the mitigation monitoring and reporting plan will be updated to reflect reference to the proposed Tentative Tract Map 16201, Lots OO and PP. 2 As part of the draft Development Agreement, the applicant has agreed, as a public benefit, to pursue best efforts to undertake a water quality enhancement of the existing conditions in Peters Canyon Reservoir. The applicant has proposed that an aeration system be used to address this enhancement. Such a system, if installed, would consist of multiple aeration lines that would lie near the bottom of the reservoir through which air would be pumped 6 to 8 months of the year, creating small bubbles at the reservoir surface. A compressor, housed in a small one-story building (approximately 11 by 15 feet), would be located above the high-water mark for the reservoir, probably near existing buildings at Peters Canyon Regional Park (in order to take advantage of existing electrical hook-ups). Based on this description, the possible aeration system would not result in significant impacts to scenic vistas in Peters Canyon Regional Park. Planned Communities Draft SEIR/EIR 3I-16

20 Residual Impacts Residual impacts would be less than significant. 3I East Orange Planned Community Area 1 East Orange Planned Community Area 1 consists of the area northeast of SR-241 and west of the closed Santiago Canyon Landfill. Development of the 430 acres within the project site would include 361 acres of low and low-medium density residential, 10.3 acres of neighborhood parks, and an approximately 20-acre sports park. The area would also include several water quality control basins, including an 8.7-acre water quality basin in the northeast corner. The residential development would consist of single-family detached and multi-family neighborhoods. The proposed development is designed to capture the small town feeling already established by the urban framework of the City. The neighborhoods would be defined by roadways, geographic elevation changes, and trails, providing connectivity to internal and adjacent community facilities. The architectural styles of dwelling units would vary. The development would be landscaped with a formal planting structure to include native and non-native species. Along the southern perimeter of East Orange Planned Community Area 1 near the intersection of Santiago Canyon Road, an approximately 20-acre lighted sports park is proposed. The sports park boundary would be densely landscaped as a visual buffer and natural method of dust filtration between the park and proposed residential units. Nightlights would be oriented inward to minimize the intrusion of overspill into the surrounding areas. The fuel modification plan for East Orange Planned Community Area 1 would consist of layered zones of thinned natural vegetation and strategically placed irrigated and nonirrigated landscape between the dwelling units and the open space areas surrounding the project site. The fuel modification would buffer almost the entire northern boundary of the East Orange Planned Community site. Limited views of changes to East Orange Planned Community Area 1 would be visible from existing development in the Cowan Heights area, approximately 2 to 4 miles from the project area. Views of this area would be limited to a small number of residences and glimpses from roadways. East Orange Planned Community Area 1 would also be partially screened by the preservation of open space adjacent to the intersection of Santiago Canyon Road and SR-241. The view from Santiago Canyon Road between future Street D and the open space would result in the following changes: The existing steep slope would be recontoured from the road to an approximate 2:1 slope. The existing areas have mostly fairly dense native vegetation; this would be replaced with a plant pallet of oaks and pines in the foreground and a residential screen of oaks, peppers, and pines. The tops of the houses would be visible as shown on Figure 3I-4. Some spillover lighting would be visible from the new development. The development would be a substantial change in the overall character of the area. The East Orange Planned Community Area 1 site is at least 1 mile from the nearest residential area, and surrounding development consists of the rural Irvine Lake activity area and the Santiago Canyon Landfill. The site is undeveloped except for some old barbed-wire fencing and dirt roads, which are mostly overgrown. The changes visible from Santiago Canyon Road between future Street D and the southeast edge of development would be similar to those described above, with the following differences. The existing topography ungulates and varies from small hills to low spots. Topographical changes would result in grading the hills and filling in the large gully areas. An approximately 20-foot, 2:1 slope would be Planned Communities Draft SEIR/EIR 3I-17

21 manufactured nearest Street D, rising to approximately 60 to 70 feet near the water quality basin. Interior grading would be substantial, but partially screened from view by landscaping. Lighting from the sports park would be visible at night. Lighting within the sports park would be on tall standards and would be visible from a number of locations; a substantial amount of direct light and glow would be viewable. Views from Santiago Canyon Road at the west end of the proposed development near SR-241 would be changed in the following ways as a result of the proposed project. Most of the grading of the interior areas of East Orange Planned Community Area 1 would be screened by existing landforms in the open space areas, but it is likely some portions of the development would be seen. When moving toward East Orange Planned Community Area 1 from Santiago Hills II Planned Community, some glimpses of the project would be visible, including the manufactured slope near SR-241. This would also be visible from portions of SR-241, but views would be limited because the freeway is at a lower elevation. Vegetated areas are mostly native and dense. All developable areas would be graded so that no native vegetation would remain. This vegetation would be replaced with a native plant pallet of oaks, peppers, rhus, toyon, and pines. Pines, oaks, and peppers would be planted close to the residences for screening. PDF-3I-1 and PDF 3I-2, described for Santiago Hills II Planned Community, are also applicable to East Orange Planned Community Area 1. In addition, the following PDF has been incorporated into the plans for East Orange Planned Community Area 1 to reduce impacts to visual resources. PDF 3I-3 Tree Preservation and Management As part of project design, a Tree Management and Preservation Plan has been prepared and provides detailed data, management procedures, and recommendations to incorporate trees as assets in the planned communities. Thus, by designing the project according to the recommendations in the Tree Management and Preservation Plan, the proposed project will meet or exceed the requirements of the City s tree ordinance by implementing a tree replacement and enhancement program that will incorporate a 20:1 replacement ratio. The Tree Management and Preservation Plan includes, but is not limited to, management and preservation elements such as: avoidance of impacts, where feasible, to oak trees along Santiago Canyon Road; adjustments to the planning area boundaries to protect existing tree resources; internal onsite undisturbed open space protection areas to avoid impacts to identified sensitive oak habitat; and the relocation or planting of new trees to enhance the overall quality of the of the tree resources within the planning area. Potential Impact 3I-1 Substantially Degrade Existing Visual Character or Quality of Site and Its Surroundings The proposed implementation of East Orange Planned Community Area 1 would result in a substantial change in the overall character of the site. The site is at least 1 mile from the nearest residential area. Existing surrounding development consists of the rural Irvine Lake activity area and the Santiago Canyon Landfill. The site is undeveloped except for existing barbed-wire fencing and dirt roads, which are now largely overgrown. Planned Communities Draft SEIR/EIR 3I-18

22 After Keymap Before Figure 3I-4 Visual Simulation of East Orange Planned Community Area 1 Looking Northeast from Santiago Canyon Road

23 The implementation of the project would develop the site for residential uses and a sports park, which would change its existing visual character. However, viewers of this change would be minimal and would mainly consist of travelers on Santiago Canyon Road and recreationalists at Irvine Lake. Views toward the project site from existing development within the area are largely obscured because of the development s orientation and height, landscaping, existing fencing, and the natural vegetation and topography of the area. Because of the lack of residences with views of East Orange Planned Community Area 1, recreationalists at Irvine Lake would be the largest viewer group for the proposed project. Current views from Irvine Lake are of an undeveloped, but not pristine, landscape. Much of the foreground views from the reservoir have been disturbed by activities associated with the nearby sand and gravel quarry. Views toward the project site would be largely buffered by intervening topography and vegetation. Views from existing residential areas would represent background views. Although the development would be visible, details of the development would not be visible. Ridgelines would not be developed and landscaping would buffer the edges. Therefore, visual quality changes would represent a less-thansignificant impact to sensitive residential viewers. Construction of the proposed project would create temporary changes in views of and from the project area. These activities would be visible to recreationalists within nearby parks, travelers along adjacent roadways, and people within nearby commercial and residential areas. Construction process would not occur over a significantly long period of time; therefore, the presence of construction equipment and activity would have no long-term effect on the relatively moderate overall vividness, intactness, and unity of the viewshed from public roadways and residences. MM3I-2 would reduce temporary construction-related impacts to a level considered less than significant. To avoid any potential visual impact due to this issue exposed white PVC irrigation lines, MM 3I-1 would be implemented for all residential development areas, as discussed for Santiago Hills II Planned Community. The findings of facts presented in Resolution No for the 1989 East Orange General Plan EIR 1278 identified impacts to landform and topography as significant and unavoidable due to the change in visual character that would result from the conversion of undeveloped land to residential and mixed uses. Mitigation measures, including but not limited to, preservation of open space and avoidance of significant ridgelines, were incorporated to reduce potential landform and visual impacts of the project. Nonetheless, even with the incorporation of the proposed mitigation measures, landform and visual impacts of the 1989 project remained significant. Therefore, the City of Orange adopted a statement of overriding considerations that explained why the project objectives and benefits to be secured by the East Orange General Plan outweighed the landform and visual resource impacts associated with the introduction of urban uses into the East Orange General Plan area. Similarly, the findings of fact presented in Resolution No for the 2000 SEIR 1278 for Santiago Hills II Planned Community readopted the 1989 landform findings of fact and thereby carried forward the finding that visual impacts to the Santiago Hills II Planned Community portion of the East Orange General Plan area would be considered significant and unavoidable due to the alteration of the natural environment to an urban setting. The City again determined that the associated project benefits, mitigation measures, and commitments to the permanent preservation of open space outweighed the potential impacts to the visual character of the site. Therefore, the findings of fact and statement of overriding considerations were carried forward with respect to the visual impacts associated with the implementation of the 2000 Santiago Hills II project. Planned Communities Draft SEIR/EIR 3I-19

24 For the currently proposed project, development in East Orange Planned Community Area 1 would result in adverse changes to the visual character of the site associated with the potential development of residential units, neighborhood parks, and a sports park. The current project proposes a substantial reduction in the intensity of uses and number of dwelling units versus those analyzed in the 1989 East Orange General Plan, dedicates additional open space areas, and implements additional mitigation measures designed to reduce visual impacts. However, as discussed above, the City has consistently considered the conversion of natural land to urban development a significant and unavoidable impact to the character and quality of a previously natural or undisturbed site. Therefore, despite the additional visual resources mitigation measures and project design features incorporated herein, the long-term impacts to the visual character of East Orange Planned Community Area 1 would be considered significant and unavoidable. The only way to completely avoid this impact would be to not build the project, which is considered infeasible. Mitigation Measures Implementation of MM 3I-1. MM 3I-2 Reduction of Temporary Construction Impacts. The following measures will be implemented to reduce impacts from temporary visual changes related to construction: Store visually obtrusive features, such as cut and fill materials, outside visually sensitive areas. Replant all disturbed areas, including cut and fill slopes, as soon as possible following disturbance. Hydro-seed all locations with exposed soil, and hydro-seed steep slopes with native grasses to prevent soil erosion, reduce water pollution, and help preserve the existing landscape character. Utilize other erosion control and water pollution practices as needed. Locate construction staging areas where they are not visible from streets, parks, or residential neighborhoods. Screen all visible construction staging areas with fencing (such as chain link with slats or fencing made of windscreen material) or other structures to obstruct undesirable views of construction activities from streets, parks, and residential neighborhoods. Residual Impacts Residual impacts would be significant and unavoidable. Potential Impact 3I-2 Substantially Damage Scenic Resources Within View of a State Scenic Highway Implementing the project would introduce visual changes from Santiago Canyon Road, which is designated as a scenic highway by the County. The portion of the road that runs through the project site is specified as having urban views. Some grade separation would exist between the roadway and the adjacent homes, although views of the project site from Santiago Canyon Road would be visible. Development would be set back from the road and landscaping, including replacement oak trees as mitigation, would be provided to soften the urban edge from the roadway. Planned Communities Draft SEIR/EIR 3I-20

25 Moreover, the existing topography largely limits views of the project site from Santiago Canyon Road throughout and adjacent to the project site. The main users of the highway include recreationalists, residents who live adjacent to the project site, and commuters. Recreationalists and residents using Santiago Canyon Road have high expectations for views from the highway. Figure 3I-4 shows the change in view to the north from Santiago Canyon Road. Vegetation and walls enclosing East Orange Planned Community Area 1 would provide screening of the development, but the rear sides and roofs of individual houses would still be seen. Substantial changes in topography within East Orange Planned Community Area 1 would also be visible. The sports park, located along the edge of Santiago Canyon Road, would introduce some spillover lighting into the roadway s viewshed at night, as discussed below. Accordingly, new features introduced into the Santiago Canyon Road viewshed by the project would limit or alter existing views in terms of vividness, intactness, and unity, and they would present intrusions or obstructions within these views. The integration of landscaping within and around the periphery of the site would enhance views of the project area from these roadways. The proposed project would be compatible with the Caltrans thresholds for scenic highways. Examples of visual intrusions that would degrade scenic corridors as stipulated by Caltrans include: dense and continuous development, highly reflective surfaces, parking lots not screened or landscaped, billboards, noise barriers, dominance of power lines and poles, dominance of exotic vegetation, extensive cut and fill, scarred hillsides and landscape, and exposed and unvegetated earth (Caltrans 1996). None of these would occur within East Orange Planned Community Area 1. Therefore, the changes in the viewshed visible from Santiago Canyon Road resulting from the project are considered less than significant. Mitigation Measures No mitigation is required. Residual Impacts Residual impacts would be less than significant. Potential Impact 3I-3 Create New Source of Substantial Light or Glare Adversely Affecting Day or Nighttime Views Additional lighting associated with the proposed development would include streetlights, residential lighting, and the lighting of the proposed sports park. Most direct lighting sources from the residences would be screened, but overspill lighting would likely occur. The nighttime lighting of the proposed sports park would be directed inward, utilize features to minimize spillover light, and be screened with vegetation. Generally, however, the lighting would only be visible from Santiago Canyon Road and from significant distances. Existing residences to the west, such as Cowan Heights, would view the lights with the lighting of the SR-241/Santiago Canyon Road interchange in the foreground, lessening the impact of the new lighting. However, this lighting is expected to be visible at night. To avoid significant visual impacts related to this impact, several mitigation measures would be implemented at the sports park. Mitigation Measures MM 3I-3 Limit Use of Sports Park Lighting. Sports park lighting will not be used after 11:00 p.m. Planned Communities Draft SEIR/EIR 3I-21

26 MM 3I-4 Implement Lighting Design Measures. The following design specifications will be incorporated into the plans for lighting the sports park: Luminaires will be cut-off type fixtures (i.e., fully shielded, emitting no light above the horizontal plane), and will be models recommended by the International Dark- Sky Association. Luminaires will not utilize swiveled mounting hardware, which can be inadvertently or intentionally adjusted to cause spillover impacts. Instead, luminaries will be professionally and permanently installed to direct only on the sports fields/courts and away from residential areas and other development adjacent to the project site. Luminaire lamps will provide good color rendering and natural light qualities. Luminaires will be restricted to no more than 500 lux (1 lumen per square meter) or 50 footcandles. Luminaires will be placed at the minimum height to reduce potential for backscatter into the nighttime sky and incidental spillover into adjacent properties and open space. Luminaire mountings will have nonglare finishes. Residual Impacts Residual impacts would be less than significant. Potential Impact 3I-4 Have Substantial Adverse Effect on Scenic Vista East Orange Planned Community Area 1 would not be visible from Irvine Regional Park and Peters Canyon Regional Park. As discussed above, it would be visible from Irvine Lake, though largely buffered by intervening topography and vegetation. Lomas Ridge provides a topographical relief to the south. The Cleveland National Forest boundaries and associated vistas are located approximately 2 miles to the northeast of the project vicinity beyond the City s Sphere of Influence. These topographic and regional elements provide scenic vistas from certain viewpoints within the project area. However, East Orange Planned Community Area 1 has been planned to avoid development on significant ridgelines, utilize existing topographic relief, cluster development design, preserve key landforms, and utilize landscaping plans that avoid substantially impacting any scenic vistas in the area. Preservation of large tracts of open space in and around the development areas further reduces impacts on scenic vistas. Therefore, potential impacts on scenic vistas from the implementation of East Orange Planned Community Area 1 would be less than significant. Mitigation Measure No mitigation is required. Residual Impacts Residual impacts would be less than significant. Planned Communities Draft SEIR/EIR 3I-22

27 Potential Impact 3I-5 Conflict with Adopted Visual Resource Policies The proposed project is consistent with the transportation element of the County General Plan s Objectives 4.1 and 4.3. The proposed circulation plan is sensitive to the character of existing communities and neighborhoods throughout the unincorporated areas of the County. The project is also compatible with the physical environment to the extent practical. The project would preserve many key landforms in the area through its open space plan. The proposed project is also consistent with the Resources Element of the County General Plan. Natural Resource Component Goal 3, Objective 3.1 and Policy 5.0, recognizes the need to utilize wisely the County s landform resources and protect significant landforms in the County. The project would preserve key landforms within the project area and the natural topography to the extent practical, which is also consistent with Objective 3.1 and Policy 5.0. Open Space Component Goal 1 of the general plan is to retain the character and natural beauty of the environment. The proposed project would include expansive land preservation and enhancement plans, as the preservation of open space was a goal of the project design. The project is also consistent with Open Space Component Goal 4 and related policies. A significant amount of open space with recreational, scenic, scientific, and educational opportunities would be preserved through the project. The Growth Management Element reflects the need for buffer zones to be established within projects to provide for the physical and visual separation of major communities. Such buffer zones are included in the proposed project through the preservation of open space and the creation of trailways throughout the development. The project is consistent with the City General Plan aesthetics and visual quality issues. The Land Use Element of the general plan recognizes the importance of promoting quality urban design. The project is consistent with Goal 6.0 and its related policies regarding urban design standards. The project would follow standard City design codes and ordinances. Goal 9.0 is to minimize adverse impacts from new development on existing development. The project would not cause any such conflicts. The project is also consistent with Goal 6.0 since it would implement a formal planting pattern to create aesthetically pleasing streetscapes and parking areas. The Environmental Resources Element of the City General Plan recognizes that landscaping is an important component of project design. The proposed project is consistent with Goal 2.0 and Policy 2.1, to preserve existing plant resources. Goal 3.0 is to preserve and enhance open space resources for active and passive recreational uses. The project includes the design of additional active recreational park facilities, as well as passive trails and open space areas. The project is consistent with Policy 3.6 because it provides for the future development of parks, including the sports park that would be illuminated for nighttime use. The project is also consistent with the general plan s intent to preserve hillside open space areas where possible while still allowing for development. The project is consistent with Goal 5.0 and Policies 5.1 and 5.5 because it would preserve key landforms and open space areas within the project site, which are significant in terms of aesthetics and visual resources. The project is consistent with the City of Orange Tree Preservation Ordinance. Section (A) and (B) respectively state: The City of Orange, in order to further prevent destruction of its once vast number of majestic trees and orchards, finds it necessary to place reasonable restrictions on such acts of removal and destruction. The primary concern of the City Council of the City is the regulation of large-scale tree removal from undeveloped property in that large parcels of undeveloped acreage are more likely to have a vast number of trees, the removal of which is more likely to have an adverse affect upon the surrounding environments. Past destruction of trees on such property has not only interfered with the natural Planned Communities Draft SEIR/EIR 3I-23

28 scenic beauty and tourism of the City, but also greatly diminished the ecological value of such natural vegetation. According to the ordinance, the City may require tree replacement for any live trees that are removed from a property for development purposes. The tree replacement ratio is established from time to time by resolution of the City Council. The granting of a tree removal permit for the project may be conditioned upon compliance with the tree replacement resolution. Both the replacement ratio and the size of replacement trees are determined by staff review and design review committees. The City s Tree Preservation Ordinance typically requires the replacement of impacted trees depending on size in ratios ranging from 1:1 to 3:1 for its development projects. The proposed tree replacement ratio for the proposed project is 20:1. Within the East Orange Planned Community Area 1 primary impact area, there are a total of 236 trees; 76 percent are native, with the dominant species being coast live oak. The species mix includes oak, willow, sycamore, and non-native trees. Most of these trees are in good condition with a healthy range of sizes and ages. Of this group, a minimum of 17 coast live oaks have been identified as candidates for relocation on the project site. Assuming 219 trees are removed, a total of 657 replacement trees (mainly 24-inch box size) could potentially be required using a conservative 3:1 ratio. These trees would be required to be planted on the property inside development limits. However, as noted, the proposed project intends to use a 20:1 ratio for tree replacement (see Project Design Features, below) and therefore far exceeds what would be required under the City s Tree Preservation Ordinance. In addition, the tree replacement strategy for the proposed project extends beyond current requirements to include a more ecologically sound planting plan within transitional areas and slopes, parkways, fuel modification zones, medians, street scene setbacks, perimeter and internal buffer zones, internal slopes, and park and recreation facilities. With the proposed 20:1 replacement ratio, the 236 trees that would be removed from East Orange Planned Community Area 1 would be replaced with over 4,000 trees in sizes ranging from 15-gallon to 48-inch box, which would enhance the overall quality of the tree resources as well as promote long-term sustainability in the landscape. Therefore, the proposed project would not conflict with the City s adopted visual resource policy regarding the preservation and replacement of trees. Mitigation Measures No mitigation is required. Residual Impacts No mitigation is required, and residual impacts would be less than significant. 3I East Orange Planned Community Areas 2 and 3 and Remaining Areas East Orange Planned Community Area 2 is at the eastern perimeter of Irvine Lake and north of Santiago Canyon Road. Figures 3I-5 through 3I-7 show examples of the areas that would be developed in East Orange Planned Community Area 2, indicated by brackets and shading. Of the 947 total acres of East Orange Planned Community Area 2, approximately 599 acres would be developed for low density and low-medium density residential uses and associated infrastructure. Tentative tract maps have not been prepared for this area at this time. However, general-plan-level design and landscape guidelines have been prepared, and conceptual grading plans have been developed. Based on these guidelines and plans, Planned Communities Draft SEIR/EIR 3I-24

29 Area 2 Area Figure 3I-5 East Orange Planned Community Area 2 Massing Study Looking East From Santiago Canyon Road

30 Area Figure 3I-6 East Orange Planned Community Area 2 Massing Study Looking Northeast from Jeffrey Road and Santiago Canyon Road

31 Area Figure 3I-7 East Orange Planned Community Area 2 Massing Study Looking Northwest From the Eastern Project Boundary

32 it is anticipated that East Orange Planned Community Area 2 units would bear an architectural resemblance to California Ranch and Cottage-style homes. The remaining portion of East Orange Planned Community Area 2 would include commercial recreational uses, such as an 18-hole golf course, a marina, and a 100-room lodge/inn. There currently are commercial recreational uses adjacent to Irvine Lake, allowing for such activities as fishing and boating. A 40-acre quarry and a concrete batch plant are located on the reservoir s eastern margin in the Santiago Creek arm of the lake; this facility is in the process of closing. As part the reclamation, planting will take place and land will be reclaimed near the reservoir. Closure will be complete in The proposed commercial recreational uses are located adjacent to the northeastern boundary of Irvine Lake on the site of the mining operation. The proposed project anticipates the continuation of existing recreational activities (e.g., fishing, sailing, and boating), and provides an opportunity for additional recreational activities. Views toward East Orange Planned Community Area 2 would likely be altered in the following ways with the implementation of the proposed project. Graded areas would stretch from the east bank of Irvine Lake approximately 2 miles to the east. Grading adjacent to Irvine Lake would be directly visible from portions of Santiago Canyon Road. Grading on the small hills within other areas would also be visible to people traveling the roadway. The land use plan preserves most of the small valleys within the eastern portions of East Orange Planned Community Area 2. Vegetated areas are mostly native, with grass species, coastal sage scrub, and a number of oaks in the eastern portions of East Orange Planned Community Area 2. Oaks are located mostly in the small valley areas, but some exist in areas shown to be within the development footprint. A portion of the proposed golf course appears to be located within a riparian area. This area would not be visible from public roads and would be difficult to see from Irvine Lake. Vegetation along the roadway would be replaced with landscaping that would likely consist of the aforementioned planting palettes. Development would be directly visible from approximately 2 miles of road along Santiago Canyon Road in both directions. Due to the elevated areas of Santiago Canyon Road, as travelers move east away from Irvine Lake, direct lighting would be visible from interior areas of the project. Along portions of the roadway that would be lower than the adjacent development, it is likely most direct lighting would be screened by future landscape and structure. A minor amount of spillover lighting would be likely to occur from the new development. The development would be a change in the overall character. East Orange Planned Community Area 2 is at least 2 miles from the nearest residential area, and surrounding development consists of the rural Irvine Lake activity and large areas of open space. The site contains minimal development, except for the disturbance associated with Irvine Lake uses and mining activities. Any development would be in areas outside these, and would be a great change to the existing open rural character. East Orange Planned Community Area 3 is south of Santiago Canyon Road and at the eastern edge of the East Orange Planned Community area. Figures 3I-8 and 3I-9 show examples of the areas that would be developed in East Orange Planned Community Area 3, indicated by shading and brackets. These areas are currently designated for rural, low-medium density residential, a golf course, and open space. This proposed project area would amend the City General Plan s Land Use Element to allow for only 50 low density residential dwelling units. As a result, East Orange Planned Community Area 3 would be a small rural community completely surrounded by designated open space. Planned Communities Draft SEIR/EIR 3I-25

33 Views toward East Orange Planned Community Area 3 would likely be altered in the following ways with the implementation of the proposed project. The area is approximately 50 to 100 feet below the existing grade of Santiago Canyon Road, so any changes to the site would be viewable from the roadway. According to the City General Plan, grading would occur in a small open grassy field surrounded by native trees. It appears that some trees would be required to be removed from development areas, as well as from fuel modification zones. Existing vegetated areas are mostly native, with grass species and thick stands of oaks. It would be expected that the landscape plan would be similar to those described previously for Santiago Hills II Planned Community and East Orange Planned Community Area 1. Lighting sources would be directly viewable because direct light sources and overspill lighting would be visible. The development would be directly viewable from Santiago Canyon Road and would be a substantial change in the overall character of the area. The submitted conceptual design guidelines for the East Orange Planned Community Areas 2 and 3 residential neighborhoods are similar to the tentative-tract-map-level design and landscape guidelines prepared for Santiago Hills II Planned Community and East Orange Planned Community Area 1. The design of East Orange Planned Community Areas 2 and 3 would ensure that open space continues to play a key role in the proposed project. Multiple levels of open space elements would help create a community theme and character that is consistent with the existing residential communities and natural environment. Individual neighborhoods would be linked to the community as a whole. The neighborhoods would be defined by roadways, geographic elevation changes, and trails that would provide connectivity to internal and adjacent community facilities throughout the project areas. The developments would be landscaped with a formal planting structure to include native and non-native species, based on the conceptual design guidelines. PDF-3I-1 through PDF 3I-3, described for Santiago Hills II Planned Community and East Orange Planned Community Area 1, are also applicable to East Orange Planned Community Areas 2 and 3. In addition, the following PDF has been incorporated into the plans for East Orange Planned Community Areas 2 and 3 and remaining areas to reduce impacts to visual resources. PDF 3I-4 Protection of Oaks To avoid impacts to oak trees, improvements to Santiago Canyon Road and the planning areas boundaries of East Orange Planned Community Areas 2 and 3 have been adjusted to reflect tree preservation strategies. Internal onsite undisturbed open space protection areas for East Orange Planned Community Areas 2 and 3 and the commercial recreation sector that provides an opportunity for a future golf course have been adjusted to avoid impacts to identified sensitive oak habitat. Potential Impact 3I-1 Substantially Degrade Existing Visual Character or Quality of Site and Its Surroundings Visual impacts associated with changes in views of the project site would be similar to those for Santiago Hills II Planned Community and East Orange Planned Community Area 1. Like East Orange Planned Community Area 1, views of East Orange Planned Community Areas 2 and 3 and remaining areas are limited background views, except from Santiago Canyon Road, as discussed above. Besides travelers on Planned Communities Draft SEIR/EIR 3I-26

34 Area Figure 3I-8 East Orange Planned Community Area 3 Massing Study Looking East From Santiago Canyon Road

35 Area Figure 3I-9 East Orange Planned Community Area 3 Massing Study Looking Southwest From the Eastern Project Boundary