SANTA BARBARA COUNTY ZONING ADMINISTRATOR STAFF REPORT February 5, 2016 PROJECT NAME: Public Works Isla Vista Sidewalk Improvements & Tree Replacement HEARING DATE: February 22, 2016 STAFF / PHONE: J. Ritterbeck / (805) 568-3509 GENERAL INFORMATION Case No. 15AMD-00000-00003 and 15CDP-00000-00109 Applicant/Phone: Morgan Jones, Senior EEP Public Works Roads Division Santa Barbara County (805) 568-3059 Property Owner: Santa Barbara County Public Works Department AP No. 333-333-333 (Road Right-of-Way) 1.0 EXECUTIVE SUMMARY The proposed project is located within the unincorporated area of the Goleta Community Plan area known as Isla Vista. The proposed development would be contained entirely within the County s dedicated public road rights-of-way in the following zone districts: REC, SR-H, SR-M, R-1, R-2, PI, C-2, and DR. Santa Barbara County Public Works Department seeks to amend the previously approved Development Plan, Case No. 10DVP-00000-00005, to develop in-fill sidewalks / streetscape within the road rights-of-way throughout the unincorporated area of Isla Vista. The original Development Plan only covered a limited area of Isla Vista. The proposed Amendment would expand the project area to cover the entirety of the Isla Vista community. Additionally, removal and replacement of street trees would be needed to facilitate such improvements. The amended project includes an overall general plan for improving pedestrian safety with sidewalk in-fill, streetscape in-fill and streetscape reconstruction, as well as a street tree replacement program throughout the entire Isla Vista area. The project would be consistent with the Board-adopted Isla Vista Master Plan. Many of the overall project components, including the replacement and installation of sidewalks and the resurfacing of road corridors are considered exempt from permit requirements pursuant to Section 35-169.2.1.a and the Repair and Maintenance guidelines for roadways. Because these improvements are located within the public road rights-of-way and are considered to be maintenance of existing public facilities, they do not require a Coastal Development Permit. However, these improvements were included within the original Development Plan s project description and included in staff s analysis throughout the staff report in order to provide context. The only component of the original project and this Amendment that requires a permit is the proposed removal of trees that are located within the road right-of-way.
Page 2 2.0 REQUEST Hearing on the request of Morgan Jones, Senior Engineering Environmental Planner for the County of Santa Barbara Public Works Department, to consider Case No. 15AMD-00000-00003, [application filed on December 4, 2015] for a Development Plan Amendment; and Case No. 15CDP-00000-00109 [application filed on December 4, 2015] for an associated Coastal Development Permit, to allow in-fill development for sidewalks and streetscape improvements within the road rights-of-way (R.O.W.) throughout Isla Vista, in compliance with Section 35-172.10 and 35-169.4 of the Article II Coastal Zoning Ordinance, on property owned by the County and dedicated as public road R.O.W. in the Isla Vista area within the following zone districts: REC, SR-H, SR-M, R-1, R-2, PI, C-2, and DR; and to determine that the previously certified EIR prepared for the Isla Vista Master Plan (03-EIR-08) is adequate for this project pursuant to CEQA Section 21090(b) to the State Guidelines for Implementation of the California Environmental Quality Act. The original EIR identified insignificant (Class III) or no cumulative impacts on the environment in the following categories: Agricultural Resources; and Hazardous and Hazardous Materials. Significant but mitigable (Class II) cumulative impacts on the environment were identified in the following category: Biological Resources. Finally, significant and unavoidable (Class I) cumulative impacts were identified in the following categories: Land Use and Population; Aesthetics/Visual Resources; Air Quality; Cultural/Historic Resources; Geologic Hazards; Hydrology and Water Quality; Noise; Parks, Open Space and Recreation; Public Services and Utilities; and Traffic and Circulation. There would be no new significant environmental impacts that could result from the requested Development Plan Amendment that were not previously analyzed as a part of 03-EIR-08. The Isla Vista Master Plan EIR is available for review at the Santa Barbara County Planning and Development Department, 123 East Anapamu Street, Santa Barbara, and online at the County website through the following link: http://www.countyofsb.org/ceo/successor-agency/isla-vista-master-plan-eir.sbc. The application involves land located within the County public road rights-of-way throughout the entire Isla Vista area, in the Goleta Community Plan and the Isla Vista Master Plan area, Third Supervisorial District. 3.0 RECOMMENDATION Follow the procedures outlined below and conditionally approve Case Nos. 15AMD-00000-00003 and 15CDP-00000-00109, as depicted on the reduced site plan (Attachment C), based upon the project s consistency with the Comprehensive Plan, including the Coastal Land Use Plan and the Goleta Community Plan, and the ability to make the required findings. The Zoning Administrator s action should include the following: 1. Make the required findings for the project specified in Attachment A of this staff report, including the CEQA findings; 2. Determine the previously certified EIR prepared for the Isla Vista Master Plan (03-EIR-08) is adequate environmental review for this project pursuant to CEQA Statute Section 21090(b); and 3. Approve the Development Plan Amendment, Case No. 15AMD-00000-00003, subject to the conditions included as Attachment B-1; and 4. Approve the Coastal Development Permit, Case No. 15CDP-00000-00109, subject to the conditions included as Attachment B-2. Alternatively, refer back to staff if the Zoning Administrator takes other than the recommended action for appropriate findings and conditions.
Page 3 4.0 PROJECT SPECIFICATIONS 4.1 Site Information Comprehensive Plan Coastal, Urban, Goleta Community Plan area, Isla Vista Master Plan area, with Designation portions located within the Coastal Commission Appeals Jurisdiction, with the following land use designations: Retail Commercial, Recreation, High Density Student Residential min. lot size 7,000 sq. ft./20 units per acre, Medium Density Student Residential min. lot size 7,000 sq. ft./18 units per acre, Medium Density Student Residential min. lot size 7,000 sq. ft./8 units per acre, Two Family Residential min. lot size 7,000 sq. ft., Single Family Residential min. lot size 10,000 sq. ft., Zone Districts, Article II Site Size Present Use & Development Access Other Site Information Public Services 4.2 Project Description SR-H-20 (Student Residential, High Density 20 units per acre), SR-M-8 & -18 (Student Residential, Medium Density 8 & 18 units per acre), C-2 (Retail Commercial), REC (Recreation), R-1 & R-2 (Residential), PI (Professional and Industrial), DR (Design Residential). Approximately ½ square mile, or 320 acres. Medium and High Density student housing, commercial development, open space/parks, public road rights-of-way. Access to the project area is taken off of El Colegio Road via Camino Corto, Camino del Sur, Camino Pescadero, Embarcadero del Mar, and Embarcadero del Norte. The entire project area is situated within the extent of the public road rights-ofway of Isla Vista, and located within the Coastal Zone and partially within the Coastal Commission Appeals Jurisdiction. Water Supply: Goleta Water District Sewage: Goleta West Sanitary District Fire: Santa Barbara County Fire Department Police: Santa Barbara County Sheriff Santa Barbara County Public Works Department Roads Division is requesting Zoning Administrator approval of an Amendment to the previously approved Development Plan (Case No. 10DVP-00000-00005) in order to construct in-fill sidewalks and streetscape improvements within the road rights-of-way throughout the unincorporated area of Isla Vista, and to remove and replace street trees, as needed, in order to facilitate such improvements. The amended project includes a general plan for improving pedestrian safety with sidewalk in-fill, streetscape in-fill and streetscape reconstruction, as well as a street tree replacement program throughout the entire Isla Vista area, consistent with the Board-adopted Isla Vista Master Plan. Currently, the County Public Works Department has two independent improvement areas that have been identified for initial improvement in 2016 if this Amendment is approved. These areas include R.O.W. areas along Camino Pescadero and Sueño Roads in western Isla Vista. These areas have been identified on the associated project plans included as Attachment D to this staff report (for reference only and subject to subsequent approval of a Zoning Clearance). Public Works (PW) intends to improve these two areas first as Phase 1 of the proposed improvements, and then as both future project funding and additional public R.O.W. is acquired, subsequent phased development would occur in substantial conformity to this Amendment.
Page 4 Future follow-on Zoning Clearances would be required to effectuate each individual phase of PW improvement projects prior to their implementation, including the previously mentioned Phase 1 project along Camino Pescadero and Sueño Roads in western Isla Vista. While the entire Isla Vista area is identified as the project area encompassed within the Development Plan Amendment, the engineering-level details of each phased improvement has not yet been fully designed. Full engineering details would also be developed at the time of follow-on Zoning Clearance applications. The following figures depict the area of roadways in Isla Vista subject to the originally approved Development Plan (Figure 1) and the proposed Development Plan Amendment (Figure 2).
Page 5 4.3 Background Information The current project is an expansion of the project area previously approved by the Planning Commission (PC) on July 7, 2010. The previous PC approval of Case Nos. 10DVP-00000-00005 and 10CDP-00000-00025 authorized development associated with the in-fill of new sidewalks, replacement of existing, damaged sidewalks, replacement of street trees and the construction of public improvements within the public road rights-of-way of eastern Isla Vista. Additionally, overhead utility lines were to be relocated underground and existing utility poles along the El Embarcadero corridor were to be removed as part of the project. The original project was a result of coordination efforts between the [now-dissolved] Isla Vista Redevelopment Agency (IVRDA) and County Public Works and was intended to support the ongoing redevelopment of the Isla Vista area. Many of the overall project components, including the replacement and installation of sidewalks and the resurfacing of road corridors are considered exempt from permit requirements pursuant to Section 35-169.2.1.a and the Repair and Maintenance guidelines for roadways referred to therein (Article II, Appendix C, II, A). Because these improvements are located within the public road rights-of-way and are considered to be maintenance of existing public facilities, they do not require a Coastal Development Permit. However, such improvements were included within the original project description and included in staff s analysis throughout the staff report for the Development Plan in order to provide the decision-maker (PC, ZA now) with the context in which to review the proposed tree removal portion of the project. Both the original Development Plan project and the current Amendment also include the removal and replacement of existing street trees throughout the project area. Trees have been, and would continue to be, removed only where necessary to accommodate the construction of the new sidewalks and other infrastructure improvements. Any trees removed as part of the project are to be replaced with new street trees at a minimum ratio of one to one. As conditions allow, all replacement trees would continue to be planted consistent with the Isla Vista Master Plan (IVMP) and the County of Santa Barbara street tree lists, including location and species. It is not possible at this time to predict exactly which existing street trees will need to be removed and which would be preserved. However, the analysis that was a part of the Isla Vista Master Plan EIR included an inventory of all existing trees located within the rights-of-way throughout the project area that could possibly be affected by the project. The Roads Division of Public Works plans to preserve as many existing trees as possible in order to limit impacts to Isla Vista s streetscape and it is likely that a majority of the trees on both public and private property would remain through project implementation. In order to carry out future Phases of development associated with this Amendment, Public Works must first acquire numerous fragmented segments of right-of-way from private property owners throughout the project area. As such, a consistency determination pursuant to Government Code 65402 for the acquisition of such right-of-way would either precede or accompany future Phases of sidewalk in-fill that require a Zoning Clearance for the removal of trees within the public road R.O.W. 5.0 JURISDICTION The Zoning Administrator is the decision-maker for the Development Plan Amendment based upon Section 35-174.10.2.c.1.d.i of Article II which states that the Zoning Administrator shall hold at least one noticed public hearing on the application for the Amendment and the application for the Coastal Development Permit and approve, conditionally approve, or deny the request.
Page 6 6.0 PROJECT ANALYSIS 6.1 Environmental Review Environmental review of the project under the California Environmental Quality Act (CEQA) has been adequately conducted pursuant to CEQA Statute Section 21090(b) [Redevelopment Plan Deemed Single Project], as the environmental impact report (EIR) for a redevelopment plan is a project EIR and all public and private activities or undertakings pursuant to, or in furtherance of a redevelopment plan shall be deemed a single project. The Board of Supervisors certified the IVMP EIR (03-EIR-08) on August 21, 2007 which included and analyzed the replacement of public sidewalks and street trees throughout the entire Isla Vista Project Area. Additionally, the events specified in CEQA Statutes Section 21166 have not occurred with respect to the Isla Vista Sidewalks and Tree Replacement project including: a) Substantial changes are not proposed in the project which will require major revisions of the environmental impact report. b) Substantial changes will not occur with respect to the circumstances under which the project is being undertaken which will require major revisions in the environmental impact report. c) New information, which was not known and could not have been known at the time the environmental impact report was certified as complete, has not become available. Therefore, the previous environmental analysis is adequate for this project and no further analysis is required. Mitigation measures identified in the IVMP EIR to reduce significant environmental effects associated with the Isla Vista Sidewalks and Tree Replacement Project have been incorporated as conditions of approval for this project and all subsequent projects associated with this Amendment. 6.2 Policy Consistency Analysis REQUIREMENT DISCUSSION Coastal Land Use Plan Policy 2-6: Prior to issuance of a development permit, the County shall make the finding, based on information provided by environmental documents, staff analysis, and the applicant, that adequate public or private services and resources (i.e., water, sewer, roads, etc.) are available to serve the proposed development Public Services & Circulation Consistent: The project includes the in-fill development of new sidewalks, replacement of street trees and the construction of public improvements within the public road rights-of-way in the entire Isla Vista project area. The project would not require water or sewer services and access to the project area would be taken from El Colegio Road. Because the project includes numerous upgrades to public facilities, it would improve conditions throughout the project area for fire and emergency response personnel, as well as improve upon the existing pedestrian and vehicular circulation patterns. Within the overall Project Area, circulation patterns would be temporarily impacted by construction-related activities and staging in those areas adjacent to each individual improvement project. To minimize these expected impacts, each subsequent project involving tree removal would be required to obtain an independent Zoning Clearance, which would incorporate a traffic-
Page 7 REQUIREMENT DISCUSSION Coastal Land Use Plan Policy 3-19: Degradation of the water quality of groundwater basins, nearby streams, or wetlands shall not result from development of the site. Pollutants, such as chemicals, fuels, lubricants, raw sewage, and other harmful waste, shall not be discharged into or alongside coastal streams or wetlands either during or after construction. DevStd BIO-GV-19.2: Washing of concrete, paint, or other equipment shall be allowed only in areas where polluted water can be contained during construction and in industrial settings. Coastal Land Use Plan Policy 3-14: All development shall be designed to fit the site topography, soils, geology, hydrology, and any other existing conditions and be oriented so that grading and other site preparation is kept to an absolute minimum. Natural features, landforms, and native vegetation, such as trees, shall be preserved to the maximum extent feasible. Areas of the site which are not suited for development because of known soils, geologic, flood, erosion, or other hazards shall remain in open space. control plan that would be implemented for each of the individual future projects (see Condition #12 of Attachment B-2). As shown in Attachment C to this staff report, the first improvement project that would occur subsequent to the approval of the requested Development Plan Amendment would include sidewalk improvements along Sueño Road. As such, the proposed Amendment would be consistent with CLUP Policy 2-6. Water Quality Consistent: Ongoing public use of the sidewalks as well as the proposed public improvements located throughout the Project Area would not generate pollutants such as chemicals, fuels, lubricants, raw sewage or other harmful wastes that could be discharged into coastal streams or wetlands, nor into the Pacific Ocean. Existing Public Works catch basins located throughout the Project Area would continue to collect storm water drainage and direct it to the appropriate discharge locations throughout the Isla Vista community. Additionally, in order to ensure that constructionrelated materials (e.g., concrete, paint, solvents, etc.) are contained and disposed of properly, as a condition of approval each subsequent project associated with this Amendment would be required to designate a wash-out area where such materials would be contained and removed from the site. Containment of these materials would ensure that they are not discharged into the local storm water drainage system and carried to the Pacific Ocean. Hillside & Watershed Protection Consistent: The project includes the in-fill development of new sidewalks, replacement of street trees and the construction of public improvements within street R.O.W.s throughout the Isla Vista area. The overall Project Area is developed as an urban neighborhood and does not contain any unique natural features or landforms. Existing trees would be preserved to the maximum extent feasible and, if removed, would be replaced by new tree plantings consistent with those identified within the IVMP EIR. The existing storm water drainage system in the Project
Page 8 REQUIREMENT Coastal Land Use Plan Policy 3-18: Provisions shall be made to conduct surface water to storm drains or suitable watercourses to prevent erosion. Drainage devices shall be designed to accommodate increased runoff resulting from modified soil and surface conditions as result of development. Water runoff shall be retained onsite whenever possible to facilitate groundwater recharge. DISCUSSION Area would continue to provide adequate drainage for the Isla Vista area consistent with historic patterns. Additionally, all future plans for improvements associated with this Amendment would be subject to best management practices, including erosion and sediment control measures to prevent erosion and siltation from migrating off-site (see Attachment B-2, Conditions #5 & #6). Implementation of these measures would ensure that all future development associated with these R.O.W. improvements remains consistent with CLUP Policies 3-14 and 3-18. Coastal Act Policy 30251: The scenic and visual qualities of coastal areas shall be considered and protected as a resource of public importance. Permitted development shall be sited and designed to protect views to and along the ocean and scenic coastal areas, and, where feasible, to restore and enhance visual quality in visually degraded areas. New development in highly scenic areas such as those designated in the California Coastline Preservation and Recreation Plan prepared by the Department of Parks and Recreation and by local government shall be subordinate to the character of its setting. Visual Resources Consistent: The project includes the infill development of new sidewalks, replacement of street trees and the construction of public improvements within the public R.O.W. throughout Isla Vista. Many segments of sidewalk within the project area are non-contiguous, damaged by tree roots, or degraded from weather and use. The project would install new sidewalks and streetscape to replace previously non-contiguous segments and repair existing sidewalk segments damaged over the course of time. New sidewalks would typically be installed along entire road corridors to enhance pedestrian access throughout the entire Isla Vista area. Coastal Land Use Plan Policy 2-22: To improve the overall appearance and quality of development in the community of Isla Vista, new development shall adhere to the following standards to the maximum extent feasible:[ ] b. Projects shall be designed to include architectural and aesthetic amenities to improve the overall appearance and quality of development in the community. Coastal Land Use Plan Policy 4-7: Utilities, including television, shall be placed underground in new developments in accordance with the rules and regulations of the California Public Utilities Commission, except where the cost of undergrounding would be so high as to deny service. While the project was not required to be reviewed by the Board of Architectural Review, project improvements would utilize standard materials commonly used for public spaces such as concrete sidewalks, curb-and-gutters, and ADA-compliant access ramps. All improvements would be finished to match existing adjacent sidewalks and improvements. New street trees would be planted to replace those removed consistent with the tree lists identified in the IVMP, which did include community engagement and review by the South Board of Architectural Review. By utilizing standard materials that match existing infrastructure and by planting replacement trees consistent with IVMP direction, the project would be consistent with these policies. DevStd VIS-GV-1.1: Setbacks, landscaping, and structural treatments shall be emphasized along
Page 9 REQUIREMENT DISCUSSION major roadways to help preserve viewsheds and create an aesthetic visual corridor. Parking lots and other impervious surfaces should be placed in side and rear, rather than frontage, areas in all development along roadways. Policy VIS-GV-3: Maintenance and expansion of Goleta's tree population shall be a high priority in the Goleta planning area. The County shall encourage projects which expand onsite and offsite provision of appropriate tree plantings, both in terms of quantity and species diversity. Policy AQ-GV-1: The County shall impose appropriate restrictions and control measures upon construction activities associated with each future development project, in order to avoid significant deterioration of air quality. Landscaping Consistent: The proposed project includes the removal of existing street trees located within the road R.O.W. throughout the Project Area and the installation of replacement street trees. Replacement trees would be planted consistent with those identified in the IVMP approved street tree list. Species would include the Mexican Fan Palm, Bradford Pear, Ginko, Olive, New Zealand Christmas Tree, and other appropriate species. Planting such trees would ensure project conformance with Policy VIS-GV-3. The diverse species identified in the IVMP street tree list have been chosen for their aesthetic nature and their ability to thrive in the local climate with minimal maintenance requirements. Air Quality Consistent: As a standard condition of approval, the project would be required to implement measures to reduce fugitive dust generated by construction-related activities (see Attachment B-2, Condition #3). Heavy equipment operation required for grading activities is not expected to contribute significantly to particulate generation and therefore would not significantly deteriorate local air quality. Therefore, the project would be consistent with this policy. Noise Element Policy 1: In the planning of land use, 65 db Day-Night Average Sound Level should be regarded as the maximum exterior noise exposure compatible with noise-sensitive uses unless noise mitigation features are included in project designs. Noise Consistent: The proposed project would have the potential to create short-term construction-related noise impacts on sensitive receptors nearby. Therefore, the project has been conditioned to limit the hours of operation between 8:00 a.m. and 5:00 p.m. (see Attachment B-2, Condition #7). Adherence to the restricted hours of construction would ensure ongoing consistency with this policy. Coastal Land Use Plan Policy 10-2: When developments are proposed for parcels where Cultural Resources Consistent: The proposed project is located within an urbanized area that is developed with existing high-
Page 10 REQUIREMENT archaeological or other cultural sites are located, project design shall be required which avoids impacts to such cultural sites if possible. Policy HA-GV-1: Significant cultural, archaeological and historical resources in the Goleta area shall be protected and preserved to the maximum extent feasible. DevStd HA-GV-1.5: In the event that archaeological or paleontological remains are uncovered during construction, excavation shall be temporarily suspended and redirected until the provisions of Public Resources Code section 5097.5, 5097.9 et seq. are satisfied. DISCUSSION density student residential buildings and commercial businesses. During the years, nearly the entire Isla Vista area has been disturbed by development of the existing neighborhood features. Although unlikely, in the event that cultural resources are discovered during construction, a standard precautionary measure has been added as a condition of approval that requires project-related work to be stopped and/or redirected so the site could be properly investigated (see Attachment B-2, Condition #4). As such, all future development associated with these R.O.W. improvements would remain consistent with these policies and development standard. 6.3 Ordinance Compliance Pursuant to Section 35-140.2 of Article II, a Coastal Development Permit is required for the removal of trees within County R.O.W. Specific findings are required for such activities and are included with Attachment A of this staff report. Pursuant to Section 35-77.3 of Article II, a Development Plan is required for any development located on property zoned SR-H (Student Residential-High Density). Because much of the tree removal associated with the original project was located on property zoned SR-H, a Development Plan was required and Case No. 10DVP-00000-00005 was approved on July 7, 2010. The current project is an Amendment to the previously-approved Development Plan and includes the same type of infill development of new sidewalks, replacement of existing damaged sidewalks and reconstruction of other public improvements within the public R.O.W. throughout the Isla Vista area. As shown in Figure 1 and Figure 2 of this staff report, while the previous Project Area was focused on the eastern Isla Vista area, the current project expands the Project Area to include the entire Isla Vista area. All project components other than tree removal activities are considered exempt from Coastal Development Permits pursuant to Section 35-169.2.1.a and the Repair and Maintenance guidelines for roadways referred to therein (see Article II, Appendix C, II, A). This Amendment and Coastal Development Permit would authorize the removal of trees throughout the entire Isla Vista area, with each individual future phase involving tree removal with the R.O.W. requiring its own follow-on Zoning Clearance. 7.0 APPEALS PROCEDURE The action of the Zoning Administrator may be appealed to the Planning Commission within the 10 calendar days following the date of the Zoning Administrator's decision by the applicant or an aggrieved person. There is no appeal fee as the project is appealable to the Coastal Commission. The action of the Planning Commission may be appealed to the Board of Supervisors within the 10 calendar days following the date of the Planning commission s decision by the applicant or an aggrieved person. There is no appeal fee as the project is appealable to the Coastal Commission. The action of the Board of Supervisors may be appealed to the Coastal Commission within ten (10) working days of receipt by the Coastal Commission of the County's Notice of Final Action.
Page 11 8.0 ATTACHMENTS A Findings for Approval B-1 Conditions of Approval Development Plan Amendment (Case No. 15AMD-00000-00003) B-2 Conditions of Approval Coastal Development Permit (Case No. 15CDP-00000-00109) C Reduced Site Plan Map D Proposed Plans for Camino Pescadero and Sueño Road [For Reference Only] G:\GROUP\PERMITTING\Case Files\AMD\15 cases\15amd-00000-00003 Public Works - IslaVista Sidewalks\ZA SR - 15AMD-0-00003.doc