REPORT TO THE CITY COUNCIL
DATE: Regular Meeting of February 8, 2022
TO: Mayor and Members of the City Council
VIA: Dante Hall, City Manager
SUBMITTED BY: Robert Reber, AICP – Community Development Director Sou Garner, Planning Consultant (MIG, Inc.)
SUBJECT: “Franklin Canyon RV Resort Project,” a proposal to redevelop the existing 161.95-acre 18-hole Franklin Canyon Golf Course with a recreation vehicle resort/campground with 158 spaces for recreation vehicles, 22 walk-in tent bungalow campsites, a new 10,500-square foot-clubhouse, and putting course, with approximately 70 acres to be deeded as open space to John Muir Land Trust. This requires approval of: Adoption of CEQA Initial Study & Mitigated Negative Declaration (#20-01), Lot Line Adjustment (#20-01), Vesting Tentative Map (#20-01) with Parcel Subdivision; and Design Review (#20-01).
RECOMMENDED ACTION: Open the public hearing, receive a presentation from City staff and applicant, receive any testimony from the public, ask applicant team or city staff to answer questions, request any changes, and if ready to take action, close the public hearing and consider adopting the following for the project entitlement:
Draft Resolution (see Attachment 1) adopting CEQA Initial Study & Mitigated Negative Declaration #20-01 (see Attachment 2) and approving Design Review Permit #2001, Lot Line Adjustment #20-01, and Vesting Tentative Map #20-01 with parcel subdivision, subject to the conditions of approval in Exhibit A, the Mitigation Monitoring & Reporting Program in Exhibit B, and the design review plan set and material boards in Exhibit C, based on Findings with Facts contained in Exhibit D.
EXECUTIVE SUMMARY
Integrated Development Strategies, LLC proposes to redevelop the 161.95-acre project site with 158 recreational vehicle (RV) visitors’ camping spaces and 22 walk-in campsites with tent bungalows. Guests would be limited to visits of 30 days or less within any consecutive 12-month period. The proposed project would remove the existing 18-hole golf course but would retain the existing driving range and build a new practice putting green and new clubhouse in the same location as the existing clubhouse. Seventy acres of the site would be deeded to John Muir Land Trust, providing direct access to open space through a dedicated trailhead and re-purposing golf cart paths as multi-use trails. The clubhouse would include dining and lounge facilities as well as a fitness and wellness center, an outdoor swimming pool with a poolside shower and changing room, and a grill/snack shop. The clubhouse would be expanded from the existing two-story 7,200-square-feet to a two-story 10,500-square-foot building with employee housing on the second story. The dining facility, driving range, and putting course would be available to the public as well as those staying at the RV resort. Since the City Council last reviewed the project and plans, the stand-alone bike rental space has been relocated to within the renovated clubhouse.
The subject site is located in the Franklin Canyon Area, where the zoning requirements and allowable uses are defined and governed by Measure M, a 2004 voter initiative that the City adopted as Ordinance No. 401. In 2019, City staff determined that the proposed project is similar to those uses in Measure M, Section 9(e), subsections (1), (2), (3), and (9), listed as allowable:
Low-intensity outdoor recreation and pastimes predominantly for active participants that is compatible with preserving the natural qualities of the area (this category of permitted uses does not include, among other things, amusement or theme parks and motor vehicle tracks, courses or recreational activities); Nature observation, study or enjoyment;
Accommodations for short-term occupancy and for provision of food and drink (including low-intensity campgrounds and picnic facilities), predominantly for persons engaged in outdoor recreation or nature observation, study or enjoyment; Special, occasional short-term events related to agriculture, animals or outdoor recreation, that do not interfere substantially with the use of land for agriculture or cause lasting environmental harm or adverse visual effects, provided access for vehicles and emergency equipment and for parking meet generally applicable City standards.
The Planning Commission in March 2021 conducted one project workshop focused on the CEQA Initial Study and Mitigated Negative Declaration process and findings, followed by two public hearings on September 20 and October 4 in 2021, which resulted in the Commission’s recommendation that the City Council adopt CEQA Initial Study & Mitigated Negative Declaration #20-01 and approve Design Review Permit #20-01 (with the associated design review exhibits and plan set), Lot Line Adjustment #20-01, and Vesting Tentative Map #20-01 with parcel subdivision.
On October 26, 2021, the Hercules City Council heard the proposal and directed the applicant back to the Planning Commission to clarify details of the proposed project design. The applicant resubmitted a complete updated plan set on December 7, 2021 for staff review.
At a subsequent public hearing held on January 18, 2022, the Hercules Planning Commission, received a project update report from City staff and updated project presentation from the applicant. Having received no testimony from the public, the public hearing was closed, and the Planning Commission voted 4–1 to re-recommend that the City Council approve the proposed project, with the following additional changes:
Provide no less than 15 electric charging stations onsite; Provide bicycle parking racks adjacent to the proposed tent bungalows; Make fences for the dog park a minimum of 5 feet tall;
Install a double-gated ‘sally port’ entrance to the dog park; Adjust colors for the entry gate/guardhouse (including the vehicle boom barrier) to ensure compatibility with the proposed project color board for the clubhouse; and Provide alternative colors in the final Master Sign Plan for the “Franklin Canyon RV Resort” sign.
Since lot line adjustments and tentative maps require approval by the City Council, all entitlement actions taken by the Planning Commission (including design review) were adopted as recommendations to the City Council.
A more detailed description, background account, and analysis of the proposed Franklin Canyon RV Resort project are included at the end of this report via links to all the Planning Commission staff reports and attachments of September 20, 2021; October 4, 2021; and January 18, 2022, as well as the prior City Council hearing for the project on October 26, 2021.
DISCUSSION:
Description. The irregular shaped parcel totals 161.95 acres, with approximately 116.8 acres of the site operating as an 18-hole golf course, known as the Franklin Canyon Golf Course, constructed in 1967. The remaining acres consist of rolling hills, with steeper topography to the south, east, and west. Much of the golf course is planted with non-native and ornamental plant species, while native plants are present on the rolling hills and higher elevations. Rodeo Creek flows east to west along the northern boundary of the project site and drains into San Pablo Bay, approximately 4 miles west of the parcel. The site topography is a moderate to steep north-northeast sloping hillside south of Rodeo Creek. Elevations range from approximately 160 feet adjacent to the Rodeo Creek to approximately 300 feet on the south, uphill side of the site.
The site is part of the Franklin Canyon Area and has a General Plan and zoning designation of Franklin Canyon Area/Measure M.
Background. At the October 26, 2021, public hearing, the City Council asked the applicant to clarify details in response to the following draft Conditions of Approval:
Condition of Approval 13: Site Plan, Elevations, Exterior Materials, and Design Elements: The location and elevations of all buildings and structures and the colors and materials shall be in substantial conformance, as determined by the Community Development Director in his or her reasonable discretion, with the City Council approved DRP #20-01 (including submitted color/material boards), VTM #20-01, and Lot Line Adjustment #20-01 and the Governing Ordinances set forth therein. Any request for a minor modification shall be accompanied by plans reflecting the requested modification to the Community Development Director. (PL) Response: Exterior materials have been clarified on each elevation sheet of Exhibit C3-3, Architectural Plan Set. The applicant proposes to use a muted color scheme with pale green siding as the primary color. The color combination is shown on Sheet A1.0. The color scheme is intended to blend in with the site’s existing mature vegetation. The proposed materials and colors would not adversely impact the visual qualities of the area. Accessory buildings, such as the restrooms and trash enclosures, have pitched roofs, and no mechanical equipment is proposed to be mounted on roofs.
The height of all structures is consistent with the Measure M ordinance which allows for a maximum building height of 35 feet. The two-story clubhouse is proposed to be 34 feet tall, and onsite accessory structures range from 9–10 feet in height.
The applicant is proposing 22 tent bungalows, south of the proposed Class A sites (see Exhibit C1-1, Sheet C2). As requested by the Hercules City Council, illustrative elevations of the tent bungalows are shown on Exhibit C3-3, Sheet A4.0, with sample images. Bungalows are proposed in two sizes: 10-feet-wide and 14-feet-wide. Both can accommodate a queen size bed. Bungalows will be elevated above ground on a wood plastic composite deck. The tent body will be made up of canvas walls with mesh fabric for windows and doors. Like a camping tent, the canvas walls can be rolled over the mesh fabric and secured in an open or closed position.
As requested by the City Council, typical Class A and Class B/C RV spaces are shown on Exhibit C1-1, Sheet C-2. Adjacent to the 24-foot-wide roadway with aggregate base, each proposed RV parking stall is 12 feet wide. Class A spaces are 65 feet long with a 2% slope towards the adjacent access road. Class B/C spaces are 50 feet long with a 2% slope towards the adjacent access road. Each RV parking space will have a minimum of 10 feet between the decomposed granite picnic area proposed for each site and the adjacent RV parking space.
The 24 garage stalls for long-term storage of RVs will be constructed from prefabricated steel structures.
A typical entry gate and guardhouse elevation is shown on Sheet L-3 of Exhibit C3-4. The applicant proposes to paint the exterior using the same pale green color as the other project structures.
Condition of Approval 16: Utility Boxes. Prior to the issuance of a building permit, all utility meters, transformers, irrigation control boxes, valves, and similar devices shall be painted and/or landscaped in a manner which is reasonably consistent with the site landscaping and building design or hidden to blend with the surrounding environment to the extent practical. (PL) Response: Utility box design and locations are mandated by PG&E and other service providers. Generally, utility plans are not developed until after project approval. Features will be screened as allowed by the utility providers. Irrigation control boxes and valves will be installed in-ground with a typical green lid. Common utility trench details are shown on Exhibit C3-1, Sheet C5. Utility boxes are proposed interior to the site. Since the existing mature vegetation acts as a natural screen, there will be no visual impacts from the public right-of-way, and thus no other screening (e.g., cyclone fencing) is proposed for utility boxes.
Condition of Approval 18: Electric Vehicle (EV) Parking and Recharge Stations. The number of EV parking spaces in the project shall be as required by the CALGreen Code in effect when building permits are issued. EV parking spaces shall be shown on drawings included with the Building Permit submittal. (PL) Response: As requested by the City Council, a typical example of an electric vehicle charging unit is shown on Sheet C2 of Exhibit C3-2. Eighteen (18) total electric vehicle parking spaces are proposed for the project as follows:
Six (6) EV spaces at the existing parking lot at the entrance of the project site; Two (2) EV spaces near the practice green/driving range; Seven (7) EV space at the new clubhouse and pool area;
One (1) EV space in the Class A RV parking spaces; and
Two (2) EV spaces in the designated Class B/C RV parking spaces.
Condition of Approval 19: Bicycle Parking. Prior to the issuance of a Certificate of Occupancy, the Applicant shall install a minimum number of bicycle lockers and bike racks, equal to no less than 5 percent of vehicle parking spaces (per 2019 CALGreen Standards) near commercial building entrances, in general proximity of the approved Site Plan, and to the reasonable satisfaction of the Community Development Director. (PL, PW) Response: The applicant proposes bicycle racks east of the new clubhouse and at the Class B/C pool site, as shown on Sheets C2 of Exhibit C3-1 and L-3 of Exhibit C3-4, and (per Planning Commission) near the tent bungalows (noted on Sheet L1).
Condition of Approval 20: Signage. Prior to the issuance of building permits, the applicant shall submit a Master Sign Program (MSP) to the Community Development Director for review and approval. At a minimum, the signage plans shall include dimensions, colors, fonts, materials, and locations for the main entrance sign, directional signs, camp site markers, building signs, and any other signs proposed to orient, guide, or direct visitors to the resort. A sign permit will be issued under the approved MSP. Final location of any monument signs shall be coordinated with the Director of Public Works to ensure unobstructed traffic visibility, prior to the issuance of a building permit, in substantial conformity with the MSP, and in accordance with the provisions of Section 13-34.800 of the Municipal Code, “Examples of Signs Permitted and Prohibited.” (PL, PW) Response: The conceptual sign plan is shown on Sheet L-7b of Exhibit C3-4. A frontage-oriented sign is proposed to be located at the entrance. The main entry sign is located on the property before the creek crossing at the same location as the existing rock wall for the Golf Course. Similar to the existing sign, the main entrance sign will consist of two stone bases accompanied with open rail fencing. In response to the Planning Commission’s recommendation, the applicant has changed the 18-inch-high aluminum letters from gold-painted to black. The applicant is conditioned to provide the final font and material selection prior to the issuance of building permits.
Condition of Approval 21: Landscape & Fencing. The final landscape plan and irrigation plan with planting materials and planting plans shall be submitted to the Community Development Director for review and approval concurrent and consistent with the submission of the final grading plan. The Landscape Plan shall use native, drought-resistant, and low maintenance species of plants, trees, and shrubs to reduce the demand for water and gas-powered landscape maintenance equipment. A final tree replacement plan (see below) shall be incorporated as part of an environmental mitigation program and the landscape construction drawings. The final landscape plan shall indicate the type, location, and size of all plants, trees, shrubs, and groundcover materials.
Response: Sheet L-8 of Exhibit C3-5 shows a plant pictorial, and a preliminary plant list is shown on Sheet L-2. Deviation from the proposed plant species presented in the conceptual plan is conditioned to be reviewed and approved by the Community Development Director.
The Franklin Canyon area does not have specific landscape design requirements that apply to the proposed project. However, the City of Hercules Zoning Ordinance does require the Planning Commission to make a finding regarding the general landscape of the proposed project. Section 13-42.500.5 states that the proposed landscaping “…ensure visual relief, to complement buildings and structures, and to provide an attractive environment for the enjoyment of the public.” The landscape design approach for the proposed project effectively integrates the natural and built environments to:
Create a sense of place through distinctive outdoor spaces that are compatible to the natural landscape of the Franklin Canyon area and an integrated pedestrian system; Further ensure the contiguity of nature and protection of the natural environment by removing the non-native and ornamental plant species on the existing golf course and replacing them with native plant and tree species throughout the site; Strengthen the community's natural resources by enhancing and restoring the riparian corridor by reducing the amount of irrigated turf and run-off due to turf irrigation.
A master landscape plan (Sheets L-1 through L-6 of Exhibit C3-4) shows on-site landscaping in the parking lots, the development area around the clubhouse, the playground, and other amenities and typical RV parking areas. As proposed in the draft Conditions of Approval (Exhibit A), final design of these features would be subject to City staff approval, provided the features are reasonably consistent with the examples shown in Exhibit C3.
Parking Lot: As shown on Sheet L-2 of Exhibit C3-4, the proposed project would screen the parking lot from the highway with a combination of large and small evergreen hedges and oak trees, with groupings of native trees and grasses. As an additional protection for Rodeo Creek, landscaping is proposed at the southern limits of the parking lot. A landscaped pedestrian path from the proposed car & horse-trailer parking spaces provides pedestrian and horse protections from the typical vehicle parking spaces.
The clubhouse area (Sheet L-3) proposes perimeter placement of trees, accent grasses, flowering trees, and shrubs that would create a distinctive area from the RV sites. There are two water elements proposed and focal plantings at vehicle waiting areas and corners.
The largest park area is shown on Sheet L-4 and is adjacent to the existing pond and will include the following amenities: two playgrounds separated by age groups, pickleball courts, horseshoe pits, picnic areas, and a dog park with a synthetic lawn.
Native oak trees are proposed along vehicle and pedestrian paths and open spaces. Pedestrian scaled lighting is proposed along the paths connecting the RV sites to other loops and resort amenities, as shown on the typical RV Parking Landscape (Sheet L-5).
Irrigation of the planting areas would be limited by use of drought-tolerant native plant species and high-tech irrigation systems. As a condition of approval, the applicant is required to submit Final Landscaping and Irrigation Plans to both the Planning Department and Public Works Department prior to the issuance of grading permits.
Condition of Approval 22: Tree Replacement Plan. If qualifying trees (per Contra Costa County and the City of Hercules standards) are to be removed, the following replacement ratios shall apply:
1:1 replacement ratio for qualifying native trees (County qualifying tree list as referenced above) greater than or equal to 6.5 inches diameter at breast height (dbh) but less than 12 inches dbh. 2:1 replacement ratio for trees greater than 12 inches but less than 24 inches dbh. Replacement tree species selection should be based on whether the tree is one of the 26 native trees listed by the County or a non-native tree based on the City requirements. A like-for-like replacement is anticipated except for the eucalyptus species. 3:1 replacement ratio for trees greater than 24 inches dbh. Replacement species selection would be a like-for-like replacement except for eucalyptus species.
Response: The Project Site includes a number of mature trees, as defined in Section 4-15.02 of the Hercules Municipal Code, as any living tree with a trunk diameter measuring twelve (12) inches or greater when measured at roughly four and one-half (4-½) feet above the surface of the ground. Mature trees may be removed in conjunction with a development as stated in the Hercules Municipal Code Section 4-15.05 or if determined to be diseased.
Many of the existing trees on site defined as “mature” are proposed for removal to allow for construction of the Project. These are identified in the Tree Replacement Schedule with replacement ratios are shown on Sheets L-11 through L-16 of Exhibit C3-5.
A tree survey conducted by ESR, Inc., dated August 1, 2018, was submitted to staff as part of the application for the proposed project. In addition to the City of Hercules tree removal standard, the report also looked at the Contra Costa County tree removal permit requirements. 279 trees were assessed during the surveying effort, of which 260 qualified as a County- or City-protected tree.
The report recommends a:
1:1 replacement ratio for qualifying native trees (County qualifying tree list as referenced above) greater than or equal to 6.5 inches diameter at breast height (dbh) but less than 12 inches dbh. 2:1 replacement ratio for trees greater than 12 inches but less than 24 inches dbh. Replacement tree species selection should be based on whether the tree is one of the 26 native trees listed by the County or a non-native tree based on the City requirements. A like-for-like replacement is anticipated except for the eucalyptus species. 3:1 replacement ratio for trees greater than 24 inches dbh. Replacement species selection would be a like-for-like replacement except for Eucalyptus species.
Condition of Approval 23: Landscape Installation. Prior to issuance of a Certificate of Occupancy, the project landscape architect shall verify in writing that the landscaping has been installed in accordance with the approved final landscape plan in all respects, including with respect to size, number, and species of plants. (PL) Response: The applicant is required to provide a written verification from a licensed landscaped architect that landscaping has been in accordance with the approved final landscape plan. The condition has been modified to require a final landscape plan be approved by the Community Development Director prior to submittal of the landscape installation verification. If the Community Development Director determines there is significant deviation from the approved conceptual landscape plan approved by the City Council, the final landscape plan shall be brought before the Planning Commission for approval.
Condition of Approval 26: Walkway Requirements. All on-site sidewalks and paths shall be at least four (4) feet wide and shall comply with accessibility standards for individuals with disabilities under the Americans with Disabilities Act (ADA).
Response: As requested by the City Council, the applicant resubmitted a site plan that shows pedestrian paths to the proposed 22 tent bungalows, shown on Sheet C2 of Exhibit C3-1. Walking paths are proposed to be 5 feet wide. Locations of the pedestrian-scaled lighting along the paths are shown on Sheets L-2 through L-5 of Exhibit C3-4; the proposed pathway lighting is shown on Sheet L-9 of Exhibit C3-5.
Condition of Approval 30: Roof Equipment. Before issuance of a building permit, Applicant shall demonstrate that all roof-mounted mechanical equipment, including but not limited to heating, ventilation, and air conditioning equipment, shall be recessed, grouped, and/or screened from view on adjoining property and public streets subject to reasonable approval of the Community Development Director.
Response: No roof equipment is proposed. The condition has been modified as necessary.
CEQA INITIAL STUDY AND DETERMINATION:
An Initial Study and Mitigated Negative Declaration (IS #20-01, dated March 2021) was prepared pursuant to Sections 15063 and 15168 of the California Environmental Quality Act (“CEQA”) Guidelines to determine the anticipated impacts resulting from the level of development for the proposed RV Resort project. The Initial Study found and determined that the proposed project components would have a less than significant impact to the environment with incorporation of mitigation measures defined in the IS/MND and the Mitigation Monitoring & Reporting Program. Therefore, potential impacts of the current Project have been fully addressed and mitigated and no additional CEQA documentation is required.
Technical reports prepared in support of the Initial Study have been peer reviewed and updated with respect to the RV Resort project currently proposed. The Technical Reports addressed in the Initial Study include: 1) Air Quality and Greenhouse Gas Assessments; 2) Health Risk Assessment; 3) Biological Resources; 4) Wetland Delineation; 5) Phase I Hazardous Materials Assessments; 6) Environmental Noise Assessments (construction and operational noise); and 7) Traffic Analysis including a Vehicle Miles Travel analysis due to the change in the use.
ATTACHMENTS & EXHIBITS
Attachment 1. Draft Resolution recommending that the City Council approve Initial Study #2001, Lot Line Adjustment #20-01, Vesting Tentative Map #20-01, and Design Review Permit #20-01, subject to Conditions of Approval Exhibit A. Conditions of Approval (draft)
Exhibit B. Mitigation Monitoring and Reporting Program
Exhibit C1. Lot Line Adjustment
Exhibit C2. Vesting Tentative Map
Exhibit C3-1. Franklin Canyon RV Resort Civil Plans
Exhibit C3-2. Franklin Canyon RV Resort Civil Plans (Wastewater) Exhibit C3-3. Design Review Plans, including Architectural Elevations Exhibit C3-4. Conceptual Landscaping Plans (part 1)
Exhibit C3-5. Conceptual Landscaping Plans (part 2)
Exhibit D. Findings with Facts
Attachment 2. Franklin Canyon RV Resort Project Initial Study/Mitigated Negative Declaration (March 2021) Attachment 2a. Responses to Public Comments on the IS/MND Attachment 3. Tree Survey (August 2018)
Attachment 4. Visual Simulations
Attachment 5. Zoning Clearance for Franklin Canyon RV Resort Project (June 2019) Attachment 6. Franklin Canyon–John Muir Land Trust Memorandum of Understanding Attachment 7. Public Comments
Attachment 8. San Francisco Bay Regional Water Quality Control Board letter regarding Franklin Canyon RV Resort Wastewater Treatment System & Water Discharge (January 27, 2022) Links to Prior Public Hearings for the Project
September 20, 2021 Planning Commission Staff Report and Attachments October 4, 2021 Planning Commission Staff Report and Attachments October 26, 2021 City Council Staff Report and Attachments January 18, 2022 Planning Commission Staff Report and Attachments Franklin Canyon RV Resort Project Page 3 of 9
City Council Meeting – February 8, 2022