CITY OF PACIFICA
CITY COUNCIL AGENDA
Council Chambers
2212 Beach Blvd
Pacifica, CA 94044
Mayor Tygarjas Bigstyck
Mayor pro Tem Sue Vaterlaus
Councilmember Sue Beckmeyer
Councilmember Mary Bier
Councilmember Christine Boles
City Council Study Session 1 November 13, 2023
SPECIAL MEETING – STUDY SESSION
November 13, 2023 (MONDAY) – 7:00 PM
www.cityofpacifica.org
NOTE: The Agendas for the November 13, 2023 City Council meeting will be published in two parts. This Agenda, published on November 6, is for a Special Study Session to begin at 7:00PM. A separate Agenda Packet for the Special and Regular Meeting at an earlier start time will be published on November 8.
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Alternative Ways to Observe and Participate in the Meeting:
The primary method for observing and participating in the meeting is in-person at the meeting location published in the meeting agenda. However, there are alternative ways to observe and participate:
• Join Zoom Webinar: https://pacifica-gov.zoom.us/j/81156158241 • Watch on TV on Comcast channel 26
• Watch a Live Stream of the meeting by following https://www.cityofpacifica.org/LiveStream or www.pacificcoast.tv
• Live Remote Public Comments (offered on a pilot basis):
• Join Zoom Webinar: https://pacifica-gov.zoom.us/j/81156158241 • OR Dial-in: 1-669-900-6833 | Webinar ID: 811 5615 8241 o Press * 9 to raise your hand to request to speak.
o Press * 6 to unmute when called upon to speak by the last 4-digits of your phone #. • When the Mayor announces the Agenda Item on which you would like to comment, raise your hand in Zoom. You will be called upon my screenname or last 4-digits of phone number if dialing in. Please mute any background sound and state your full name at the start of your comment.
Please note that Alternative platforms for participation are subject to underlying technology functionality and may be modified or interrupted at any time without notice. • For Special Meetings, Public Comments are limited to Items on the Agenda only. • Public meetings are a limited public forum, meaning that there are rules for commenting at these meetings. Any person wishing to address the City shall be recognized by the Mayor. Comments on agendized items must relate to that specific item. If comments do not relate to the agenda item(s), the City will provide you with an initial warning to stay within the subject matter jurisdiction of the City or on topic. If the warning is not followed, the Mayor will direct City staff to cut off the microphone.
City Council Study Session 2 November 13, 2023
• Written Public Comments:
BEFORE THE MEETING: Written public comments may be submitted in advance by 12:00 p.m. on the meeting date by email to: [email protected]. Written public comments submitted by email should adhere to the following:
• Specify “Study Session 11/13/2023 - LCLUP” in the Subject Line • Include the submitter’s full name
Written public comments received by 12:00 p.m. on the meeting date will be provided in their entirety to the City Council and posted to the City’s website prior to the meeting but will not be read verbally at the meeting.
AT THE MEETING: Materials in writing provided at the meeting should provide seven (7) copies to provide for each Councilmember, City Clerk and City staff. 7:00 PM - OPEN STUDY SESSION
Roll Call
CONSIDERATION
1. Study session to hear an informational presentation and respond to questions regarding the California Coastal Commission staff’s March 8, 2023, suggested modifications to the City’s Draft Local Coastal Land Use Plan (LCLUP).
PROPOSED ACTION: Receive an informational presentation and respond to City Council questions regarding the California Coastal Commission (CCC) staff’s March 8, 2023, suggested modifications to the City’s Certification Draft Local Coastal Land Use Plan (LCLUP) so the Council and the community clearly understand the CCC staff suggested modifications in advance of the next community meeting.
ADJOURN
NOTICE: If you challenge a city's zoning, planning or other decision in court, you may be limited to raising only those issues you or someone else raised at the public hearing described in this notice, or in written correspondence delivered to the City Council at, or prior to, the public hearing. Judicial review of any city administrative decision may be had only if a petition is filed with the court not later than the 90th day following the date upon which the decision becomes final. Judicial review of environmental determinations may be subject to a shorter time period for litigation, in certain cases 30 days following the date of the final decision The City of Pacifica will provide assistance for disabled citizens upon at least 24 hours advance notice to the City Manager’s Office (650) 738-7301, or send request via email to:
[email protected] if you need sign language assistance or written material printed in a larger font or taped, advance notice is necessary. All meeting rooms are accessible to the disabled.
The Pacifica Municipal Code is available online at the City’s website (www.cityofpacifica.org/municode);
HOW TO OBTAIN CITY COUNCIL AGENDAS
Posted agendas:
Agendas are posted no later than Friday prior to the City Council meeting date, at the entrance to the City Hall location at the Pacifica Community Center, 540 Crespi Drive.
View on the Internet:
Follow the link to Council agenda, at www.cityofpacifica.org City Council Study Session 3 November 13, 2023
E-mail subscription:
Send a request to Sarah Coffey, at [email protected] City Clerk’s Office/City Manager’s Office
City Hall, 540 Crespi Drive
Council meetings:
Agendas are available at the City Council meeting
HOW TO REACH YOUR GOVERNMENT OFFICIALS
• Governor Gavin Newsom, State Capitol Building, Sacramento CA 95814 (916) 445-2841 • State Senator Josh Becker, 1528 So. El Camino Real, Suite 303, San Mateo CA 94402 (650) 212-3313 • Assembly Member Marc Berman, 721 Colorado Ave, Suite 101, Palo Alto CA 94303 (650) 324-0224 • Congresswoman Anna Eshoo, 698 Emerson Street, Palo Alto CA 94301 (650) 323-2984 • Senator Alex Padilla, B03 Russell Senate Office Building, Washington DC 20510 (202) 224-3553 • Senator Laphonza Butler, SD-G10 Dirksen Senate Office Building, Washington DC 20510 (202) 224-3841 • President Joseph R. Biden, 1600 Pennsylvania Ave. NW, Washington DC 20500
CITY COUNCIL
• Mayor Tygarjas Bigstyck, tbigstyck@ pacifica.gov
• Mayor pro Tem Sue Vaterlaus, [email protected]
• Councilmember Sue Beckmeyer, [email protected]
• Councilmember Mary Bier, [email protected]
• Councilmember Christine Boles, [email protected]
CITY OF PACIFICA
COUNCIL AGENDA SUMMARY REPORT
11/13/2023
1 SUBJECT:
Study session to hear an informational presentation and respond to questions regarding the California Coastal Commission staff’s March 8, 2023, suggested modifications to the City’s Draft Local Coastal Land Use Plan (LCLUP).
RECOMMENDED ACTION:
Receive an informational presentation and respond to City Council questions regarding the California Coastal Commission staff’s March 8, 2023, suggested modifications to the City’s Certification Draft Local Coastal Land Use Plan (LCLUP) so the Council and the community clearly understand the CCC staff suggested modifications in advance of the next community meeting.
STAFF CONTACT:
Christian Murdock, AICP, Planning Director
(650) 738-7341
[email protected]
Stefanie Cervantes, AICP, Senior Planner
(650) 738-7341
[email protected]
BACKGROUND/DISCUSSION:
In February 2020, City Council approved the Certification Draft Local Coastal Land Use Plan (LCLUP), and directed the City Manager to Transmit the Certification Draft LCLUP to the California Coastal Commission (CCC) for certification. Additional background information including the Certification Draft LCLUP document are available on the Project Documents page of the Plan Pacifica website1.
The purpose of this study session is to take the first of several final steps to complete the CCC certification process for the previously Council-approved Certification Draft LCLUP. Importantly, the three-meeting process outlined in this report is intended to conclude the comprehensive LCLUP update process that started more than 10 years ago. It involves concluding the LCLUP update process based on the structure and policy emphasis approved by the City Council in the Certification Draft adopted in February 2020, with consideration of potential modifications to certain policies as an alternative to the CCC staff’s suggested modifications from March 2023.
This process is not a reconsideration of the structure and policy emphasis that was approved in the Certification Draft LCLUP. A more extensive revisiting of the underlying approach to the LCLUP, including additional technical analyses, is beyond the scope of the process currently underway. Any such more extensive process would be a significant workplan item, would require direction by a majority of the City Council, and would not allow the City to seek CCC certification of the LCLUP within the currently anticipated June 2024 timeline.
Staff submitted the Certification Draft LCLUP to the CCC in June 2020. Between the years of 2020-2022, City and CCC staffs exchanged several rounds of information in response to CCC staff requests. The information requested by CCC staff was required to address that agency’s 1 Available at https://www.planpacifica.org.
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administrative filing requirements before the City’s application could advance to a point where CCC staff could provide a substantive review of policy provisions. In August 2022, the CCC finally accepted the City’s Certification Draft LCLUP for filing. On December 16, 2022, the CCC took action to extend the deadline by one year, as authorized by Public Resources Code section 30517. The CCC’s action extended the deadline to December 22, 2023. Failure to act within the statutory deadline results in an LCP amendment being deemed approved by the CCC.
In late February 2023, the City received notice the CCC would consider the City’s Certification Draft LCLUP at the March 8, 2023, CCC meeting. The CCC staff report for the item included CCC staff’s final recommendation, which included many suggested modifications to the City’s submittal2. The City requested a continuance of the March 8th hearing date to allow an opportunity to review and consider the CCC staff’s recommendations. Since March, City staff has met multiple times with CCC staff to gain a better understanding of the suggested modifications in order to develop a comprehensive analysis and explore potential revisions for future City Council consideration.
On October 9, 2023, the City Council directed the City Manager to incorporate 2040 General Plan consistency revisions into the Certification Draft LCLUP to form the Revised Certification Draft LCLUP. City Council also adopted the Revised Certification Draft LCLUP, and approved the transmittal of the Revised Certification Draft LCLUP to the CCC for certification. This resubmittal of the Revised Certification Draft LCLUP will eliminate the December 22, 2023 deadline and allow the CCC additional time to conduct a hearing on the City’s revised application. Staff anticipates a CCC certification hearing on the revised application will occur no later than June 2024. The City Council on October 9 also directed a three-meeting community engagement plan, as follows:
• November 13, 2023 - Meeting #1: Inform the Council and community on CCC staff’s suggested modifications to the Certification Draft LCLUP from March 2023. • Tentatively scheduled early December 2023 - Meeting #2: Provide direction on potential alternative modifications to those presented by CCC staff based on discussions between City staff and CCC staff.
• Tentatively scheduled mid-late January 2024 - Meeting #3: City Council consideration and approval of a comment letter to the CCC requesting revisions to the CCC staff’s suggested modifications from March 2023
This three meeting process is intended to bring the Council and community to a point where a decision is made on whether to submit a comment letter to the CCC in response to CCC staff’s comments from March 2023. This is a necessary step to conclude the comprehensive LCLUP update process that was started in 2009 and most recently approved by City Council in February 2020 (with a revised LCLUP to incorporate conforming General Plan amendments approved in October 2023). Staff’s assessment is that the CCC staff’s suggested modifications from March 2023, if certified by the CCC, would likely not be adopted by the City Council as required by the Coastal Act in order to take effect. Therefore, eventual consideration of a comment letter to propose alternative modifications to the CCC that may be acceptable to the CCC and the City Council is the best and most expedient way for the City to seek CCC certification of an LCLUP amendment that the City Council is likely to adopt following CCC consideration.
Until a new LCLUP is certified by the CCC and adopted by City Council as revised, the City’s existing 1980 LCLUP will remain in effect. The 1980 LCLUP is no longer adequate to meet the 2 Available under Agenda Item No. 14.a for the meeting on Wednesday, March 8, 2023, at https://www.coastal.ca.gov/meetings/agenda/#/2023/3.
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City’s various needs for a modern, comprehensive land use plan for the Coastal Zone (roughly 15 percent of Pacifica’s land area). The 1980 LCLUP fails to prioritize coastal-dependent and coastal-related land uses and does not effectively address coastal erosion, sea level rise, and natural hazards. It is not consistent with the new 2040 General Plan and relying on it for future development will create conflicts that will present practical challenges for the City and permit applicants. For these reasons and others, certification of an updated LCLUP is in the City’s best interest and accomplishing certification will require consideration of potential alternatives to CCC staff’s suggested modifications.
California Coastal Commission Staff’s Suggested Modifications (March 2023) This initial meeting and report focus on the informational component and provide more detail regarding CCC staff’s suggested modifications to the City’s Certification Draft LCLUP. The suggested modifications in CCC staff’s March 8, 2023, staff report would change many components of the City’s June 2020 Certification Draft LCLUP (Attachment A). Some of the changes would be relatively minor, while others may be more impactful. Staff has prepared a summary table with all suggested modifications (Attachment B). Attachment B contains several columns with a variety of information to assist when reviewing the suggested modifications. The first three columns (Chapter, Page Number, and Modification Number) are used to locate the suggested modification in Attachment A. Please note that the Page Number is the page number as listed on the bottom of each sheet. The column labeled City’s Certification Draft provides the language as proposed by the City. The following column, CCC Suggested Modification, provides the text as proposed in CCC staff’s March 8th report (Attachment A). The last column, Brief Summary, provides staff’s assessment on what the suggested modification entails and why it is important that the City discuss it at the future community roundtable.
In staff’s assessment, many of the suggested modifications by CCC staff in Attachment B do not alter the City’s policy position and are minor in nature. For these types of suggested modifications, the City Manager recommends that they could be accepted by the City as proposed or with minor revisions. In Attachment B, these modifications include the following categories: Typo Correction, Clarification, Generalizes language, Coastal Act provision, Deletes text, New text, and Reorganization of Document. Other modifications have brief summaries of how the suggested modification would amend the text, and whether in staff’s assessment the suggested modification is minor and does not warrant further discussion. Other suggested modifications do alter the City’s vision for the future of the Coastal Zone in Pacifica and warrant further consideration by City Council. These CCC staff suggested modifications are indicated by the category “To be discussed” and are highlighted in green. As indicated above, this first community meeting is intended to inform and respond to any questions the Council may have about CCC staff’s suggested modifications.
Key Issues to Highlight
CCC staff’s suggested modifications include over 125 comments. More than half of the comments address provisions in Chapter 6: Coastal Resiliency. Other comment groupings address Glossary definitions and environmental protection policies. Some notable examples in the suggested modifications include (See Attachment B):
• Amendments to Chapter 4 policies include new categories of Environmentally Sensitive Habitat Areas (ESHA) and formalize the application of buffers around sensitive habitat, which would broaden applicability and reduce developable area of some properties (development is generally prohibited within ESHA or ESHA buffers). • Revision to the definition of Substantial Exterior Structural Modification in a manner that would include more types of routine property improvements, which would subject those 1 Packet Pg. 6
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November 13, 2023
projects to policies in Chapter 6, including relocation or removal of development under certain circumstances.
• Expansion of circumstances in which Chapter 6 policies apply, such as applicability to the Coastal Vulnerability Zones rather than only shoreline (i.e., oceanfront) development, which would broaden applicability to more private and public properties. • Application of Chapter 6 policies to routine development types described in Chapter 3, such as public infrastructure maintenance/replacement, trail system expansion, and roadway retrofits, which could require consideration of their relocation or removal. • Expansion of City responsibilities, including added costs, for evaluation of infrastructure relocation opportunities and shoreline monitoring.
Comments on Chapter 6: Coastal Resiliency are most significant in terms of their relationship to and impact on existing and future development in Pacifica. As listed above, suggested modifications will impact a broader number of properties and include additional project types than previously intended in the Certification Draft LCLUP. These suggested modifications will have direct impacts to the City, private property owners, and residents. Suggested modifications would specifically affect the City’s existing and potential future shoreline protection structures, which protect critical public infrastructure including roads and utilities, provide lateral access (i.e., public trails) to the coast including for persons with disabilities, protect public access and parking areas, protect important visitor-serving and tax generating commercial businesses, and finally, protect existing residential areas including single- and multi-family residential housing.
Maintenance of existing shoreline protection structures is crucial to protect existing neighborhoods from coastal erosion and other coastal hazards. Additionally, implementation of suggested modifications related to existing structures would require property owners to take on additional, unanticipated costs triggered by otherwise typical projects such as additions on properties throughout the City, which could lead to disinvestment in these properties. Reduced investment in turn could lead to deteriorated housing and blighted conditions in some of Pacifica’s most visible and frequently visited neighborhoods.
While staff does not believe the City Council would adopt the LCLUP as modified by CCC staff’s suggested modifications, staff does believe additional modifications could be approved by the CCC. Following this informational first meeting, staff will continue preparations for the next meeting which will provide an opportunity for Council to listen to community discussions of potential alternative modifications in a small-group roundtable format (Meeting #2). Finally, Council will consider sending a comment letter to CCC to propose alternative modifications (Meeting #3).
While staff does not believe the City Council would adopt the LCLUP as modified by CCC staff’s suggested modifications, staff does believe additional modifications could be approved by the CCC if proposed by the City sufficiently in advance of the future LCLUP certification hearing. In order to address CCC staff’s suggested modifications, the City will prepare a comment letter to submit to the CCC as part of their consideration of the Revised Certification Draft LCLUP, when it is anticipated to be considered in June, 2024. The comment letter will be the subject of Meeting #3. It is staff’s assessment that it is important for the Council to consider submitting such a comment letter. Adoption of an updated LCLUP will have many benefits for the City, including among them:
• Updated maps and other information to inform decision making. • Enhanced environmental protections to benefit coastal resources. • Enhanced economic development and more housing, including affordable housing, based on updated land use designations.
• Aligned policies between the Coastal Zone and 2040 General Plan. 1 Packet Pg. 7
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November 13, 2023
In the absence of an LCLUP certified by the CCC and adopted by the City Council, the 1980 LCLUP will remain in effect for the foreseeable future. Staff estimates that any significant deviation from the process currently underway to finalize the 2020 Certification Draft LCLUP (with 2040 General Plan edits for consistency) would require multiple years before another opportunity to achieve CCC certification of a different comprehensive LCLUP update would be available.
Future Community Engagement Meetings
As previously mentioned, this study session is the first of three community engagement meetings. The next meeting, Meeting #2, will be a community roundtable discussion tentatively scheduled for early December 2023. The purpose of the second meeting will be to allow the public an opportunity to discuss potential alternative modifications to those presented by CCC staff. City staff has secured a professional facilitation service to allow for small-group conversations that will allow a comprehensive and detailed discussion that takes into account all viewpoints.
Meeting #3 will be a City Council consideration item to discuss submission of a comment letter from the City to the CCC requesting revisions to the CCC staff's March 2023 suggested modifications. The meeting is tentatively scheduled for mid- to late-January 2024 following input from both the community and Council received in Meeting #2.
All meetings will be advertised via social media and the Plan Pacifica email list. Staff anticipates that materials to be discussed at both Meetings #2 & #3 will be published a week prior to the meeting dates.
ALTERNATIVE ACTION:
This is a study session and staff is requesting input from the City Council.
RELATION TO CITY COUNCIL GOALS AND WORK PLAN:
The Local Coastal Land Use Plan is consistent with the following item(s) in the Council-adopted Strategic Plan and Priority Work Plan for FY 2023-24:
• Goal 4: Pursue climate change adaptation and mitigation. o Strategy C: Update Pacifica’s Local Coastal Plan and improve communications and collaboration with the California Coastal Commission.
FISCAL IMPACT:
There is no direct fiscal impact from the study session.
ORIGINATED BY:
Planning Department
ATTACHMENT LIST:
Attachment A - California Coastal Commission Suggested Modifications Exhibit (PDF) Attachment B - Summary Table With All Suggested Modifications (DOCX) 1 Packet Pg. 8
STATE OF CALIFORNIA — NATURAL RESOURCES AGENCY GAVIN NEWSOM, GOVERNOR
CALIFORNIA COASTAL COMMISSION NORTH CENTRAL COAST DISTRICT 455 MARKET STREET, SUITE 300
SAN FRANCISCO, CA 94105
PHONE: (415) 904-5260
FAX: (415) 904-5400
WEB: WWW.COASTAL.CA.GOV
W14a
LCP-2-PAC-20-0036-1 (City of Pacifica LUP Update)
MARCH 8, 2023
EXHIBITS
Table of Contents
Exhibit 1 – City Location Map
Exhibit 2 – Proposed LUP Text & Suggested Modifications Exhibit 3 – Proposed LUP Maps & Figures
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) EXHIBIT 1 – CITY LOCATION MAP
City of Pacifica, CA
City of Pacifica
Pacific Ocean
SF Bay
San Francisco
Golden Gate Bridge
Exhibit 1
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
GAT EWAY DR
FIRECREST AVE
INVERNESS DR
MONTEREY RD
PALMETTO AVE
MANOR DR
SKYLINE BLVD
GLENCOURT
MONTEREY RD
VEA OTTEMLAP
EDGEMAR DR
MILLER AVE
AVALON DR
OCEANA BLVD
PALOMA AVE
TALBOT AVE
BRADFORD WAY
SHARP PARK RD
MOANA WAY
LUNDY WAY
FAIRWAY DR RIDGEWAY DR
BEACH BLVD
REINA DEL MAR AVE
ROCKA WAY BEACH AVE
TERRANOVA BLVD
EVERGLADES DR
ODDSTAD BLVD
CRESPI DR
LERIDA WAY
CRESPI DR
SEVILLE DR
MANZANITA
D
A
R
LICANTE
LIN
DR
DA MAR BLVD
ROSITA RD
ROSITA RD
ADOBE RD
PERALTA RD
DE SOLO
LINDA MAR BLVD
FASSLER AVE
PARK LINCOLN GRAND AVE
WESTBOROUGH
KING DR
SKYLINE BLVD
MILAGRA DR
HICKEY BLVD
ESPLANADE AVE
MANOR DR
ROBERTS RD
SHARP PA RK RD
SEASIDE DR
CLARENDON RD
Pac c
Ocean
Devil’s Slide Tunnel ESPLANADE AVE VEA OTTEMLAP DVLB HCAEB
MANOR DR
AVALON DR
MONTEREY RD
PALMETTO AVE
SHOREVIEW AVE
SALADA AVE
LINDA
SANTA ROSA AVE
MONTECITO AVE
CLARENDON RD
VEA OTTEMLAP
CARMEL AVE
PALOMA AVE
PACIFIC AVE
FRANCISCO BLVD
SAN JOSE AVE
SANTA MARIA AVE
GRAND AVE
DANMANN
HALLING WAY
SHELTER COVE
STANLEY AVE
KENT RD
OLYMPIAN WAY
STERLING AVE
LIVINGSTON AVE
SAN PEDRO AVE
Local Coastal
Land Use Plan
February 2020
City of Pacifica
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Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
TABLE OF CONTENTS
1 Introduction .......................................................................................... 1-1
1.1 Purpose of the Local Coastal Land Use Plan .............................................. 1-2
1.2 Planning Context.......................................................................................... 1-4
1.3 Local Coastal Land Use Plan Requirements ............................................... 1-4
1.4 Relationship to Other Plans and Regulations .............................................. 1-5
1.5 Guide to Using This Document .................................................................... 1-6
1.6 Plan Administration ...................................................................................... 1-8 2 Land Use and Development ................................................................ 2-1
2.1 Coastal Act Framework................................................................................ 2-2
2.2 Current Land Use Pattern ............................................................................ 2-3
2.3 Land Use Framework................................................................................... 2-6
2.4 Coastal Development Priorities.................................................................. 2-14
2.5 Development Capacity and Adequacy of Public Services ......................... 2-29 3 Public Access and Recreation.............................................................. 3-1
3.1 Coastal Act Framework................................................................................ 3-2
3.2 Coastal Access ............................................................................................ 3-2
3.3 Open Space and Recreation...................................................................... 3-12
3.4 Trail System ............................................................................................... 3-20
3.5 Bicycle and Pedestrian Network ................................................................ 3-25
3.6 Roadway Network and Planned Improvements......................................... 3-30
3.7 Public Transportation ................................................................................. 3-38
3.8 Parking ....................................................................................................... 3-42
3.9 Environmental Justice................................................................................ 3-44 4 Environmental and Scenic Resources................................................. 4-1
4.1 Coastal Act Framework................................................................................ 4-2
4.2 Hydrology and Water Quality ....................................................................... 4-3
4.3 Biological Resources ................................................................................. 4-12
4.4 Agriculture, Forestry and Fishing ............................................................... 4-26 Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
4.5 Cultural Resources .................................................................................... 4-28
4.6 Scenic and Visual Qualities ....................................................................... 4-30 5 Natural Hazards.................................................................................... 5-1
5.1 Coastal Act Framework................................................................................ 5-2
5.2 Seismic and Geologic Hazards.................................................................... 5-2
5.3 Flooding ..................................................................................................... 5-13
5.4 Fire Hazards .............................................................................................. 5-18 6 Coastal Resilience………………………………………………………… 6-1
6.1 Coastal Act Framework................................................................................ 6-2
6.2 Sea Level Rise Key Findings ....................................................................... 6-3
6.3 Preparation of Policies ................................................................................. 6-4
6.4 General Policies......................................................................................... 6-12
6.5 Coastal Resilience Policies........................................................................ 6-13
6.6 Sub-Area Policies and Programs............................................................... 6-15
6.7 New Shoreline Development Standard Policies ........................................ 6-25
6.8 Shoreline Protection Structure Standard Policies ...................................... 6-28
6.9 Coastal Flooding and Other Hazard Standard Policies ............................. 6-30 A Policies in Chapter 3 of the California Coastal Act.......................... A-1 B Coastal Vulnerability Zone Maps ........................................................ B-1 References ..................................................................................................................... R-1 Glossary ..................................................................................................................... G-1 Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
LIST OF FIGURES
Figure 1-1: Pacifica and the Pacifica Coastal Zone....................................................................... 1-3 Figure 2-1: Current Land Use Distribution in the Coastal Zone............................................. 2-4 Figure 2-2: Existing Land Use in the Coastal Zone...................................................................... 2-5 Figure 2-3: Land Use Diagram .......................................................................................................... 2-9 Figure 2-4: Sub-Areas and Specific Sites....................................................................................... 2-16 Figure 2-5: Pacifica Coastal Zone, North..................................................................................... 2-19 Figure 2-6: Pacifica Coastal Zone, Central .................................................................................. 2-21 Figure 2-7: Pacifica Coastal Zone, South...................................................................................... 2-24 Figure 3-1: Coastal Access................................................................................................................. 3-4 Figure 3-2: Parks and Open Space System................................................................................... 3-15 Figure 3-3: Trail System.................................................................................................................... 3-22 Figure 3-4: Bicycle Network ........................................................................................................... 3-27 Figure 3-5: Roadway Network and Planned Improvements.................................................... 3-32 Figure 3-6: Transit Routes and Facilities ...................................................................................... 3-39 Figure 4-1: Hydrology ......................................................................................................................... 4-5 Figure 4-2: Vegetation ....................................................................................................................... 4-17 Figure 4-3: Potential Environmentally Sensitive Habitat Areas ............................................... 4-20 Figure 4-4: Visual Resources........................................................................................................... 4-32 Figure 5-1: Liquefaction and Fault Lines......................................................................................... 5-5 Figure 5-2: Slope Failure and Shoreline Protection Structures................................................. 5-8 Figure 5-3: Flood Zones................................................................................................................... 5-15 Figure 5-4: Fire Hazards................................................................................................................... 5-20 Figure 6-1: Coastal Resilience Subareas......................................................................................... 6-7 Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
LIST OF TABLES
Table 1-1: Correspondence Between Coastal Zone Chapters and General Plan Elements........................................................................................... 1-7 Table 2-1: Land Use Classifications and Density and Intensity Standards........................... 2-12 Table 2-2: Residential Development Capacity in the Coastal Zone Under the Local Coastal Land Use Plan.................................................................. 2-31 Table 2-3: Non-Residential Development Capacity in the Coastal Zone Under the Local Coastal Land Use Plan.................................................................. 2-32 Table 3-1: Coastal Access Points.................................................................................................... 3-6 Table 3-2: Regional Parks and Beaches in the Coastal Zone ................................................. 3-13 Table 3-3: Mode Priorities by Roadway Type ........................................................................... 3-31 Table 3-4: Definition of Multi-modal Level of Service Indicators.......................................... 3-33 Table 3-5: Beach Visitor Parking ................................................................................................... 3-42 Table 6-1: Proposed Future Sea Level Rise (SLR) Amounts for Various Scenarios with Associated Probability of Occurrence ........................... 6-5 Table 6-2: Summary of Methods and Data Sources for Economic Analysis....................... 6-10 Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) 1 INTRODUCTION
The Pacifica 2040 Local Coastal Land Use Plan (LCLUP) is a policy document for the long-range development of the portion of the City of Pacifica within the Coastal Zone. The Coastal Zone includes all land west of State Route 1, as well as Shelldance Nursery and some land south of City limits (see Figure 1-1, City of Pacifica and Coastal Zone). The LCLUP is an essential component of the City’s Local Coastal Program as required by the California Coastal Act. The LCLUP has been developed in tandem with the General Plan, which provides the direction for the future growth of the City, and articulates a vision of what Pacifica aspires to be.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
1.1 PURPOSE OF THE LOCAL COASTAL LAND USE PLAN
The California Coastal Act requires every city and county lying partly or wholly within the Coastal Zone to prepare a Local Coastal Program (LCP). The LCP consists of two parts: a local coastal land use plan or plans, which specify the intended uses of land within the Coastal Zone; and, an implementation plan comprised of the zoning ordinances; zoning district maps; and other actions which taken together implement the local coastal land use plan and Coastal Act provisions. These provisions seek to ensure that public access to and along the shoreline is maintained; that water quality, marine life, and environmentally sensitive habitat areas are protected; and that coastal visual resources and special communities are preserved. The Coastal Act establishes certain land use priorities within the Coastal Zone: recreation and visitor-serving uses, fishing, boating, and other coastal-dependent uses, and public works and industrial facilities needed to support priority uses. Other resource-based uses are also prioritized by the Coastal Act.
The Coastal Act is implemented through a partnership between the California Coastal Commission and local counties and cities, including Pacifica. By certifying an LCP, the Coastal Commission grants authority to the local jurisdiction to issue coastal development permits that are required for nearly all types of development1 in the Coastal Zone. The LCLUP is the first and primary element of the City’s LCP. The LCLUP is consistent with the Coastal Act and will serve as the standard of review for the City to update its zoning code and any other implementing tools needed in the Coastal Zone, and apply to the Coastal Commission for recertification of the LCP.
The City of Pacifica’s previous LCLUP was certified in March 1980, and included two areas of deferred certification: Shelldance Nursery and the Quarry Site. The Coastal Commission retained permit-issuing authority in these deferred certification areas during the term of the prior LCLUP. The City has obtained certification of the Shelldance Nursery and Quarry Site in this LCLUP. The City’s certified Implementation Plan dates to June 1994.
Why Update Now?
The City of Pacifica last comprehensively updated its General Plan and LCLUP in 1980. In the nearly 40 years since then, many of its goals have been carried out, including a zoning code with regulations to protect slopes and preserve open space, and the revitalization of the Rockaway Beach area. Many issues facing Pacifica are enduring but the legal environment governing land use, environmental preservation, housing, climate change adaptation and resiliency, and other planning issues has changed. New priorities have emerged with a new generation of Pacifica residents and stakeholders. The General Plan and LCLUP update will provide for a comprehensive assessment of current conditions, and allow today’s residents to express a vision for the future.
1 See Glossary for Coastal Act definition of “development.” Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 1
-1: Pacifica and the Pacifica Coastal Zone
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
1.2 PLANNING CONTEXT
Regional Location
Pacifica is within the San Francisco-Oakland-San Jose metropolitan area, and at its northern end is just 10 miles from downtown San Francisco. The cities of Daly City, South San Francisco, and San Bruno border the City on the north and east, and include urban development up to the City’s borders. Much of the land to the southeast and south is preserved as units of the Golden Gate National Recreation Area, State and County parks, and the San Francisco watershed, and rural and agricultural land is prevalent to the south. The Pacific Ocean borders Pacifica to the west. Access to Pacifica is primarily via State Route 1 (SR 1, or Coast Highway) and State Route 35 (SR 35, or Skyline Boulevard).
Historic Development
Pacifica remained a mainly agricultural and undeveloped area until the construction of the Ocean Shore Railroad in 1905 stimulated development of small coastside communities including Edgemar, Vallemar, Sharp Park, Pedro Point, and Rockaway Beach. These communities, together with Pacific Manor, Westview, Fairway Park, and Linda Mar incorporated in 1957 as the City of Pacifica. The City grew rapidly in the 1950s and 1960s. Growth slowed in the 1970s, and then slowed further in the following decades, owing to the scarcity of developable land and infrastructure constraints. About 540 housing units have been built over the last 20 years, along with a limited amount of commercial development.
The Coastal Zone
Land within Pacifica west of State Route 1, as well as the Shelldance Nursery property located east of SR 1 and some additional land east of SR 1 south of City limits, is part of the Coastal Zone, subject to Pacifica’s Local Coastal Land Use Plan and the policies of the California Coastal Act. Pacifica’s Coastal Zone comprises approximately 1,286 acres of land. It includes a high proportion of the City’s commercial land and visitor destinations. The Pacifica Planning Area boundary, Coastal Zone boundary, and City limits are shown in Figure 1-1.
Pacifica's Coastal Zone contains a wide variety of land uses, including public recreation areas, distinct residential neighborhoods, visitor-serving and neighborhood commercial development, and highly sensitive wildlife and vegetative habitats. The varied types of development of each coastal sub-area and the geographic relationships between them are an inherent and vital part of the character of the City. The General Plan and LCLUP strive to designate land uses and intensities suitable to the unique circumstances of each coastal area, adequately meet the needs of the City's residents and visitors, and be consistent with State Coastal Act policies. Chapter 2 provides detailed area maps and summary descriptions of seven identified sub-areas in Pacifica’s Coastal Zone.
1.3 LOCAL COASTAL LAND USE PLAN REQUIREMENTS
Local Coastal Programs
The California Coastal Act of 1976 gave the California Coastal Commission broad authority to ensure that development along the coastline would protect and enhance coastal resources. The Commission carries out this responsibility in partnership with local governments, through the development and certification of LCPs.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) California Public Resources Code (PRC) Sections 30000 et seq. establish the State’s coastal management policies and the procedures for preparation, approval, and certification of LCPs.
In 2015, Governor Brown put into effect two regulatory requirements regarding climate change. These include Senate Bill 379, which requires local agencies to address climate adaptation and resiliency strategies in long range planning documents; and Governor’s Executive Order No B-30-15, which directs state agencies to factor climate change into planning decisions. This order has been promulgated by the Coastal Commission to include climate adaptation into LCPs.
In 2016, Governor Brown also signed into law Assembly Bill 2616 (AB 2616), amending the Coastal Act to give the Coastal Commission authority to specifically consider environmental justice when making permit decisions. This legislation also cross-references existing nondiscrimination and civil rights law in the Government Code and requires the Governor to appoint an environmental justice Commissioner.
Local Coastal Land Use Plan
To meet the requirements of State law, the LCLUP must comply with the requirements of Chapter 3 of the Coastal Act (Section 30512.2 of the PRC), and also be “sufficiently detailed to indicate the kinds, location, and intensity of land uses, the applicable resource protection and development policies, and, where necessary, a listing of implementing actions.” (Section 30108.5 of the PRC). During all phases of the LCLUP’s development, the public as well as affected agencies must be provided with extensive opportunities to participate (Section 30503 of the PRC). In the case of the Pacifica General Plan and LCLUP update, the planning process, including public participation, is detailed in Section 1.1 of the General Plan.
Implementation Plan
The implementation component of the LCP comprises the zoning ordinance, zoning district maps, and other implementing actions within the Coastal Zone. These are typically referred to together as the Implementation Plan (IP). The LCLUP and IP work in tandem to implement Coastal Act provisions.
1.4 RELATIONSHIP TO OTHER PLANS AND REGULATIONS
The Local Coastal Land Use Plan and the General Plan
The General Plan and LCLUP updates have been conducted in tandem. While they are two separate documents, much of the descriptive text and many of the policies are overlapping. Policies that are included in both the General Plan and the LCLUP are marked with a in the General Plan.
Much of the background text is also the same in both documents. Detailed discussion of Coastal Act requirements and goals is included only in the LCLUP, while issues that are not relevant to Coastal Act requirements and goals are covered only in the General Plan. The term “Planning Area” is used to refer to the General Plan’s Planning Area, while the term “Coastal Zone” is used to refer to the area subject to the LCLUP. Each plan has a different organizational structure, to match its purpose. Plan organization is covered in Section 1.5. One environmental impact report (EIR) describes the expected environmental impacts of both plans.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Plan Bay Area
The Metropolitan Transportation Commission (MTC), Association of Bay Area Governments (ABAG), Bay Area Air Quality Management District (BAAQMD), and Bay Conservation and Development Commission (BCDC) have adopted the Plan Bay Area. This Plan will be the San Francisco Bay Area’s Regional Transportation Plan, and will satisfy the Sustainable Communities Strategy (SCS) requirement established by Senate Bill 375, which will demonstrate how the region will meet greenhouse gas emission targets. The effort is focused on bringing together transportation, land use, and housing policies at the regional scale to support greenhouse gas emissions reduction while ensuring mobility. Regional priorities for transportation investments will influence Pacifica’s future circulation system.
Coastal Regional Sediment Management Plan
A consortium of State and federal agencies, including the California Department of Natural Resources and the US Army Corps of Engineers, is organizing a series of Regional Sediment Management (RSM) plans. The primary focus is on facilitating the movement of excess clean sand to areas experiencing high levels of erosion. Goals include restoring and preserving beaches; sustaining recreation; enhancing public safety; and restoring coastal habitats. The San Francisco Littoral Cell Coastal RSM Plan is currently being developed for the coastline between the Golden Gate and Pedro Point Headlands. The Plan’s purpose is to assist communities by providing information for decision-makers and offering recommendations specific to the coastlines of San Francisco, Daly City and Pacifica. The Pacifica General Plan and Local Coastal Land Use Plan may provide a vehicle for enacting RSM recommendations.
1.5 GUIDE TO USING THIS DOCUMENT
Plan Organization
This section describes the organization of the Pacifica 2040 Local Coastal Land Use Plan and the structure of guiding and implementing policies. The LCLUP is organized to follow the topical sections of the Coastal Act policies, and is organized as follows:
1. Introduction. This chapter summarizes the key themes and initiatives of the Plan. It covers the Plan’s purpose, process, planning context, State requirements, relationships to other plans, plan organization (here), and requirements for administration of the Plan.
2. Land Use and Development. This chapter describes the existing land use pattern and provides the physical framework for land use and development in the Coastal Zone. It enumerates development demand and capacity, and provides detailed descriptions of land use issues by sub-area. It describes how the land use plan and related policies support development prioritized under the Coastal Act.
3. Public Access and Recreation. This chapter includes policies, programs, and standards to ensure that public access to the coast is provided according to the policies of the Coastal Act, serving as the public access component of the Plan. It identifies future street and traffic improvements, and addresses walking, biking, transit, and parking to enable a multi-modal circulation system in the Coastal Zone. This chapter also contains policies relating to regional open spaces and beaches, the trail system, and parks and recreation, as they pertain to Coastal Act policies to ensure the public has adequate access to coastal recreation opportunities.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
4. Environmental and Scenic Resources. This chapter includes policies relating to hydrology and water quality, biological resources, agriculture and coastal sediment, air quality and greenhouse gas emissions, and historic and archaeological resources and conservation. It also addresses water supply, sewerage, solid waste management, and recycling, as well as stormwater management and sustainable site planning. It also includes urban design policies to improve the city’s visual quality and livability, including its neighborhoods, mixed-use areas, hillside and coastal areas, and scenic routes. Policies are presented in terms of their satisfaction of Coastal Act provisions.
5. Natural Hazards. This chapter addresses the hazards posed by seismic and geologic hazards, flooding, impacts of accelerated sea level rise, and wildland fires, and provides detailed policies that respond to Coastal Act provisions for minimizing adverse impacts.
6. Coastal Resilience. This chapter addresses the unique challenges of adapting to climate change, especially sea level rise (SLR). It provides policies to allow for protection of existing development and to design new development in a manner adaptable to the changing coastline.
Table 1-1 shows how the chapters in the LCLUP related to General Plan Elements.
TABLE 1-1: CORRESPONDENCE BETWEEN COASTAL ZONE CHAPTERS AND GENERAL PLAN ELEMENTS LCLUP Chapter Related General Plan Elements
Chapter 1: Introduction Chapter 1: Introduction
Chapter 2: Land Use and Development Chapter 4: Land Use Chapter 3: Public Access and Recreation Chapter 5: Circulation Chapter 6: Open Space & Community Facilities
Chapter 4: Environmental and Scenic Resources Chapter 7: Conservation Chapter 3: Community Design
Chapter 5: Natural Hazards Chapter 8: Safety
Chapter 3: Community Design
Chapter 6: Coastal Resilience Chapter 8: Safety
Source: Dyett & Bhatia, 2019.
Policy Structure
Each chapter of the Plan includes background information to establish the context for policies in the chapter.
This background information is followed by two sets of policies, which together articulate a vision for Pacifica’s Coastal Zone that the Plan seeks to achieve:
• Guiding Policies are the City’s statements of its goals and philosophy. • Implementing Policies represent commitments to specific actions. They may refer to existing programs or call for establishment of new ones.
Policies provide guidance for development review, infrastructure planning, community facilities and services, and protection for the city’s resources, by establishing planning requirements, programs, standards, and criteria for project review. Explanatory material or commentary in italics accompanies some policies to provide further clarification of their application to particular sites or situations. The use of “should” or “would” indicates that a statement is strongly recommended but not mandatory; details will need to be resolved in LCP implementation. The use of “shall” or “must” indicates that a statement is mandatory.
Where the same topic is addressed in more than one chapter, sections and policies are cross-referenced.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Maps, Diagrams and Land Use Classifications
The maps and diagrams in the LCLUP illustrate a number of policies relating to land use, coastal access, circulation, environmental and scenic resources, and hazards. These maps and diagrams, and in particular the Land Use Diagram in Chapter 2, are important parts of the plan that contain information not presented anywhere else. All maps, diagrams, and figures are adopted parts of the Plan; however, their use is subject to any disclaimers or limitations set forth on the maps or elsewhere in this LCLUP.
The maps and diagrams included in the LCLUP reflect the best available information at a programmatic, or city-wide, level2. Maps and diagrams including biological resources such as special status species, wetlands, and streams, indicate areas where the presence of these resources are most likely to occur. However, additional information regarding such resources will become available through site-specific review of proposed projects, through future map/diagram updates, and through other means. Thus, protection of resources is not limited to those areas that are mapped in this document, and site-specific analyses shall be utilized wherever possible to ensure maximum protection of resources.
Appendix, Glossary and List of Acronyms
Appendix A presents the coastal resources planning and management policies that comprise Chapter 3 of the California Coastal Act, or Section 30200 et seq. of the Public Resources Code. The policies of Chapter 3 of the California Coastal Act are hereby incorporated by reference into the LCLUP. Chapter 3 organizes these policies in six topical areas, which guide the organization of the LCLUP chapters: Public Access, Recreation, Marine Environment, Land Resources, Development, and Industrial Development.
The Plan concludes with a glossary to define important terms and concepts, and a list of acronyms that may appear in the preceding chapters.
1.6 PLAN ADMINISTRATION
Amendments to the Plan and Periodic Review
The LCLUP is less flexible than a General Plan in that its amendment, even after certification, requires the approval of the Coastal Commission as well as the City. An exception exists for minor amendments and de minimis amendments if approved by the Coastal Commission’s executive director. Any such approval must be reported to the Coastal Commission for concurrence in order to be considered approved and certified.
Although Pacifica's LCLUP and General Plan are integrated, the coastal policies are clearly identified in order to facilitate the amendment process should that be desired in the future. The Coastal Commission periodically reviews certified LCPs to ensure that coastal resources are being effectively protected (Section 30519.5 of the PRC).
2 The Vulnerability Zone Maps included in Appendix B will need to be updated to reflect new information regarding shoreline protection structures.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) 2 LAND USE AND
DEVELOPMENT
The purpose of this chapter is to describe existing and planned land use in the Coastal Zone and present the policy framework that will guide the City on development decisions. The chapter includes the Land Use Diagram, land use classifications, standards for density and intensity, and limitations on development. The land use framework for each sub-area is then provided in greater detail. Guiding and implementing policies aim to define the Coastal Zone’s physical development and reinforce the community’s vision while supporting Coastal Act goals.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
2.1 COASTAL ACT FRAMEWORK
The California Coastal Act establishes certain priorities for the location and type of new development along the coast. These may be summarized in three broader categories: concentration of development; prioritization of coastal-dependent, visitor and recreation uses; and provision of public access and services. Policies from Chapter 3 of the Coastal Act which are most relevant to the subject matter of this chapter include, but are not limited to, the policies listed below. Chapter 3 of the Coastal Act, available in Appendix A, is incorporated by reference into this chapter.
Coastal Act Policies
Article 2: Public Access
• Section 30211 Development shall not interfere with the public’s right of access to the sea. • Section 30212 New development, shoreline access.
• Section 30213 Lower cost visitor and recreational facilities; encouragement and provision; overnight room rentals
Article 3: Recreation
• Section 30221 Oceanfront land; protection for recreational use and development • Section 30222 Private lands; priority of development purposes • Section 30223 Protect upland areas necessary to support coastal recreational uses Article 4: Marine Environment
• Section 30235 Shoreline protection devices permitted when necessary to serve coastal-dependent uses or protect existing structures or beaches
Article 5: Land Resources
• Section 30240 Development in environmentally sensitive habitat areas Article 6: Development
• Section 30250 Location; existing developed area
• Section 30251 Protection, preservation, and enhancement of scenic and visual quality of coastal areas • Section 30252 Maintenance and enhancement of public access • Section 30253 Requirements for new development
• Section 30254 Public works facilities
• Section 30254.5 Terms or conditions on sewage treatment plant development; prohibition • Section 30255 Priority of coastal-dependent developments Article 7: Industrial Development
• Section 30260 Encouragement for coastal-dependent industrial facilities to locate or expand Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
2.2 CURRENT LAND USE PATTERN
Background
Before visitation by the Portola expedition in 1769, Pacifica was home to the Costanoans, now known as the Ohlone, who were stewards of the land for thousands of years. Pacifica remained primarily agricultural until after the San Francisco Earthquake in 1906. Land speculators, stimulated by the construction of the Ocean Shore Railroad in 1905, subdivided and developed a series of small coastside communities including Edgemar, Vallemar, and the areas now known as Sharp Park, Pedro Point, and Rockaway Beach. These communities, together with Pacific Manor, Westview, Fairway Park, and Linda Mar incorporated in 1957 as the City of Pacifica. The city grew rapidly in the 1950s and 1960s, and most of its current housing was built during those decades, primarily east of Highway 1. Growth slowed in the 1970s, and then slowed further in the following decades, owing to the scarcity of developable land and infrastructure constraints. The Pacifica Coastal Zone is described in more detail by land use type in the paragraphs that follow.
Current Land Use Pattern
Parks and Open Space
The Coastal Zone covers 998 acres, not including road rights-of-way. Nearly half (479 acres) of this land is preserved as open space. This includes Mori Point, the Northern Coastal Bluffs, and Pedro Point Headlands, current and likely future parts of the Golden Gate National Recreation Area; Sharp Park Golf Course; and Pacifica State and Sharp Park Beaches.
Residential
Residential use makes up 21 percent of the Coastal Zone and 69 percent of developed land1 in the Coastal Zone, covering 206 acres. Most residential land in Pacifica’s Coastal Zone (70 percent) contains single-family housing, but multi-family housing is the most prevalent housing unit type (57 percent of all housing units) in the Coastal Zone. Multi-family units are interspersed among single-family houses and commercial uses in the West Sharp Park neighborhood and concentrated along the coast in the West Edgemar-Pacific Manor neighborhood. The Coastal Zone also includes Pacifica’s only mobile homes and most of the City’s mixed use development, which account for 2 and 1 percent of housing units in the Coastal Zone, respectively.
Commercial, Industrial, and Mixed Use
The Coastal Zone includes 41 acres of commercial uses. Commercial land is located at Pacific Manor and Pedro Point shopping centers, and in commercial districts at Rockaway Beach, Palmetto Avenue, and Francisco Boulevard. Pacifica has a small amount of mixed-use development, mostly along Palmetto Avenue in West Sharp Park, in Rockaway Beach, and in Pedro Point. Overall, West Sharp Park has the greatest mix of uses throughout the neighborhood. Hotels, along with most visitor-serving commercial uses, are primarily in the Rockaway Beach neighborhood. The Coastal Zone also has a small amount of industrial land (13 acres) located along Palmetto north of the West Sharp Park commercial area.
Public and Institutional Uses
Public, community, and institutional uses occupy 39 acres of land in the Coastal Zone, including Ingrid B. Lacy Middle School; the Calera Creek Water Recycling Plant; City Hall; the Sharp Park branch library; and other public administrative buildings.
1 Developed land includes all land uses except for Open Space, Agriculture, or Vacant/Undeveloped.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Agriculture and Recreation
There are approximately nine acres of land with agricultural-related uses in the Coastal Zone, outside city limits, at Shamrock Ranch along Highway 1.
Undeveloped and Vacant Land
Vacant or undeveloped land covers 206 acres or 20 percent of land in the Coastal Zone. About 29 acres of this land is outside City limits. Undeveloped land is present along the Northern Coastal Bluffs, the Rockaway Quarry site, Rockaway Headlands, and Pedro Point Headlands. Smaller vacant “infill” lots are scattered in neighborhoods. Given environmental factors such as slope and sensitive species, there are constraints on the development potential of many of these sites.
Figure 2-2 maps the Coastal Zone land use pattern, while Figure 2-1 charts the relative distribution of land by land use in the Coastal Zone.
Figure 2-1: Current Land Use Distribution in the Coastal Zone Open Space
48%
Public/
Community/
Institutional 4%
Residential Uses
21%
Commercial
and Mixed
Use 4%
Industrial Uses
1%
Agriculture,
Undeveloped,
or Vacant 22%
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 2
-2: Existing Land Use in the Coastal Zone
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
2.3 LAND USE FRAMEWORK
The Land Use Diagram, (Figure 2-3) illustrates the community’s vision for land use in 2040. It reflects the Coastal Act priorities presented in Chapter 1, as well as the planning themes laid out in the General Plan. The land use classifications depicted indicate the use and form of development. New development will be guided by Plan policies and programs for hillside and open space preservation; and in infill housing, commercial, and mixed use development.
Land Use Diagram
The Land Use Diagram is a graphic representation of planned land use classifications; it will be used in conjunction with policies established in the Plan to review and approve, modify or deny proposed development projects. The Land Use Diagram includes a legend that shows land use categories whose densities and allowable uses are specified in the Land Use Classifications section.
Land Use Classifications
Land use classifications establish allowed uses, maximum density and intensity, and the type and character of development that is expected. Details on development standards are established in the Implementation Plan through the zoning ordinance, and more than one zoning district may be consistent with a General Plan/LCLUP land use classification.
According to State law, the General Plan must establish standards of population density and building intensity for each land use classification. The General Plan and LCLUP stipulate residential densities in housing units per gross acre; population density can be obtained by applying average persons per housing unit2 to the housing unit densities. For nonresidential uses, the Plan specifies a maximum permitted ratio of gross floor area to site area (Floor Area Ratio or FAR). Recommended density and intensity standards do not imply that development projects must be approved at the maximum intensity specified for each use. Zoning regulations consistent with General Plan policies and/or site conditions may reduce development potential within the stated ranges. Table 2-1 shows gross density standards for residential categories and FAR standards for the other uses.
Residential
Pacifica’s five residential classifications provide for a range of densities, consistent with neighborhood character and planned land use.
OPEN SPACE/AGRICULTURE/RESIDENTIAL
In the Open Space/Agriculture/Residential (OSAR) classification, residential, agriculture, and recreation uses are allowed at a gross density of up to one unit per five acres (or 0.2 units per gross acre). The allowable density on a site will be determined by slope, geology, soils, access, availability of utilities, public safety, and open space values. The density assumed for buildout calculations is 0.15 units per gross acre.
VERY LOW DENSITY RESIDENTIAL
The Very Low Density Residential (VLDR) classification provides for development of 0.2 to 2.0 units per gross acre (or 0.5 to 5.0 acres per dwelling unit). Residential care facilities, schools, and community uses are permitted.
The density assumed for buildout calculations is 1.5 units per gross acre. 2 Based on 2013-2017 American Community Survey data, the number of persons per total housing units is 2.77.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
LOW DENSITY RESIDENTIAL
The Low Density Residential (LDR) designation is intended for single-family housing development ranging from three to nine dwelling units per gross acre. Residential care facilities, schools, and community uses are permitted. Clusters of small-lot development as well as standard subdivisions will be allowed. Buildout is calculated at 6.5 units per gross acre.
MEDIUM DENSITY RESIDENTIAL
The Medium Density Residential (MDR) designation is intended for a mix of housing types, including smalllot single-family, attached single-family, apartments, duplexes, townhomes and mobile home parks at a density range of 10 to 15 units per gross acre. Residential care facilities, schools, and community uses are permitted.
Buildout is calculated at 12.5 units per gross acre.
HIGH DENSITY RESIDENTIAL
The High Density Residential (HDR) designation is intended for multi-family apartments, condominiums and townhomes in multi-story buildings located near shopping areas and transit. The density range will be 16 to 21 dwelling units per gross acre. Sites of 0.5 acres or more in size may develop up to 30 dwelling units per gross acre. Residential care facilities, schools, and community uses are permitted. Buildout is calculated at 25 units per gross acre.
Mixed Use
The Plan provides three mixed use classifications to create areas where housing and active commercial uses may be integrated. Visitor-oriented commercial uses are allowed as-of-right in all mixed use areas within the Coastal Zone, except hotels in the Coastal Residential Mixed Use designation.
COASTAL RESIDENTIAL MIXED USE
The Coastal Residential Mixed Use (CRMU) designation is intended for sites in the Coastal Zone with residential mixed use development potential, including mixed use with housing and retail, and/or small-scale visitor-oriented commercial uses such as retail, vacation rental, or time-share units. Residential uses are allowed in the same building as commercial uses above the ground floor (vertical mixed use) and in other locations attached to or detached from commercial uses on the same site (horizontal mixed use). Hotels are not permitted.
Coastal access and public open space must also be provided, and environmental resources must be evaluated and protected. Sites may be developed up to an overall density of up to 15 units per gross acre, with clustering and sensitive site planning. Non-residential development may have an FAR up to 0.5 FAR. The total FAR (residential and non-residential) cannot exceed 1.0. Buildout is calculated at 15 units per gross acre and 0.10 FAR of non-residential use.
MIXED USE NEIGHBORHOOD
In the Mixed Use Neighborhood (MUN) classification, new development may include multi-family housing and building with ground-floor retail, restaurant or service uses and housing or offices. Residential uses are allowed in the same building as commercial uses above the ground floor (vertical mixed use) and in other locations on the same site (horizontal mixed use). Public or community uses and hotels may be permitted at appropriate locations. The MUN classification allows a density range of 16 to 26 units per gross acre and nonresidential development with an FAR up to 1.0. Sites of 0.5 acres or more in size may develop up to 30 dwelling units per gross acre. The total FAR (residential and non-residential) cannot exceed 2.0. Buildout is calculated based on a 0.25 FAR for non-residential uses and 25 residential units per gross acre.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
MIXED USE CENTER
The Mixed Use Center (MUC) classification is intended for high-density mixed use development, including public or community uses and hotels. Allowable uses include ground-floor retail, restaurant or service uses and housing or offices on upper levels. Residential uses are allowed in the same building as commercial uses above the ground floor (vertical mixed use) and in other locations on the same site (horizontal mixed use). The MUC classification permits housing at a density range of 30 to 50 units per gross acre and a 2.5 FAR of non-residential development, provided the overall FAR does not exceed 2.5. Buildout is calculated at an FAR of 0.35 for nonresidential uses and 32 units per gross acre for housing.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 2
-3 Land Use Diagram
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Commercial Uses
The General Plan and LCLUP establish five commercial classifications to accommodate a variety of potential commercial activities. Visitor-oriented commercial uses are allowed as-of-right in all commercial areas within the Coastal Zone.
RETAIL COMMERCIAL
The Retail Commercial (RC) classification is intended for retail, restaurant, and service uses, typically in singleor two-story buildings within shopping centers or on sites in the Highway 1 corridor. New development will be pedestrian-oriented. Offices may be located above the ground floor. The maximum FAR is 1.0. Buildout is calculated with an FAR of 0.25.
OFFICE/COMMERCIAL
The Office/Commercial (OC) classification permits offices as well as retail and service uses, typically in single- or two-story buildings. The maximum FAR is 1.5; buildout is calculated with an FAR of 0.35.
SERVICE COMMERCIAL
The Service Commercial (SC) classification is for industrial and heavy commercial uses, such as auto repair, equipment rental, storage, and materials salvage. The maximum FAR is 0.6; buildout is calculated with an FAR of 0.25.
VISITOR-SERVING COMMERCIAL
The Visitor-Serving Commercial (VC) designation is intended to foster and protect areas that attract and cater to visitors, including hotels or a visitor attraction, such as an interpretive center or conference center, restaurants, retail and services, commercial recreation, or other compatible uses. Larger sites, with developable areas of two acres or larger, shall require a hotel, lower-cost overnight accommodation, or visitor attraction as part of new development. The maximum FAR is 3.0. Buildout is calculated with an FAR of 0.35.
LOW-INTENSITY VISITOR-SERVING COMMERCIAL
The Low-Intensity Visitor-Serving Commercial (LIVC) district allows uses that create public access to the coastal setting and are adaptable to changing environmental conditions: campgrounds, rustic lodging, concession stands, warming huts, outdoor event sites, and similar uses. Existing permitted businesses that do not conform to the description of LIVC may remain until voluntarily redeveloped by the property owner or abandonment of the use has occurred pursuant to the nonconforming use zoning provisions of the Pacifica Municipal Code (cessation of the use for 12 months, under current zoning provisions). In these areas, the designation indicates the long-term goal of transition to recreation-oriented land uses. Development may occur at up to 0.20 FAR, but must have an overall very low-intensity character on sites of more than one acre. Buildout is assumed at 0.05 FAR, recognizing the large land areas and minimal building expected to support recreational uses.
Public and Community Uses
Designations for public uses such as schools, civic buildings, utilities, and public parking areas are designated on the Land Use Diagram, and summarized below. Public park land is covered separately in the following section.
PUBLIC AND SEMI-PUBLIC
The Public and Semi-Public (PSP) designation indicates public or private schools, libraries, police and fire stations, and other civic and community uses. In the case that public facilities are converted or sold for new Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) uses, Plan land use classifications shall be updated. If a public school is discontinued, any proposed new use should be compatible with the adjacent neighborhood. The maximum FAR in this district is 1.0. Buildout is assumed at 0.35 FAR.
BEACH AND COMMUTER PARKING
The Beach and Commuter Parking (BCP) designation applies to areas where the priority use is public parking to serve beach visitors and/or transit users. Sites are located adjacent to Pacifica State Beach and at Crespi Drive and Highway 1. Beach parking at the City’s Beach Boulevard property serving Pacifica Pier and Sharp Park should be conserved as part of development of that site.
UTILITIES
The Utilities (U) designation indicates the location of water tanks, communications facilities including wireless communications facilities, and other utilities serving the City. The maximum FAR in this district is 1.0.
Parks and Open Space
Pacifica is defined in large part by its open space system, with extensive land preserved as public open space, or designated for conservation. These categories are detailed below.
PARK
The Park (P) designation is applied to public land either now developed for active recreation use or intended for future recreation development. The designation applies to City parks as well as to park or open space areas whose primary character is undeveloped and natural, or that is managed for use by residents of the larger region and beyond. The City does not have permitting authority on lands owned by other public agencies.
CONSERVATION
The Conservation (C) district takes the place of the Greenbelt district from the previous General Plan. It applies to publicly- or privately-owned open areas not intended for development. Non-structural development, such as trails and viewing areas, is allowed. These areas may include:
• Watershed lands;
• Sandy beach areas, including properties that are fully on beaches or coastal dunes or bluffs; • Land which is physically unsuitable for development due to geotechnical hazards, excessive steepness, wetlands, ESHA, or other environmental constraints, or lies within stream channels; • Areas to remain undeveloped as a result of density transfer or clustered development, or covered by open space, recreational or scenic easements;
• Open areas providing a physical and visual buffer between developed or open areas; and • Open space required as mitigation for environmental impacts.
Urban Reserve
The Urban Reserve (UR) designation is created to apply to private lands outside of City limits but within the Planning Area. The City does not have permitting authority in this area. The Pacifica General Plan and LCLUP intends for agriculture and residential development with a minimum site area of 5 acres per dwelling unit to be the predominant uses on land designated Urban Reserve. Actual density may be limited by the physical conditions of a site such as geological hazards, access, and potential habitat. For sites larger than 50 acres, the Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) City should work with San Mateo County to ensure that subdivision and development be considered in the context of a Plan Update.
TABLE 2-1: LAND USE CLASSIFICATIONS AND DENSITY AND INTENSITY STANDARDS Land Use1
Residential Density
(units per gross acre): Range2
Non-Residential Intensity
(FAR): Maximum3
Residential
OSAR
Open
Space/Agriculture/Residential Up to 0.2
VLDR Very Low Density Residential 0.2 to 2
LDR Low Density Residential 3 to 9
MDR Medium Density Residential 10 to 15
HDR High Density Residential 16 to 21
304
Mixed Use
CRMU Coastal Residential Mixed Use 10 to 15 0.5
MUN Mixed Use Neighborhood 16 to 26
304
1.0 MUC Mixed Use Center 30 to 50 2.5
Commercial
RC Retail Commercial 1.0
OC Office/Commercial 1.5
SC Service Commercial 0.6
VC Visitor-Serving Commercial 3.0
LIVC
Low-Intensity Visitor-Serving
Commercial 0.2
Public and Community Uses
PSP Public and Semi-Public 1.0
U Utilities 1.0
BCP Beach and Commuter Parking
Parks and Open Space and Urban Reserve
P Park
C Conservation
UR Urban Reserve Up to 0.2
Notes:
1. Though the density for Urban Reserve is shown, n o development is projected in these areas.
2. Density ranges are rounded to the nearest whole number, except where less than 1 unit per acre. Senior or affordable housing may be developed at up to 1.5 times the maximum with the Density Bonus program.
3. For mixed use designations, the following maximum total FAR, including both residential and non-residential uses, is established:
CRMU: 1.0 FAR maximum; MUN: 2.0 FAR maximum; MUC: 2.5 FAR maximum.
4. Sites of 0.5 acres or more in size may develop up to 30 dwelling units per gross acre.
Source: City of Pacifica, Dyett & Bhatia, 2019.
Coastal Development Review
The City’s zoning code features a Coastal Zone (CZ) Combining District, with development regulations based on Coastal Act goals. These include the provision of public access to the shoreline and recreational opportunities, the protection and enhancement of the coastal environment, and the prioritization of coastaldependent and visitor-serving uses. The Coastal Zone requirements supplement the underlying zoning regulations and new development must obtain a coastal development permit on all property subject to the LCLUP.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Pursuant to the Coastal Act, certain categories of development are exempt from coastal development permit requirements. These exemptions are generally set forth in Section 30610 of the PRC and Sections 13252, 132523, and 13250 of the California Code of Regulations (CCR) Policies
Implementing Policies
LD-I-1 Zoning Consistency. Update the Zoning Ordinance and zoning map and apply zoning to all land within the City, consistent with General Plan and LCLUP policies and land use designations.
LD-I-2 Land Divisions in the Coastal Zone. Continue to require coastal development permits for all land divisions within the Coastal Zone. Land divisions in the Coastal Zone shall be:
• Designed to minimize impacts to public access, recreation, and other coastal resources. • Designed to minimize site disturbance, landform alteration, and the removal of native vegetation for development or fire safety.
• Prohibited on properties that include any areas that are within or adjacent to an Environmentally Sensitive Habitat Area (ESHA) unless the resulting parcels are set aside for conservation, or unless the resulting parcels can be developed consistent with policies protecting sensitive habitats including but not limited to a prohibition on building or requiring vegetation clearance in the ESHA or ESHA buffer. • Prohibited on properties that are within Coastal Vulnerability Zones, unless the resulting parcels are set aside for conservation, or unless the resulting parcels can be developed consistent with the LCP.
• Permitted only in areas with adequate public services to serve development on the resulting parcels.
• Any land division that would result in a parcel that could not be developed in accordance with the policies of this LCLUP is not allowed.
LD-I-3 Coastal Development Permit Findings. For all development that requires a coastal development permit, continue to require written findings that it is consistent with all LCLUP policies and Implementation Plan provisions of the City’s certified Local Coastal Program.
If there is a conflict between a provision of this LCP and a provision of the General Plan, or any other Cityadopted plan, resolution, or ordinance not included in the LCP, and it is not possible for the development to comply with both the LCP and such other plan, resolution or ordinance, the LCP shall take precedence and the development shall not be approved unless it complies with the LCP provision. In advance of updating the Implementation Plan for conformance with the policies of this 2023 Land Use Plan, the policies of the Land Use Plan shall provide the standard of review for any proposed new development, including where these policies are more protective of ESHA and other coastal resources and maximize public access as consistent with the Coastal Act.
LD-I-4 Coordinate with the County to protect the Urban Reserve. Coordinate with the County to ensure that new development in unincorporated areas occurs at a maximum density of five Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) acres per unit, and request that subdivision of 50 acres or more is subject to master planning and annexation as a condition of any urban development.
A General Plan amendment also will be required, and a LCLUP amendment will be required for land within the Coastal Zone.
2.4 COASTAL DEVELOPMENT PRIORITIES
Concentrated Development
The Coastal Act seeks to concentrate new development along the coast in already-developed areas and areas where it will not adversely affect coastal resources (Section 30250). Pacifica’s Local Coastal Land Use Plan reinforces the clear distinctions between areas of preserved open space (nearly 50 percent of the Planning Area) and established neighborhoods. It seeks to ensure that sensitive coastal open spaces on the Northern Coastal Bluffs and Pedro Point Headlands are preserved and enhanced, while promoting new development in and directly adjacent to the Rockaway Beach and West Sharp Park districts, and make these areas more commercially vibrant and transit-supportive, as described in Section 30252. These efforts are clearly defined in policies of this section as well as policies for each sub-area detailed in Section 3.3.
Coastal-Dependent, Visitor-Serving and Recreational Development Section 30255 of the Coastal Act states that “coastal-dependent developments shall have priority over other developments on or near the shoreline.” Lower-cost visitor and recreation facilities (Section 30213); recreational uses and development (Section 30221); and coastal-dependent industry (Section 30260) are specifically called out. Section 30222 provides that “the use of private lands suitable for visitor-serving commercial recreational facilities designed to enhance public opportunities for coastal recreation shall have priority over private residential, general industrial, or general commercial development.” San Francisco and San Mateo Counties are major tourist destinations, attracting domestic as well as international travelers. The nine-county Bay Area region accounts for almost 30 percent of the visitor-generated tax receipts in California. Located along scenic Highway 1, south of San Francisco, Pacifica enjoys exposure to a number of visitors to the County’s coast, State parks, and other attractions. Pacifica itself has a wealth of public park land and amenities along the coastline, including Pacifica State Beach and the Pacifica Pier at Sharp Park Beach.
The current demand for hotel rooms in Pacifica is served by six moderately-priced hotels with a total of 282 rooms. A majority of these hotels are clustered around Rockaway Beach. Pacifica is also home to the San Francisco RV Park. These accommodations are shown on the Existing Land Use map, Figure 2-2. The General Plan provides a tourism-related economic development strategy that will help Pacifica to better leverage its coastal location and other physical and cultural amenities, and a land use plan that emphasizes visitor-oriented commercial development.
In the Visitor-Serving Commercial (VC) designation, for larger sites (with developable areas of two acres or larger), a hotel, lower-cost overnight accommodation, or visitor attraction is a required part of new development. Development on large sites may also include restaurants, retail and services, commercial recreation, or other compatible uses. New inns, resorts, or other overnight lodging should enliven the Rockaway Beach district and provide a basis for integration with any new development which may ultimately be approved on the Quarry site. Such uses can enhance the public’s enjoyment of the coastal setting.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) The extensive public lands in Pacifica’s Coastal Zone and the recreation opportunities they afford are protected with Park and Conservation designations. The LIVC district allows uses that create public access to the natural setting and are adaptable to changing environmental conditions. Low-intensity visitor-serving development along northern Palmetto would add new ways of enjoying the coast. Potential uses with a low development impact and which are readily relocated to adapt to evolving coastal conditions, such as rustic lodging or “hikers' huts,” could occur on the Rockaway Headlands and enrich the recreational appeal of both Pacifica State Beach and Rockaway Beach for visitors.
Energy Facilities and Coastal Dependent Industries
Pacifica does not currently contain any coastal-dependent industry or energy facilities, and the Plan does not accommodate the new development of these uses. The types of industries that are the subject of Coastal Act policies—tanker facilities, oil and gas development, refineries, and thermal electric generating plants—are not foreseen to be feasible or appropriate. However, in keeping with the Coastal Act, new coastal-dependent industries may be permitted in the Coastal Zone under specific conditions, as outlined in the policies below.
Sub-Areas and Specific Sites
Pacifica's Coastal Zone extends from the eastern edge of Highway 1 to the Pacific Ocean. The Coastal Zone features a wide variety of land uses, including public recreation areas, distinct residential neighborhoods, visitorserving and neighborhood commercial development, and sensitive wildlife habitats. The varied types of development of each coastal sub-area and the geographic relationships between them are an inherent and vital part of the character of the City. The LCLUP strives to designate land uses and intensities suitable to the unique circumstances of each coastal area, adequately meet the needs of the City's residents and visitors, and be consistent with State Coastal Act policies.
Figure 2-4 shows seven sub-areas. Sub-areas may be referred to as neighborhoods at times. The “sub-area” designation is not intended to correspond with any jurisdictional boundaries, but to help readers understand the way the LCLUP affects Pacifica’s distinct geographic areas. Figure 2-4 also identifies specific sites that are the subject of Plan policies. This chapter contains land use policies for specific sites. In many cases, site-specific policies touch on a range of issues, including biological resources and natural hazards.
Figure 2-4 also serves as a key map for the three maps that follow, showing these sub-areas and specific sites at a larger scale. These maps show LCLUP land use at the parcel level, as well as coastal access points; park opportunity sites; coastal view corridors; trails and proposed trail improvements. The sub-area maps and the sub-area descriptions below are intended to demonstrate how various aspects of the Plan—including land use, parks and recreation facilities, coastal access, and environmental resources and hazards—work together in the more localized context. The maps do not show different information than is contained in other LCLUP maps.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 2
-4: Sub-Areas and Specific Sites
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Northern Pacifica Coastal Zone
Figure 2-5 covers the Coastal Zone north of Sharp Park, including Fairmont West; West Edgemar-Pacific Manor; and West Sharp Park. This area includes Palmetto Avenue, the Pacifica Pier and Promenade, the Pacific Manor shopping area, and the northern coastal bluffs.
FAIRMONT WEST
Fairmont West is a small residential area in northwestern Pacifica between Highway 1 and the Pacific Ocean, extending from Daly City along the Northern Coastal Bluffs. It is separated from inland neighborhoods by the highway and a significant grade change. Fairmont West is composed mainly of single-family houses, with a condominium development and a neighborhood park. Palmetto Avenue is Fairmont West’s principal roadway, and provides open views of the Pacific Ocean. The National Park Service owns approximately 14 acres of land on the northern coastal bluffs along the west side of Palmetto Avenue as part of the GGNRA.
Given the extraordinary natural and scenic value, the interest of public access, and the potential erosion hazards, undeveloped land on the northern coastal bluffs is designated Open Space/Agriculture/Residential, and identified as a priority for permanent conservation. Sensitive, clustered development could occur on the east side of Palmetto.
GGNRA plans to continue to manage its land along the northern coastal bluffs as a “natural zone” emphasizing protection of habitat and natural coastal processes. No formal beach access exists or is planned. Undeveloped land west of Palmetto Avenue contains areas of Coastal bluff scrub, which is considered a special status community of high value, important for stabilizing sand dunes. The entire bluff-top area is currently undeveloped and offers an open, highly scenic view of the entire length of Pacifica's coastline.
WEST EDGEMAR-PACIFIC MANOR
West Edgemar-Pacific Manor is an established coastal neighborhood extending from north of the Oceanaire Apartments (formerly Land’s End Apartments) to south of the San Francisco RV Park between Highway 1 and the ocean. The area is centered on the Pacific Manor shopping center. Multi-family development accounts for over 90 percent of the area’s approximately 870 housing units. West Edgemar-Pacific Manor’s residential areas have the highest density in Pacifica.
As envisioned by the Plan, redevelopment and/or shopping center improvements will enhance the area’s walkability, help integrate the commercial center with its coastal setting, and improve the area’s visual appeal.
The City-owned bluff-top land along the west side of Esplanade Avenue may present an opportunity to develop a small park, if this can be done without aggravating slope instability. Esplanade Avenue is also identified as a future bluff-top coastal access point, which may be achieved by redesigning the Esplanade right-of-way to enhance views and pedestrian access. Progressive coastal erosion has led to demolition of residential structures in the 300- and 500-blocks of Esplanade Avenue, and remains an important factor when considering future development potential of sites located along the bluff-top.
WEST SHARP PARK
Sharp Park is one of Pacifica’s original beach communities. Its western and eastern portions are divided by Highway 1. The northern half of West Sharp Park includes some of Pacifica’s only industrial and service commercial uses. The southern half of the neighborhood has a mixture of single-family and multi-family housing, with retail commercial uses prevailing along Palmetto Avenue, and commercial and civic buildings along Francisco Boulevard. A majority of the neighborhood’s approximately 900 housing units are in multifamily buildings. West Sharp Park includes many of Pacifica's community facilities, including a branch of the Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) San Mateo County Library, the Pacifica Resource Center, City Hall, and Council Chambers. The neighborhood features the Pacifica Pier and Beach Boulevard Promenade, and public parking for the Pier, Promenade, and Sharp Park Beach.
The Plan envisions the area along northern Palmetto west of Palmetto Avenue transitioning to Low-Intensity Visitor Serving Commercial uses over time. The transition is necessary to account for progressive coastal erosion which has advanced into many bluff-top sites along Palmetto Avenue in this area. Coastal erosion is an important factor to consider when reviewing future development of sites located along the bluff-top.
Southern Palmetto Avenue will grow into a higher-density mixed use corridor, supported by higher-intensity development on Francisco Boulevard, and with an enhanced connection to the coast achieved with redevelopment of the Beach Boulevard property. The Beach Boulevard Promenade and park, together with the Pier and Sharp Park Beach, provide extensive recreation opportunities, and are tremendous assets for both the neighborhood and the City. The maintenance of park facilities, the pier, and public parking at this location is a high priority. Views to and along the ocean are essential to the neighborhood's character and must be maintained.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 2
-5: Pacifica Coastal Zone, North
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Central Pacifica Coastal Zone
Figure 2-6 shows the central section of Pacifica’s Coastal Zone. The map includes Sharp Park Golf Course, the West Fairway Park neighborhood, Mori Point, the Rockaway Quarry, Rockaway Beach, the Rockaway Headlands, and the Shelldance Nursery.
SHARP PARK GOLF COURSE, WEST FAIRWAY PARK, AND MORI POINT The central stretch of Pacifica’s coast includes Sharp Park Golf Course, Mori Point, and the small single-family subdivision of West Fairway Park. Sharp Park Municipal Golf Course is part of a land bequest made to the City and County of San Francisco early in the 20th Century on the condition that the land be used for public park or recreation. Laguna Salada and its marsh, located on the western side of the golf course, provide habitat for the San Francisco garter snake and California red-legged frog. West Fairway Park is a small single-family residential subdivision. On the south, the neighborhood meets the base of undeveloped Mori Point, managed as part of Golden Gate National Recreation Area.
The Plan designates Sharp Park Golf Course and Mori Point as regional park land. Current characteristics may be maintained, and environmental restoration will be a priority. The West Fairway Park neighborhood's existing land use is reinforced by the Plan’s land use designations.
Sharp Park Beach is open to the public between the Pier and Mori Point, while Sharp Park Golf Course provides a unique recreational asset. Mori Point is a spectacular section of the GGNRA. The General Plan proposes trail improvements and critical new trail segments that would link the coastal trails with the inland ridges. This segment of the Pacifica coastline includes view corridors from Highway 1 into Sharp Park Golf Course and toward Mori Point and Mori Ridge that will be preserved.
ROCKAWAY BEACH, QUARRY, AND HEADLANDS
Rockaway Beach is a small, pedestrian-oriented area with shops, restaurants, and lodging and a small beach, with parking and other amenities. The vacant Quarry site occupies about 94 acres west of Highway 1 and south of Mori Point. About 30 acres of the site are on slopes of 35 percent or steeper. The Calera Creek Water Recycling Plant, at the north end of the former quarry, releases treated wastewater into Calera Creek, which has a naturalized channel, a restored riparian corridor, and a paved walking and cycling path. The Headlands is a rocky promontory separating Rockaway Beach and Pacifica State Beach, and is crossed by a scenic trail.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 2
-6: Pacifica Coastal Zone, Central
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) The Quarry site is Pacifica's most visible potential development site. Prior to any future development, the property owner must complete reclamation of the former quarry pursuant to the State Mining and Reclamation Act (SMARA) and the Pacifica Municipal Code.
Approximately half of the site, including the upland areas and the Calera Creek riparian corridor, is designated for Conservation. This area will remain open space, with trail improvements connecting Mori Point with Rockaway Beach. The Flats and the Pad overlooking Rockaway Beach are designated for Visitor-Serving Commercial development, supporting such potential uses as a resort hotel, boutique hotels, visitor attractions, and retail uses integrated with the Rockaway Beach district. Redevelopment of the Quarry site could expand this visitor-oriented area. Any development of the Quarry site will require detailed evaluation of biological resources to ensure that sensitive habitat and wetlands are protected; and should be sited and designed to minimize coastal hazard risks in accordance with policies in Chapter 5 and 6 of the LUP. Tthe likely footprint of development could be much smaller than the area designated. While housing may be proposed as part of a plan for the site, Ordinance No. 391 provides that residential uses are only authorized after a vote of the electorate. Development in the Quarry Flats should include new public open space. The existing Rockaway Beach district also offers opportunities for infill and redevelopment, subject to an appropriate assessment of potential coastal hazards and vulnerabilities. The Plan envisions the Rockaway Beach district growing into a more distinct and high-profile visitor destination, with strong links to the natural setting of beaches, headlands, and ridges.
The Plan proposes new coastal trail segments, and new trails would link the coastal trails with the inland ridges.
Improvements to Highway 1 should ease travel, accommodate vehicles as well as bikes and pedestrians, and improve access into the Rockaway Beach district. Coastal views from Highway 1 toward Mori Point, Cattle Hill, and the Rockaway Headlands are important in establishing the identity of this area and Pacifica as a whole.
Southern Pacifica Coastal Zone
Figure 2-7 shows the southern part of the Coastal Zone, including Pacifica State Beach, Shelter Cove, and the Pedro Point neighborhood, as well as Pedro Point Headlands.
PACIFICA STATE BEACH
Pacifica State Beach, also known as Linda Mar Beach, is a long sandy beach on a small bay formed by the Rockaway Headlands and Pedro Point. Pacifica State Beach is an outstanding recreational asset for the City and attracts over one million visitors annually from the region and beyond for its surfing, beach environment and scenery in close proximity to San Francisco. Recent restoration work and improvements to parking and access have helped to ensure that the beach will remain a popular natural environment for years to come. Views from Highway 1 toward the crescent sweep of Pacifica State Beach, the Headlands, and Pedro Point are a defining element for Pacifica, and will be preserved across the protected park land.
Pacifica State Beach supports primarily wintering and/or migrating Western snowy plovers, a federally threatened bird species. The beach must continue to be managed to ensure that recreational use does not interfere with the species' habitat requirements. Steelhead trout from the Central California Coast Ecologically Significant Unit are listed as threatened under the federal Endangered Species Act. Steelhead are known to spawn in several parts of San Pedro Creek, and the City will continue to support the preservation of viable steelhead migration.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
PEDRO POINT AND SHELTER COVE
The Pedro Point neighborhood sits on the slope of the promontory that marks Pacifica’s southern boundary.
The neighborhood is characterized by single-family houses climbing up the slope, with some commercial development, including a small shopping center, on the flat land near the beach. The neighborhood is separated from the coastline by the berm of the former Ocean Shore Railroad. Pedro Point abuts City-, County-, and State-owned land at the Point’s higher elevations. This land is within the Golden Gate National Recreation Area’s legislative boundary, and could be included in the park in the future. The western tip of Pedro Point descends to Shelter Cove, where another cluster of houses exists on a single 17-acre parcel. Land access to Shelter Cove has been limited to steep pedestrian trails since the former roadway to the area washed out years ago.
The Plan reinforces existing land use patterns for all developed parts of the sub-area. There is potential for Pedro Point shopping center and adjacent parcels to accommodate some new retail development, which could provide local convenience shopping as well as visitor-oriented businesses. The Plan retains flexibility for any future development on the vacant site west of the shopping center, which could have residential and smallscale commercial and visitor-oriented uses. Development of the site will require detailed evaluation of coastal hazards/vulnerabilities and biological resources to ensure that any sensitive habitat and wetlands that may exist on the site are protected; thus, the footprint of development could be smaller than the area designated. Future development should include a small park and access to the berm and the beach beyond. Completion of the Devils Slide Tunnel project has provided the opportunity to create a new trailhead and trails through open space land on the headlands.
SPHERE OF INFLUENCE
San Pedro Mountain and Pedro Point Headlands define the southern boundary of Pacifica’s Sphere of Influence, which includes the undeveloped 73-acre, 986-lot Tobin Park subdivision (located outside the Coastal Zone). The Plan designates existing public open space in the Sphere of Influence as Park, and designates all other land as Urban Reserve. The Urban Reserve area is intended to remain largely undeveloped.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 2
-7: Pacifica Coastal Zone, South
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
POLICIES
Guiding Policies
LD-G-1 Coastal Development. Ensure that development maximizes beach and coastal open space access and that access reflects the surroundings of the particular coastal environment in use, design, and intensity.
Policies related to coastal access are provided in Chapter 3.
LD-G-2 Concentrated Development. Focus new development in or directly adjacent to alreadydeveloped areas, where it can be served by existing public services and where it will not have significant impacts on coastal or other resources.
LD-G-3 Future Residential Development. Limit development to sites that are not critical for open space connections or habitat preservation, and which will be in harmony with the surrounding natural setting.
LD-G-4 Higher-Density Housing. Locate higher-density housing outside of Coastal Vulnerability Zones and in accessible places close to community shopping areas and transportation.
LD-G-5 Commercial Area Revitalization. Facilitate the revitalization of shopping areas and the creation of distinct commercial districts in Pacifica, resulting in wider shopping and dining opportunities for residents, enhanced attractions for visitors, increased sales tax revenues, and a stronger community image.
LD-G-6 Compact Mixed Use Development. Facilitate compact mixed use development on sites with good access to transit. Mixed use development may include housing or office space with retail, restaurants, or personal service businesses.
LD-G-7 Open Space Conservation and Habitat Protection. Protect beaches, oceanfront bluffs, wetlands, riparian corridors, Environmentally Sensitive Habitat Areas (ESHA), ridgelines, hillside areas adjacent to existing open space, and areas that support critical wildlife habitat and special status species.
LD-G-8 Changes in Density or Intensity of Land Use in Coastal Vulnerability Zones. Do not increase the density or intensity of land use designations beyond those indicated in the LCLUP for sites located within Coastal Vulnerability Zones.
Policies related to Natural Hazards are provided in Chapter 5 and policies related to Coastal Resilience are provided in Chapter 6.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Implementing Policies
COASTAL DEVELOPMENT PRIORITIES
See Chapter 3 for policies concerning public access and recreation, Chapter 4 for policies that concern environmental and resource protection, Chapter 5 for protection from natural hazards, and Chapter 6 for policies concerning sea level rise adaptation.
LD-I-5 Lower Cost Visitor and Recreational Facilities. Protect lower-cost visitor and recreational facilities in the Coastal Zone. These include major, free recreational attractions such as Pacifica Pier and Pacifica State Beach; the public golf course at Sharp Park; the San Francisco RV Park; California Coastal Trail and other trails, and numerous beaches accessible at no cost.
LD-I-6 Oceanfront Land for Recreational Use. Prioritize use of land adjacent to Sharp Park and Pacifica State Beaches for low-intensity recreational use. Allowable uses should include those with a low development impact and which are readily relocated to adapt to evolving coastal conditions, such as recreation outfitters, campgrounds, rustic lodging, hikers’ huts, or view restaurants.
LD-I-7 Development Priority for Visitor-Serving and Recreational Uses. Allow visitor-oriented uses as-of-right in all areas designated for Visitor-Serving Commercial or Low-Intensity Visitor-Serving Commercial, and all commercial or mixed-use districts within the Coastal Zone.
Development on Visitor-Serving Commercial sites with developable areas of two acres or larger must include a visitor attraction, hotel, conference center, or similar use, and may also include a range of retail and service uses.
Smaller sites may have any visitor- or pedestrian-oriented retail or service use.
LD-I-8 Walkable and Transit-Oriented Development. Facilitate higher-density, mixed use development at specific locations along the coastline where an active, pedestrian environment is desired.
Future development along Palmetto Avenue and at the Eureka Square site; on lower Linda Mar Boulevard and Crespi Drive in West Linda Mar; at the Pacific Manor Shopping Center; and at Rockaway Beach and Quarry are easily accessible along the Highway 1 corridor and transit routes. Such development should help to make the coastline more accessible to residents and visitors.
LD-I-9 Coastal-Dependent Industry. Allow new coastal-dependent industry only if alternative locations outside the Coastal Zone are infeasible or more environmentally damaging or because to do otherwise would adversely affect the public welfare, and potential impacts to visual resources, sensitive species and habitat, water quality are mitigated to the maximum extent feasible.
Future development of oil and gas facilities, refineries or petrochemical facilities, or thermal electric generating plants may be permitted only according to the terms established in Sections 30262, 30263, and 30264 of the Coastal Act. Conditions of Approval shall ensure consistency with all Coastal Act policies.
LD-I-10 Aquaculture. If oceanfront land is found to be suitable for coastal-dependent aquaculture, give such use priority over non-coastal-dependent uses.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
POLICIES FOR SPECIFIC SITES
LD-I-11 Pacific Manor. Facilitate Retail Commercial improvements and Mixed Use redevelopment in the Pacific Manor shopping district.
Redevelopment or improvements should enhance the area’s walkability and visual appeal, and should include pedestrian realm improvements that help to integrate the district with its coastal setting.
LD-I-12 Northern Palmetto. Support the transition to low-intensity visitor-serving commercial uses over time along the west side of Palmetto Avenue in northern West Sharp Park, and require improvement of the visual appearance of permitted older industrial uses when improvements are proposed to these uses.
Geotechnical studies are required to determine the “net developable area.” New uses are required to provide appropriate setbacks along the coastal bluffs to protect new structures from loss during their design life, and to provide public access to and along the shoreline.
LD-I-13 Palmetto Avenue. Enhance Palmetto Avenue between north of Paloma Avenue and Clarendon Road as a pedestrian-oriented main street with retail, restaurants and services as well as multi-family housing and mixed-use development.
This will foster a character that will attract both residents and tourists and will follow standards and guidelines established in the Sharp Park Specific Plan.
LD-I-14 Promenade Area and Beach Boulevard Property. Enhance the Promenade area as a local community and tourist destination, while also ensuring that it adequately responds to and addresses coastal hazard considerations consistent with the LCP.
Redevelopment of the city-owned 2212 Beach Boulevard property should provide an anchor for Palmetto Avenue and enhance the beachfront experience. The preferred use is a hotel if market conditions allow, but other aAppropriate uses will could include a hotel or conventional commercial/residential mixed-use project with cafes, restaurants, retail, and upper-level housing, if such uses are deemed appropriate considering coastal hazards and the required protections for coastal resources. The mix of uses for any non-hotel project proposal shall emphasize uses that are of interest to visitors and that generate revenues for the City.
LD-I-15 Francisco Boulevard. Facilitate office commercial as well as retail development along the three blocks of Francisco Boulevard north of Santa Maria Avenue, and higher-intensity mixed use development on the three blocks between Santa Maria Avenue and Montecito Avenue.
A core of high-intensity and civic uses here should help to support retail and restaurants along Palmetto Avenue by bringing more residents and workers and by enhancing visibility from Highway 1.
LD-I-16 Rockaway Quarry Site. Enable the responsible development and environmental conservation of the Quarry Site, considering the potential coastal hazard constraints (including but not limited to bluff erosion, slope stability, and flooding), as well as the biological constraints (specific to sensitive species, environmentally sensitive habitat areas, and wetlands) and coastal resource protection more broadly.
Preparation of a specific plan for the Quarry site could achieve the desired development outcomes. Allowable development should provide City revenues community benefits, including substantial public open space, and Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) commercial uses and public spaces attractive to both visitors and local residents. Uses may include an inn or hotel; shops and restaurants; performance or conference spaces; and public uses. Ordinance No. 391 provides that residential uses are only authorized after a vote of the electorate. Development should be integrated with the Rockaway Beach district, to create an expanded visitor-oriented area in a memorable natural setting.
Environmental protection is a priority at this site and includes preserving upland areas as open space, preserving the riparian corridor along Calera Creek, and preserving critical habitat. Any development of the Quarry site will require detailed evaluation of potential geotechnical hazards and biological resources to ensure safe use of the site and that sensitive habitat and wetlands are protected; the likely footprint of development could be much smaller than the area designated.
LD-I-17 Rockaway Beach. Facilitate continued improvements in the Rockaway Beach district and promote infill development emphasizing active ground-floor and visitor-oriented uses and links to the Quarry site.
The Rockaway Beach area could be included in a specific plan that also covers the Quarry site.
LD-I-18 Rockaway Headlands. Facilitate very low-intensity visitor-serving commercial use on the Headlands between Rockaway and Pacifica State Beach. Maintain the Coastal Trail connecting the two beaches. Any use on this site must recognize the limited opportunity for vehicular access.
Potential uses should have a low development impact and able to be readily relocated to adapt to evolving coastal conditions, such as rustic lodging, hikers’ huts, or similar uses.
LD-I-19 Pedro Point Shopping Center. Facilitate improvements to the existing Shopping Center that result in an improved orientation to the coastal environment and that result in more efficient use of the property with regards to parking, while enhancing its appeal for both neighborhood residents and visitors. Maintain beach access along the Shoreside Drive right-of-way.
LD-I-20 Undeveloped San Pedro Avenue Site. Establish a Coastal Residential Mixed Use zoning district to allow small-scale visitor-oriented commercial uses as a stand-alone project without any residential development, or small-scale visitor-oriented commercial uses with some low density residential development at a density range of three to five units per gross acre. Housing may be clustered, and uses may be mixed vertically or horizontally. Residential uses may be constructed attached to or detached from commercial uses, provided the overall site contains both commercial and residential uses. Development must include public coastal access and must provide public open space, and consider all biological constraints.
A wetland survey conducted according to the requirements of Coastal Commission regulation 13577 (Title 14, California Code of Regulations) is required to delineate potential wetlands on the site as part of the development application and environmental review process. An assessment of potential geotechnical hazards must also be part of the development application and environmental review process, including assessment of the Ocean Shore railroad berm under hazard and vulnerability scenarios consistent with policies in Chapters 5 and 6.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
CREATING A DESTINATION
LD-I-21 Sharp Park Area. Use the Sharp Park Specific Plan to guide future development in the West Sharp Park area, as well as adjacent areas east of Highway 1 such as Eureka Square. Through a combination of mixed use land use designations/zoning, streetscape improvements, targeted public investment, and marketing strategies, promote Palmetto Avenue as a pedestrianoriented destination with shops and services for residents and visitors alike. The Sharp Park Specific Plan must be certified by the Coastal Commission before taking effect in the Coastal Zone.
LD-I-22 Business Improvement District. Work with property owners and the Palmetto Business Association to establish a Business Improvement District (BID) to finance local public improvements in the corridor.
LD-I-23 City-Owned Catalyst Projects. Use city-owned properties as catalysts for new development in the Palmetto area and elsewhere in the city.
For key opportunity sites such as the Old Wastewater Treatment Plant site on Beach Boulevard, the City may issue Request for Proposals for development.
LD-I-24 Recycling Center Relocation. Work with Recology, Inc. to identify a new location for its vehicle maintenance facility located on Palmetto Avenue at Pacific Avenue to free up land for visitor-based economic development.
LD-I-25 Increase Tourism. Prepare a multi-faceted program to encourage tourism, focusing on:
• Attracting new hotels or inns, a visitor’s center or other key attraction, tourism-based shopping, and other components; and
• “Branding” and marketing Pacifica’s parks, open spaces, beaches, and other natural amenities.
LD-I-26 Enhanced Visitor Node. Taking all site constraints into account, Ccreate a visitor-oriented commercial and hospitality node at Rockaway Beach and on developable portions of the Rockaway Quarry site which contains distinctive design, uses, and recreational opportunities.
A key component of this strategy would be to pursue a boutique or resort-oriented hotel and supporting touristoriented shopping and dining opportunities.
2.5 DEVELOPMENT CAPACITY AND ADEQUACY OF PUBLIC SERVICES One purpose of the General Plan and LCLUP is to ensure that the City can accommodate projected population and job growth over the planning period (to 2040). To meet the requirements of State housing law, the City must also have adequate sites where housing affordable to moderate- and low-income households can reasonably be developed. The Plan seeks to meet these needs while also satisfying other community goals and ensuring safety and environmental protection. This section estimates projected demand for new housing and non-residential space, and the development potential provided under the General Plan land use framework.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Population and Employment
POPULATION, HOUSING, AND EMPLOYMENT TRENDS
Pacifica grew rapidly in the 1950s and 1960s, but has grown very little since then. The City gained an average of 790 persons per decade in the 1970s, 1980s, and 1990s but saw a decline of 1,600 people from 2000 to 2010.
In 2017, Pacifica’s population was 39,141, an increase of six percent from a population of 36,805 in the 2010 Census, and an increase of about 2 percent over its population of 38,390 in 2000. Between 2000 and 2017, the City added 440 housing units, as average household size increased slightly from 2.73 to 2.77 persons.
As in much of the state, Pacifica’s population has grown older in recent decades. Between 2000 and 2017, the 25-to-44 age cohort declined from 33 to 26 percent of the population, and there were also declines in the cohorts age 5 to 17. Meanwhile the 45-to-64 group grew from 27 to 32 percent and the population age 65 or greater rose from 10 to 15 percent.3
According to the Longitudinal Household Employer Dynamics Survey, the Planning Area had 4,725 jobs in 2017, an increase from 4,169 jobs in 2015.4
Development Capacity and Projections
Development capacity is calculated based on assumptions about new residential and non-residential development that could be built under the Plan’s land use designations and their respective densities and intensities.
As described in the General Plan, there are an estimated 1,280 acres of vacant or underutilized land classified for residential or mixed use in the Pacifica Planning Area. Buildout of an estimated 80 percent of opportunity sites at projected densities would result in a total of 1,040 new housing units. This Plan conservatively uses the 2017 ACS population estimate of 39,141 as a baseline and assumes that Pacifica and its Sphere of Influence will reach a projected population of 41,878 by 2040, based on this development capacity.5 There are an estimated 117 acres of vacant or underutilized land classified for commercial or mixed use, citywide (mixed use land is also counted in the residential capacity analysis). The Rockaway Quarry site accounts for 49 acres, the portion of the site’s 94 total acres that would be potentially available for Visitor-Serving Commercial (VC) development based on the area mapped with this designation. As noted above, the Quarry site’s development capacity may be further reduced by site-specific analyses of geotechnical and biological constraints. Realistic development of opportunity sites would result in an estimated 645,400 square feet of net new non-residential building area. The greatest amount of new building area would be in the VC category, reinforcing the importance of this sector to Pacifica’s economic development strategy. Much of the VC potential is on the Quarry site, which site has proven challenging to develop in the past. New development is estimated to accommodate approximately 1,470 new jobs over the planning period.
The General Plan uses what may be considered a high-growth scenario for two principal reasons. First, much of the potentially developable land in Pacifica may be challenging to develop, so providing capacity to accommodate higher growth is more likely to translate to development that meets the needs of slower 3 U.S. Census Bureau, American Community Survey (ACS), 2013-2017 4 U.S. Census Bureau, Longitudinal Employer-Household Dynamics (LEHD), 2019 5 Total population calculated by multiplying 5% vacancy rate by total buildout of 1,040 units; assumes current rate of 2.75 people per household.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) population growth. Second, there will be a need to provide adequate sites for housing affordable to low- and moderate-income households, to meet regional housing requirements.
Coastal Development Potential
Within the Coastal Zone, including all land west of Highway 1 as well as the Shelldance Nursery, the Planning Area has an estimated development capacity for 334 net new housing units on 78 acres of vacant or underutilized land. Nine in 10 of these units would be in Medium or High Density or Mixed Use areas, and potentially affordable to moderate- and low-income households. See Table 2-2.
TABLE 2-2: RESIDENTIAL DEVELOPMENT CAPACITY IN THE COASTAL ZONE UNDER THE LOCAL
COASTAL LAND USE PLAN
General Plan Land Use
Vacant or
Underutilized
Acres1
Permitted
Density
Range (units
per acre)
Projected
Density
(units per
acre)2
New Housing
Units at
Buildout3
Residential Districts
Residential with Open Space 42 0.2 or less 0.15 -
Very Low Density Residential - 0.2 to 2 1.5 -
Low Density Residential 8 3 to 9 6.5 30
Medium Density Residential 5 Up to 15 12.5 40
High Density Residential 1 Up to 214 25 10
Mixed Use Districts
Coastal Residential Mixed Use 5 Up to 155 15 50
Mixed Use Neighborhood 12 16 to 264 25 190
Mixed Use Center 5 30 to 50 32 102
Urban Reserve
Urban Reserve - NA 0.1 -
Total Residential Development Potential on
Opportunity Sites
78 4,128
Existing Units on Underutilized Sites 78
Net New Residential Potential 78 334
Notes
1. Acreages are shown rounded to the nearest whole number, but more detailed numbers are used in calculations.
2. Projected density is informed by average current density of projected land uses and allowable density ranges.
3. A "net-to-gross factor" of 80% is applied to all development potential to account for need for additional streets on large sites. A "flex factor" of 80% is applied to account for property owner priorities and site constraints.
4. Sites of 0.5 acres or more in size may develop up to 30 dwelling units per gross acre.
5. The Undeveloped San Pedro Avenue Site shall be limited to 3-5 dwelling units per gross acre as provided in Policy LD-I-20.
Sources: San Mateo County Assessor’s Office, 2010; City of Pacifica, 2019; Dyett & Bhatia, 2019.
The Coastal Zone also has an estimated capacity for approximately 154,300 net new square feet of nonresidential development on 110 acres of vacant or under-utilized land (land designated for mixed use is counted both here and in the residential capacity analysis.) About two-thirds of the new development capacity would take place in the Visitor-Serving Commercial category, including the Quarry site. See Table 2-3.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) TABLE 2-3: NON-RESIDENTIAL DEVELOPMENT CAPACITY IN THE COASTAL ZONE UNDER THE LOCAL
COASTAL LAND USE PLAN
General Plan Land Use
Vacant or
Underutilized
Acres1
Maximum
NonResidential
FAR
Projected
NonResidential
FAR2
New NonResidential Sq.
Ft. at Buildout3
Mixed Use Districts
Coastal Residential Mixed Use 5 0.5 0.10 13,500
Mixed Use Neighborhood 12 1.0 0.25 75,900
Mixed Use Center 5 3.0 0.35 43,400
Commercial Districts
Retail Commercial 13 1.0 0.25 85,000
Office/Commercial 1 1.5 0.35 13,100
Service Commercial 0 0.6 0.25 1,100
Visitor-Serving Commercial (not including Rockaway
Quarry) 9
2.5 0.35 82,900
Rockaway Quarry Site4
49 0.5 0.35 448,400
Low-Intensity Visitor-Serving Commercial 16 0.2 0.05 21,000 Public Facilities and Open Space Districts
Public/Institutional 0 1.0 0.35 1,300
Total Non-Residential Development Potential on
Opportunity Sites
110 785,600
Existing Non-Residential Development on
Underutilized Sites
631,300
Net New Non-Residential Potential 110 154,300
Notes
1. Acreages are shown rounded to the nearest whole number, but more detailed numbers are used in calculations.
2. Projected intensity is informed by average current intensity of projected land uses and allowable intensity ranges.
3. A "net-to-gross factor" of 75% is applied to all development potential to account for need for additional streets on large sites. A "flex factor" of 80% is applied to account for property owner priorities and site constraints.
4. Approximately 49 acres of the 94-acre Quarry site would be potentially developable. This acreage is counted separately from the Visitor-Serving Commercial classification.
Sources: San Mateo County Assessor’s Office, 2008; City of Pacifica, 2008; Dyett & Bhatia, 2013.
Public Facilities and Services
A critical function of planning is to evaluate the capacity for existing public facilities and services to handle growth, and to identify long-term needs. In the Coastal Zone, public works facilities should be sited and designed to support development that furthers the goals of the Coastal Act (Section 30254). This section summarizes the projected demand for water and wastewater services, and other utilities, based on the land use framework described above. This framework intends to be consistent with Coastal Act priorities, including visitor-oriented development, public access and recreation, and environmental and scenic protection. The Plan’s approach to the roadway network is covered in Chapter 3.
Potable Water Supply
The North Coast County Water District (NCCWD), an independent water purveyor, supplies water to Pacifica and part of San Bruno. The district gets its water from the San Francisco Public Utilities Commission (SFPUC) through the Hetch Hetchy system. The District also has rights to a limited amount of surface water from the South Fork of San Pedro Creek for six months of the year. Pacifica’s water is pumped from San Andreas Lake and the Harry Tracey Water Treatment Plant in Millbrae via a main distribution line under Skyline Boulevard, Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) to the Milagra Ridge storage tank. From there, water for northern Pacifica is pumped to the Christian Hill tank on Skyline Boulevard and then distributed by gravity to smaller tanks and to customers. Water for southern Pacifica is piped from the Milagra Ridge tank to the Royce tank, off Fassler Avenue, and then to smaller tanks and to customers. Overall, the system is divided into 34 pressure zones, each separated by pressure-reducing valves.6
WATER CAPACITY AND USAGE
The NCCWD system’s 14 storage tanks have a total capacity of 23.8 million gallons, enough to supply the service area with water for seven days at the District’s average daily usage rate of 3.24 million gallons per day (mgd).7 The District’s contract with SFPUC allows for a maximum purchase of 3.84 mgd.
WATER CONSERVATION
Water use in the District has steadily declined in recent years due to conservation programs and infrastructure repairs. Water conservation will continue to be important in coming years. The Water Conservation Act of 2009 sets an overall target to reduce urban per capita water use by 20 percent by the end of 2020, with an interim target of 10 percent by the end of 2015. The Water Conservation in Landscaping Act provides a Model Water Efficient Landscape Ordinance and requires that all jurisdictions adopt it or one at least as effective.
The City has established procedures to meet the requirements of the state’s Model Ordinance. A coordinated response by the City and the NCCWD will help Pacifica meet the requirements of this legislation, and stay beneath the water supply limit established by the SFPUC.
NCCWD has completed the first phase of a project that pumps treated wastewater from the City’s Calera Creek Water Recycling Plant through a new system of pipes for use as irrigation water for parks, playing fields, and landscaped areas. When the project is fully implemented, it is estimated to have the potential to save up to 55 million gallons of drinking water annually.8
INFRASTRUCTURE MODERNIZATION
Pacifica’s water pipes and storage reservoirs are aging and in need of modernization. NCCWD’s current Capital Improvement Plan focuses on minimizing the risk to the water supply that could result from a major seismic event. NCCWD replaced three major water tanks in recent years, and has completed the installation of backup generators at all 14 of its storage tanks. It will add sensors allowing automatic shutdown of key tanks during a major earthquake, and install “jumper nodules” at joints in the pipe system. The transmission main that brings water to Pacifica from the regional system is located above the San Andreas Fault as it follows Skyline Boulevard in San Bruno. NCCWD is committing resources both to short-term pipe inspection and repair along the main line, and to a study of the feasibility of developing an alternative and reliable water source.9 Beyond these modernization efforts, Pacifica and NCCWD are dependent upon the safety and durability of the Hetch Hetchy system.
6 Bay Area Water Supply and Conservation Agency (BAWSCA). BAWSCA Annual Survey-FY 2017-18. March 2019. Accessed at http://www.bawsca.org,2019.
7 BAWSCA, 2019.
8 North Coast County Water District (NCCWD). Amended 2015 Urban Water Management Plan. January 2018. Accessed at http://www.nccwd.com/ October 2019.
9 North Coast County Water District (NCCWD). 20-Year Long-Term Master Plan. February 2016. Accessed at http://www.nccwd.com. October 2019.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
WATER QUALITY
SFPUC monitors water at the source and at local treatment plants for turbidity, organic and inorganic chemicals, microbial quality, mineral content, and radiological quality. NCCWD monitors water as it enters the District’s system, and takes weekly water samples from various locations. Pacifica’s water is consistently high-quality and safe to drink, meeting all standards set by the California Department of Health Services and the United States Environmental Protection Agency.10
Wastewater
The City operates a wastewater treatment plant, sewage lift stations, and stormwater pump stations, as well as the citywide system of sewer mains and lateral pipes that connect to homes and businesses. Waste water flows through 105 miles of main pipes to five sewer pump stations, and on to the Calera Creek Water Recycling Plant.
The City’s topography prevents gravity flow to the plant, and requires pump stations at Linda Mar and Sharp Park.
CALERA CREEK WATER RECYCLING PLANT
The Calera Creek Water Recycling Plant (CCWRP), located on the south flank of Mori Point, is a tertiary treatment plant, brought online in 2000 to replace the old Wastewater Treatment Plant in West Sharp Park.
The new plant uses ultraviolet disinfection, which allows effluent to be released to wetlands without residual chlorine. The plant has facilitated the creation and restoration of wetlands along Calera Creek, bringing yearround flow to a naturalized stream channel. The CCWRP is also the source for a portion of Pacifica’s landscape irrigation water under NCCWD’s water recycling project. Testing at the Calera Creek Water Recycling Plant indicates that discharges generally meet applicable water quality standards, although there have been some isolated instances of non-compliance.
USAGE AND CAPACITY
Average annual wastewater flows declined from 3.7 million gallons per day (mgd) on average in 2001 to 2.9 mgd in 2008, but were projected to rise to 3.2 mgd by 2012. The CCWRP has a dry weather capacity of 4.0 million gallons per day (mgd), a peak hourly dry weather capacity of 7.0 mgd, and a peak hourly wet weather capacity of 20 mgd.11 Because of Pacifica’s projected slow growth, the Plant will have adequate capacity for the next 15 to 20 years. The City shall monitor wastewater discharges from existing and newly permitted development to ensure that it plans for additional capacity in advance of projected need in the event actual discharge rates exceed these projections.
PLANNED IMPROVEMENTS
The City intends to undertake the following projects:
• Replacement of the ultraviolet (UV) treatment system at the CCWRP; • Phase II of the Sewer System Master Plan Update; and
• Sharp Park Pump System odor control upgrade.
An Inflow and Infiltration study will determine improvement needs in the collection system. This will serve as a basis for project priorities and future master planning. 10 North Coast County Water District (NCCWD). Amended 2015 Urban Water Management Plan. January 2018. Accessed at http://www.nccwd.com/ October 2019.
11 RWQCB, 2006.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Electricity and Gas
Pacific Gas & Electric (PG&E) provides gas and electric services to Pacifica homes and businesses. With energy obtained from power plants, natural gas fields, and renewable energy sources in northern California. The availability of electricity and gas services is not expected to become an issue during the planning horizon.
Solid Waste Collection and Recycling
Solid waste collection and recycling services in Pacifica are provided by Recology of the Coast, a division of Recology. Recology, based in San Francisco, operates a number of landfills, waste transfer and materials recovery facilities, including the recycling yard at 1046 Palmetto Avenue in Pacifica. Recology emphasizes waste reduction and diversion, and is the largest compost facility operator by volume in the United States. In Pacifica, Recology of the Coast currently provides curbside pick-up of garbage, recyclables, and green waste for both residential and commercial customers.
The City has enacted an ordinance requiring all food vendors to use biodegradable or compostable service ware. Also, both the City and San Mateo County have recycling divisions that provide information to help residents and businesses reduce and divert waste from landfills.
Policies
Guiding Policies
LD-G-9 Water Conservation. Work with the Water District to meet State targets for reducing per capita urban water use by 10 percent by 2015 and 20 percent by 2020.
Pacifica’s water conservation efforts will include water efficient landscaping requirements, incentives for water conservation, and development of a system to use recycled wastewater.
LD-G-10 Wastewater Treatment. Ensure that the City maintains adequate capacity to handle wastewater, and continue to expand wastewater recycling.
Implementing Policies
DEVELOPMENT CAPACITY
LD-I-27 Public Service Priorities. Ensure that needs generated by development or uses permitted over the planning period are adequately served by existing and planned public works facilities, and plan for the maintenance, operation, expansion and improvement to public facilities considering threats from coastal hazards. Support studies that evaluate the condition of critical facilities, especially public works infrastructure that has been identified as vulnerable to hazards. Studies shall include alternatives analyses for potential retrofit, improvements, relocation, or other considerations.
In the event that existing or planned public works facilities can accommodate only a limited amount of new development, services to coastal dependent land use, essential public services and basic industries vital to the economic health of the region, state, or nation, public recreation, commercial recreation, and visitor-serving land uses shall not be precluded by other development.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) LD-I-28 Water Supply. Support the Bay Area Water Supply & Conservation Agency in advocating for reliable and fairly priced water from the San Francisco regional water system.
LD-I-29 Water Efficient Landscaping. Collaborate with the North Coast County Water District (NCCWD) to design and implement a water-conserving landscaping ordinance that meets State requirements.
The State of California has a Model Water Efficient Landscaping Ordinance, which can be adapted to the City’s needs. A coordinated response by the City and the NCCWD will help Pacifica reduce water use and stay beneath the water supply limit established by San Francisco Public Utilities District.
LD-I-30 Incentives for Water Conservation. Encourage the NCCWD to continue and expand its water conservation incentive programs, including free water-efficient fixtures and rebates for water-efficient appliances.
LD-I-31 Water Recycling. Collaborate with the NCCWD to expand the water recycling project, involving new pipes and pumping stations, to allow treated wastewater from the Calera Creek Water Recycling Plant to be used for irrigation of landscaped areas in additional parts of the City.
The feasibility of expanding this project to include other potential uses of recycled water such as linkages with fire hydrants will be evaluated.
LD-I-32 Water Storage. Support the NCCWD in its efforts to provide adequate emergency water storage in Pacifica.
LD-I-33 Waste Water Treatment Capacity. Continue to monitor wastewater generation rates so decision-makers are aware of the impacts on the treatment plant from new development, and plan for additional capacity in advance of projected need.
LD-I-34 Sewer System Connections. Require all new development to be connected to the City's sewer system.
LD-I-35 Sanitary Sewer Discharge. Ensure that discharges of treated wastewater from the Calera Creek Wastewater Recycling Plant continue to comply with the Sanitary Sewer System Permit.
LD-I-36 Waste Collection. Periodically evaluate the City’s waste collection contract to ensure that Pacifica residents and businesses receive high-quality and cost effective service.
LD-I-37 Public Services for New Development. Development shall only be approved if it can be shown that it can be accommodated by adequate and sustainable public services (including in terms of water, sewer, and circulation) without any significant impacts to coastal resources.
Public service development shall be limited to levels that are sufficient to accommodate LCP consistent development, including at buildout, and shall not be allowed if it would be growth inducing past that threshold.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) 3 PUBLIC ACCESS AND
RECREATION
Open space is a defining feature of the Pacifica Coastal Zone, an extraordinary resource, and a priority for the community. Parks, schools, and public utility services are a vital part of a livable and sustainable Pacifica. The purpose of this chapter is to document existing public open space and community facilities and infrastructure, identify priority improvements, and ensure that they meet the needs of community members. The close relationship between open space, parks, recreation, and schools is highlighted.
An important part of coastal planning under the Coastal Act is identifying and protecting public access to the shoreline. With this in mind, this chapter provides policies for coastal access, and describes improvements that are proposed to be undertaken during the planning period to enhance recreational use of the coastline.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
3.1 COASTAL ACT FRAMEWORK
Section 30210 of the Coastal Act states that “maximum access, which shall be conspicuously posted, and recreational opportunities shall be provided for all the people consistent with public safety needs and the need to protect public rights, rights of private property owners, and natural resource areas from overuse.” The Coastal Act establishes specific requirements for public access to and along the coast, and identifies lower-cost visitor-serving and recreational use of Coastal Zone land as high priorities. Furthermore, Section 30006 of the Coastal Act states that “the public has a right to fully participate in decisions affecting coastal planning, conservation and development; […] and that the continuing planning and implementation of programs for coastal conservation and development should include the widest opportunity for public participation.” Policies from Chapter 3 of the Coastal Act which are most relevant to the subject matter of this chapter include, but are not limited to, the policies listed below. Chapter 3 of the Coastal Act, available in Appendix A, is incorporated by reference into this chapter.
Coastal Act Policies
Article 2: Public Access
• Section 30210 Access; recreational opportunities; posting • Section 30211 Development not to interfere with access • Section 30212 New development projects
• Section 30212.5 Public facilities; distribution
• Section 30213 Protection, encouragement, and provision of lower cost visitor and recreational facilities. • Section 30214 Implementation of public access policies; legislative intent • Article 3: Recreation
• Section 30220 Protection of certain water-oriented activities • Section 30221 Oceanfront land; protection for recreational use and development • Section 30222 Prioritize visitor-serving commercial recreational facilities on private lands • Section 30223 Upland areas
• Section 30224 Recreational boating use; encouragement; facilities • Article 6: Development
• Section 30252 Maintenance and enhancement of public access • Section 30254 Public works facilities
3.2 COASTAL ACCESS
Under the Coastal Act, the public’s right of access to the sea is protected (Section 30211). New development along the coastline is expected to provide public access from the nearest public roadway, except where public access would endanger public safety or fragile coastal resources or where there is adequate access nearby (Section 30212). Public access requirements are to be implemented in a way that allows flexibility in the time, Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) place, and manner of access based on site characteristics such as topography, natural resources, and the privacy of adjacent property owners (Section 30214). To the greatest extent feasible, public coastal access facilities should be distributed along the coastline to prevent overcrowding or overuse of any area (Section 30212.5).
The Coastal Act requires that local coastal land use plans include a public access component to coordinate public and private access improvements. Coastal access points in Pacifica are detailed in Table 3-1 and shown in Figure 3-1. Some of the access points are privately-owned, while others are on public land. Two types of access points are distinguished: those that provide beach access, and those that provide bluff-top access or viewpoints.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 3
-1: Coastal Access
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Coastal Access Points with Beaches
Public access to beaches in Pacifica exists at Sharp Park Beach, Rockaway Beach, and Pacifica State Beach. The shore can also be reached by a public coastal access ramp across private property at Oceanaire Apartments (formerly Land’s End Apartments) in the West Edgemar-Pacific Manor neighborhood, and a public easement on the south side of the San Francisco RV Park.
Coastal Access Points at Bluff-tops or Overlook Points
Bluff-top or promontory access with views over the coastline exists at Mori Point and on the Northern Coastal Bluffs. Direct views to the Ocean are provided at Esplanade Avenue; along Beach Boulevard; at Rockaway Beach; and from the Ocean Shore Railroad berm and the top of Kent Road in the Pedro Point neighborhood.
A multi-purpose trail was constructed in 2006 at the south end of Esplanade Avenue directly north of the San Francisco RV Park. Access and overlook points are listed on Table 3-1.
Coastal Access Improvements
The City is planning improvements to the public access point south of the San Francisco RV Park as part of repairs to the Milagra Creek stormwater outfall, and may develop a small public park or bluff-top viewing area on City-owned land along Esplanade Avenue if such improvements are feasible1.
The City has supported potential trail improvements by GGNRA to create additional public access on the Northern Coastal Bluffs and at Pedro Point Headlands. A coastal access point has been identified on Rockaway Headlands, where the public could have the opportunity to experience this spectacular setting. LCLUP policies identify additional coastal access improvements.
Coastal Access with Development
According to the Coastal Act, new development is required to provide maximum beach access from the nearest public roadway to the shoreline and along the shoreline, except where specific conditions apply. This provision does not apply to all types of new development, including reconstruction of a single-family house or improvements to structures which do not change the intensity of use (California Public Resources Code Section 30210-30214).
Right of Access Acquired Through Use
Along the California coast the general public has historically used numerous coastal areas. Trails to the beach, informal parking areas, beaches, and blufftops have provided recreational opportunities for hiking, picnicking, fishing, swimming, surfing, diving, viewing and nature study. The public may have the right to use the property by permission of the owner or the public may acquire the right through use of the property without permission.
This is sometimes referred to as a “public prescriptive easement.” This term recognizes that the use must continue for the length of the “prescriptive period” before a public easement comes into being. In California the prescriptive period is five years.2
1 See Glossary for Coastal Act definition of “feasible.” 2 California Coastal Commission, “Some Facts About Public Prescriptive Rights,” accessed July 2013 at http://www.coastal.ca.gov/access/pr-accessfacts.pdf Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) TABLE 3-1: COASTAL ACCESS POINTS
Map Name Beach
Access?
Ownership Detail Proposed Improvement
1 North City Boundary No GGNRA Bluff top. Isolated beach access using informal trails. Erosion concerns.
Support bluff trail development on
GGNRA land.
2 West Fairmont Foredune No GGNRA Bluff top. Isolated beach access using informal trails. Erosion concerns.
Support bluff trail development on
GGNRA land.
3 Pacific View Villas
Condominiums
No Private Bluff top. Accessible from Palmetto Avenue or from trail at Oceanaire Apartments.
4 Oceanaire Apartments
(formerly Land’s End
Apartments)
Yes Private High bluffs. Path and stairway to beach available to public, privately maintained.
5 Esplanade at Manor No City Steep bluffs. Coastal erosion has resulted in loss of houses, and fencing across entire stretch. Trail exists in 500-block of Esplanade Avenue.
Pursue small public park and trail on
bluff-top in 400-block of Esplanade
Avenue if feasible.
6 San Francisco RV Park No Private Bluff top. Lateral trail connects to 500-block of Esplanade Avenue.
7 South of San Francisco RV
Park
Yes Private
(public
easement)
Coastal bluffs. Beach accessible by informal path. Off-street parking provided. Erosion concerns.
Improve public access and restore
bluff conditions.
8 Cottages at Seaside No Private Bluff top. Lateral trail along bluff. 9 Northern Beach Boulevard No City Seawall along Beach Boulevard and armored bluff shoreline.
Limited on-street parking on Beach Boulevard.
10 Pacifica Pier and Vicinity Yes City Access to beach at San Jose, Montecito Avenues across armored bluffs, and to Pier at end of Santa Rosa Avenue. Popular fishing area. Erosion concerns. Parking at City-owned lot.
Maintain public parking as part of
redevelopment of City-owned 2212
Beach Boulevard property and
maintain lateral access along Beach
Boulevard to the Pier.
11 Sharp Park Beach
Promenade
Yes City and State Low bluffs between beach and park. Popular for walking, jogging, fishing, ocean viewing, beachcombing. Parking available along Beach Boulevard.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) TABLE 3-1: COASTAL ACCESS POINTS (CONTINUED)
Map Name Beach
Access?
Ownership Detail Proposed Improvement
12 Clarendon Road Yes City and State Access to long beach across very low bluffs, protective berm.
Parking available along Beach Boulevard.
13 Sharp Park, South End Yes City/County
of SF
Beach access from south end of berm. Access point is reached by GGNRA's Mori Point Trail.
14 Mori Point No GGNRA Steep rocky bluffs, subject to rockfalls. Trail improvements and habitat restoration in progress.
15 Mori Point Public Parking
Lot
Yes GGNRA Small parking lot at Mori Point Rd. & Bradford Way. Mori Point Trail provides access to beach and bluff top trails.
17 Calera Creek Public
Parking Lot
Yes City Small parking lot west of Reina del Mar & Highway 1 intersection.
Calera Creek Multi-use Trail provides access to Rockaway Beach. 18 Rockaway Beach, North
End
Yes City, private Low armored bluffs to sandy beach. Informal beach access. Public parking lot provides access to beach, most of which is privatelyowned Ensure public access.
19 Rockaway Beach Seawall No City Promenade above seawall provides ocean views. Parking available in private lots or on-street.
20 Rockaway Beach, South
End
Yes Private Gentle slope to sandy beach. Popular for surfing, ocean viewing.
Served by public parking lot for 60 vehicles. Also a trailhead for Coastal Trail.
Ensure public access to the beach.
21 Rockaway Headlands No Private Headlands with steep cliffs descending to cobble beach. No formal access. Erosion concerns.
Provide public trail to overlook point
as part of development or land
conservation.
22 North End of Pacifica
State Beach
Yes State Unrestricted access along beach and Coastal Trail. Nearest parking at public lot at Crespi Drive.
23 Central Pacifica State
Beach
Yes State Unrestricted beach access, and access to Coastal Trail. Public lot across Highway 1 at Crespi Drive provides 175 parking spaces, restrooms and changing facilities/
Provide additional signage and
amenities at Crespi Drive parking lot
in relation to proposed extension of
Baquiano Trail.
24 South End of Pacifica
State Beach
Yes State Unrestricted beach access and access to Coastal Trail. Public parking for State Beach provided in two parking lots, accessed from Highway 1 and San Pedro Avenue.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) TABLE 3-2: COASTAL ACCESS POINTS (CONTINUED)
Map Name Beach
Access?
Ownership Detail Proposed Improvement
25 North Side Pedro Point
Shopping Center
Yes Private Informal trail access, and customer parking at shopping center. Improve new segment of Coastal Trail along former railroad berm.
26 Oceanshore Railroad
Berm
No Private Narrow sandy beach backed by private residences and the old Oceanshore Railroad berm, about 80-100 feet in height.
Conduct a prescriptive rights study.
27 Shelter Cove No Private Steep bluff. Access by steep, informal trail on private land. High-up views over Shelter Cove, Pedro Point.
Conduct a prescriptive rights study.
28 Pedro Point Headlands No Public Headlands with steep cliffs. Limited trail access exists from trailhead at Highway 1.
Trail and access improvements
expected under land steward
management; new trails should
provide coastal views from Pedro
Peak.
Source: Pacifica General Plan, 1980; Dyett & Bhatia 2019 Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Policies
Guiding Policies
PR-G-1 Coastal Access and Recreational Opportunities. Provide maximum coastal access and recreational opportunities for all people consistent with public safety needs and the need to protect public rights, rights of property owners, and natural resource areas from overuse, including access at each point identified on Figure 3-1.
PR-G-2 Management of Public Access. Regulate the time, place, and manner that public access is provided, based on such factors as topographic and site constraints; the fragility of natural resources; public safety; and the privacy of adjacent residential uses.
PR-G-3 Distribution of Public Coastal Facilities. Continue to distribute public facilities, including parking areas or facilities, so as to mitigate against the impacts of overcrowding or overuse by the public of any single area.
PR-G-4 Vehicle Miles Traveled. The City shall strive to implement infrastructure and programs which support a significant reduction in vehicle miles traveled (VMT).
Implementing Policies
PR-I-1 Public Shoreline Access. Continue to ensure that new development does not interfere with the public’s right of access to the sea where acquired through use or legislative authorization, including, but not limited to, the use of dry sand and rocky coastal beaches to the first line of terrestrial vegetation.
Formalized public access locations are shown in Figure 3-1.
PR-I-2 New Development and Coastal Access. Require that new development along the coastline provide public access from the nearest public roadway to the shoreline and along the coast, and be designed to minimize impacts to public coastal access and recreation. Ensure that impacts are mitigated through the dedication of access or trail easements or the provision of improvements to other public access points.
The City may grant exceptions to this requirement where public access would pose a safety risk or threat to fragile resources, or where adequate access exists nearby.
PR-I-3 Private Roads and Gates. Prohibit gates and other barriers designed to regulate or restrict access on private roads where such barriers have the potential to impede access to public trails and recreational areas.
PR-I-4 Maintenance of Public Coastal Access. Require a public or private entity to be responsible for required public access ways. Until such an entity agrees to be responsible for liability and maintenance of such access ways, they are not required to be open for public use. Dedicated public access ways should be designed to provide views as well as access connections to or along the shore.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-5 Impediments to Public Access. Prohibit restrictions on public parking that would adversely affect public access to beaches, trails, or other recreational lands along the coast except where necessary to protect public safety. Such restrictions include the installation of “private beach” and “private parking” signs, landscaping, and painting red curbs in the public right-of-way.
PR-I-6 Structures on Public Beaches. Limit structural development on public beaches to that which is necessary for public access or safety, such as lifeguard towers, waste receptacles, or wheelchair accessways. Such development shall be able to be removed or relocated, and shall be sited and designed to minimize adverse impacts on public access, recreation, and coastal resources.
The limitations of this policy shall not apply to shoreline protection structures permitted in accordance with Section 30235 of the PRC and related policies within this LCLUP.
PR-I-7 Adjustment of Lateral Shoreline Easements. Require that new lateral shoreline easements, where required, automatically adjust as needed to move in response to changes to the shoreline (“rolling easements”).
New development must demonstrate that lateral access can be maintained for the expected life of the project, including consideration of effects from sea level rise. Alternatively, the City may determine that lateral public access is not necessary where public access would pose a safety risk or threat to fragile resources, or where adequate access exists nearby.
PR-I-8 Temporary Events. Ensure that temporary events minimize impacts to public access, recreation, and coastal resources through the Parks, Beaches, and Recreation special events permitting process. Consistent with Coastal Commission Guidelines, a Coastal Development Permit shall not be required unless the event meets all of the following criteria:
• Is held between Memorial Day weekend and Labor Day; and, • Occupies all or a portion of a sandy beach area; and, • Involves a charge for general public admission or seating where no fee is currently charged for use of the same area (not including booth or entry fees).
Only temporary event meeting all the above criteria shall require coastal development permit review, however, the Planning Director may also exclude from permit requirements temporary events meeting all the above criteria when:
• The fee is for preferred seating only and more than 75% of the provided seating capacity is available free of charge for general public use; or, • The event is held on sandy beach area in a remote location with minimal demand for publicv use, and there is no potential for adverse effect on sensitive coastal resources; or
• The event is less than one day in duration; or
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) • The event has previously received a coastal development permit and will be held in the same location, at a similar season, and for the same duration, with operating and environmental conditions essentially the same as those associated with the previously-approved event.
The Planning Director (or the Coastal Commission’s Executive Director if the Planning Director’s determination is challenged) may determine that a temporary event, even an event that might otherwise not require a coastal development permit per this section above, shall require a coastal development permit if he/she determines that unique or changing circumstances exist relative to the particular temporary event that have the potential for significant adverse impacts on coastal resources. Such circumstances may include, but shall not be limited to, the following:
• The event, either individually or together with other temporary events scheduled before or after the particular event, precludes the general public from use of a public recreational area for a significant period of time; or • The event and its associated activities or access requirements will either directly or indirectly impact environmentally sensitive habitat areas, rare or endangered species, significant scenic resources (including as mapped on the LCP Land Use Plan maps or as determined during project review), or other coastal resources; or
• The event is scheduled between Memorial Day weekend and Labor Day and would restrict public use of roadways or parking areas or otherwise significantly impact public use or access to coastal waters; or • The event has historically required a coastal development permit to address and monitor associated impacts to coastal resources.
Temporary events located solely within the Coastal Commission’s original coastal development permit jurisdiction area require review and determination of coastal development permit requirement or temporary event exemption from the Coastal Commission
PR-I-9 Fees and Time Restrictions. Ensure that public beaches and parks in the Coastal Zone are free to access or maintain lower-cost user fees and parking fees, and minimize parking lot and beach curfews to the extent feasible in order to maximize public access and recreation opportunities.
PR-I-10 Northern Coastal Bluffs. Promote potential trail improvements by GGNRA to create controlled public access to the bluffs, while protecting Northern Coastal scrub and other vegetation. (See Points 1 and 2 on the Coastal Access map, Figure 3-1.)
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-11 Esplanade at Manor. Develop a small public park or viewing area and a trail on City-owned bluff top land along the 400-block of Esplanade Avenue (Point 5 on the Coastal Access map, Figure 3-1), if such improvements are feasible3.
PR-I-12 Coastal Access Point South of San Francisco RV Park. Improve public access along easement south of the San Francisco RV Park (Point 7 on the Coastal Access map, Figure 3-1) as part of Milagra Creek stormwater outfall project, including trail improvements and natural restoration. Lateral access along the bluffs as well as vertical trail improvements should be provided from this coastal access point to City- and Coastal Commission-required public access at San Francisco RV Park to the north, and to properties to the south upon future redevelopment.
PR-I-13 Beach Boulevard. Ensure that public access to the coast at the Promenade and Pier (Points 10 and 11 on the Coastal Access map, Figure 3-1) is maintained and enhanced by redevelopment at the City-owned 2212 Beach Boulevard site, including continuation of public parking.
PR-I-14 Rockaway Beach. Ensure that public access to Rockaway Beach (from Points 18 through 20 on the Coastal Access map, Figure 3-1) is maintained.
PR-I-15 Rockaway Headlands. On the Headlands south of Rockaway Beach, create public access to coastal views (Point 21 on the Coastal Access map, Figure 3-1).
PR-I-16 Central Pacifica State Beach. Provide additional signage and amenities at Crespi Drive parking lot in relation to a proposed trail route connection between the coast and the Baquiano Trail in Sweeney Ridge (Point 23 on the Coastal Access map, Figure 3-1).
PR-I-17 North Side of Pedro Point Shopping Center. Construct a new segment of Coastal Trail along the former Ocean Shore Railroad Berm (Point 25 on the Coastal Access map, Figure 3-1).
PR-I-18 Pedro Point Headlands. Extend trails on Pedro Point Headlands to a coastal overlook point. (See Point 28 on the Coastal Access map, Figure 3-1) PR-I-19 Rockaway Quarry. If a safe public route can be developed on the Quarry uplands, create coastal access along a new trail connecting Rockaway Beach with Mori Point, as part of a conservation proposal or new development.
PR-I-20 New Coastal Access Points. Pursue development of new coastal access points wherever possible based on new acquisitions of public land or easements, within fiscal limitations for maintenance of the access points. 3 See Glossary for Coastal Act definition of “feasible.” Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
3.3 OPEN SPACE AND RECREATION
The Coastal Act seeks to protect, encourage, and provide lower-cost visitor and recreational facilities and maximize public recreational opportunities in the Coastal Zone (Section 30213), as well as to preserve areas especially suited for ocean-oriented recreational use (Section 30220) unless the demand is not likely in the foreseeable future or similar recreation is already adequately provided for locally (Section 30221). Upland areas necessary to support coastal recreational uses should also be preserved (Section 30223). Section 30224 specifically promotes development of facilities for boating use. New development along the coast should ensure that the recreational needs of new residents will not overload coastal recreation areas (Section 30252).
Parks and recreation facilities provide community gathering places, opportunities for relaxation, passive and active recreation, enjoyment of the natural environment, and a break from the stresses of everyday life. Public open space in Pacifica also defines neighborhoods, establishes urban edges, creates scenic vistas, protects coastal resources, and protects rare and endangered or threatened plants and animals and their habitats.
Pacifica has over six miles of coastline and beaches, offering recreation opportunities that include isolated beach experiences, outstanding fishing, surfing, tide-pooling and diving. Trails provide public access along much of Pacifica’s coastline. Pacifica also provides City parks in a variety of sizes for local residents and visitors, maintains a partnership with local school districts making school play fields available for community use, and has a historic coastal public golf course. Existing parks and proposed improvements are shown on Figure 3-2, Parks and Open Space System.
In addition to the extensive public land in Pacifica’s Coastal Zone and the recreation opportunities it affords, the Local Coastal Land Use Plan designates certain areas for Low-Intensity Visitor-Serving Commercial uses. This development priority is covered in Chapter 2.
Regional Parks and Beaches
Regional Parks
Regional parks and beaches in the Coastal Zone total approximately 450 acres, and are listed in Table 3-2. This park land is owned and managed by various agencies, including the National Park Service, the State of California, the City and County of San Francisco, and the City of Pacifica. The City does not have permitting authority over park land owned by other public agencies. While the California red-legged frog and the endangered San Francisco garter snake are noted within the Mori Point and Sharp Park areas, these or other sensitive species may be present in other regional park or beach areas.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) TABLE 3-2: REGIONAL PARKS AND BEACHES IN THE COASTAL ZONE Park Name or Category Owner Acres
Regional Parks
Mori Point (GGNRA) National Park Service 106
Northern Coastal Bluffs (GGNRA) National Park Service 17 Pedro Point Headlands (GGNRA)1 City of Pacifica, State of California 160 Sharp Park2 City and County of San Francisco 128
Subtotal 410
Beaches
Sharp Park Beach City and County of SF, State of California 14 Rockaway Beach Private 4.5
Pacifica State Beach State of California, City of Pacifica 21 Subtotal 40
Total 450
Notes:
(1) As of 2012, Pedro Point Headlands is owned by the City of Pacifica and the California Coastal Conservancy. (2) Only portion within Coastal Zone is counted. Portion of Sharp Park Beach within Sharp Park is calculated under “Beaches”.
Source: San Mateo County Assessor's Office, 2008; City of Pacifica, 2010; Dyett & Bhatia, 2012.
GOLDEN GATE NATIONAL RECREATION AREA
Mori Point and land on Pacifica’s Northern Coastal Bluffs are part of the National Park Service’s Golden Gate National Recreation Area (GGNRA), which extends in segments from Point Reyes, through San Francisco, to the Santa Cruz Mountains. Additional land owned by the California Coastal Conservancy and the City of Pacifica on Pedro Point Headlands may be added to the GGNRA in the future. As of 2009, GGNRA estimated approximately 17 million visitors to the Recreation Area as a whole, up from 13 million visitors to 74,820 acres of parkland in 2004.4 Protected ridges and coastal bluffs in and adjacent to the GGNRA are features of major local and regional significance as well as being vantage points for impressive views of the coast and bayside ridges and valleys.
NORTHERN COASTAL BLUFFS
GGNRA manages approximately 17 acres of bluffs along the ocean in the far northern end of Pacifica, nearly contiguous with GGNRA-managed coastal land around Mussel Rock in Daly City. This land offers wide open views from Palmetto Avenue. There is currently no improved public access. GGNRA intends to preserve and enhance the natural and scenic values of their cliffs, with some public access.
MORI POINT
Mori Point, a 106-acre promontory between Sharp Park and Rockaway beaches, was added to the GGNRA in 2002. Mori Point is accessible from the Coastal Trail along Calera Creek, from the Sharp Park levee at Clarendon and Beach Boulevard, or from Mori Point Road in the West Fairway Park neighborhood. The San Francisco garter snake and California red-legged frog are found on Mori Point, 4 National Park Service, http://www.nps.gov/goga/parkmgmt/statistics.htm, accessed 2009.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) and the unit is managed for the protection of these species, while trail enhancements are also being provided.
SHARP PARK
The 400-acre Sharp Park is the result of a 1917 land bequest by the Sharp family to the City and County of San Francisco, on the condition that the land remains in recreational use. Sharp Park contains an 18-hole public golf course, with 14 of those holes located in the Coastal Zone and occupying 128 acres between the ocean berm and Highway 1. Sharp Park Golf Course was established in 1932 and designed by British golf course architect, Alister MacKenzie. Sharp Park Golf Course provides low-cost golf to the general public, with reduced greens fees for Pacifica and San Francisco residents. Sharp Park Golf Course also includes habitat for the California red-legged frog and the endangered San Francisco garter snake. In 2009, the San Francisco Recreation and Park Commission adopted a restoration plan that would retain the golf course, while also creating more habitat by realigning parts of the course.
PEDRO POINT HEADLANDS
Pedro Point Headlands is the coastal extension of San Pedro Mountain, jutting into the Pacific west of Highway 1 north of Devil's Slide. Most of Pedro Point Headlands within the Planning Area are now owned by the State of California or the City of Pacifica. The Headlands will be managed for habitat protection and public enjoyment. The construction of the Devil’s Slide Tunnel allowed the bypassed highway segment to be converted to a trail in 2014. Parking areas and trailheads are also now available at this segment, and new trails have been developed to link the trailhead at the north end with trails on Pedro Point Headlands.
Beaches
PACIFICA STATE BEACH
Pacifica State Beach, stretching more than a half mile between Pedro Point and the Rockaway Headlands, is one of the most popular surfing spots in the San Francisco area. By a 2005 estimate, more than one million visitors use Pacifica State Beach every year. Most of the beach and dunes are owned by the State and are part of the state parks system, but are managed by the City of Pacifica.
Improvements completed in 2004 included rehabilitation of the Linda Mar Sewage Pumping Station, wetlands restoration, shoreline protection, dune restoration, improvements to the Coastal Trail, and new public restrooms.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 3
-2: Parks and Open Space System
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Rockaway Beach
Rockaway Beach lies on a small bay between rocky headlands. The north end of the beach may be accessed from a seafront plaza at the end of Rockaway Beach Avenue. A parking lot connects the south end of the beach to a new segment of the Coastal Trail crossing the Headlands between Rockaway Beach and Pacifica State Beach. The new section of Coastal Trail along Calera Creek can be reached from the south end of Rockaway Beach.
SHARP PARK BEACH AND PACIFICA PIER
Sharp Park Beach extends from Mori Point along the west side of the Sharp Park levee to the West Sharp Park neighborhood. The southern section is owned by the City and County of San Francisco as part of Sharp Park, while the northern portion is owned by the State. The beach is open to the public, and is popular for walking. It is reached from the south from a small trailhead at Mori Point, and from the north at the Beach Boulevard Promenade, where public parking is available. The Promenade also provides access to Pacifica Pier.
Open Space Task Force Recommendation
An Open Space Task Force, convened by City Council in 1984 “to identify, prioritize, and seek means for long-range preservation of significant open space in Pacifica,” identified 51 properties as priorities for preservation. Preservation strategies include public acquisition of land or conservation easements; General Plan and zoning changes; use of Transfer of Development Rights; and action by a local land trust. The Open Space Task Force recommendations include land that has been permanently preserved since the Report was produced. Land on Mori Point, Pedro Point Headlands, the Northern Coastal Bluffs, Esplanade Bluff, Sharp Park Beach, and Pacifica State Beach were acquired by land trusts, the City of Pacifica, the California Coastal Conservancy, or the National Park Service for conservation.
Priorities for Regional Park Land in the Planning Area
The General Plan identifies land on the Northern Coastal Bluffs and the bluffs along Esplanade Avenue as priorities for permanent conservation because of the presence of sensitive natural communities and the risks of development along the coast. This land may be managed by GGNRA, the City, or others, with development rights transferred with use of the City's TDR program.
On a variety of other sites shown on Figure 3-1 as “Partial Conservation with Development,” open space is expected to be preserved as part of development.
City Parks and Playfields
Section 30252 of the Coastal Act states that new development along the coast should ensure that the recreational needs of new residents will not overload coastal recreation areas.
City parks and school playfields provide active use areas and areas for local passive enjoyment for Pacifica residents. City parks and school grounds in the Coastal Zone total approximately 10 acres.
The Coastal Zone includes one neighborhood park, Fairmont West, which covers five acres and includes a soccer field, basketball hoops, and public restrooms. Palmetto Mini-Park provides a small playlot for the West Sharp Park neighborhood, while more ample playfields are available for afterschool use at Ingrid B. Lacy Middle School.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) The most prominent City of Pacifica recreational facilities in the Coastal Zone are Beach Boulevard Promenade and the Pacifica Municipal Pier. Beach Boulevard Promenade is located above the seawall in the West Sharp Park neighborhood. It is served by public parking, and is popular for walking and jogging. The Promenade provides access to the Pacifica Pier and Sharp Park Beach. Pacifica Municipal Pier, built in 1973, is one of the Bay Area’s most popular places to fish. No fishing license is needed, and several types of fish can be caught from the pier. The pier is adjacent to the Promenade and picnic area along Beach Boulevard. A café is located at the foot of the pier.
Park Standards
The City’s park standards are intended to meet the needs for active and passive recreation and enjoyment of Pacifica residents and visitors over the planning period. Pacifica requires developers to dedicate land or pay an in-lieu fee to provide park land at a ratio of five acres per 1,000 residents. All residents should be within a short walk (one-quarter to one-half mile) of either a neighborhood park or usable outdoor area at a school site, but not necessarily both.
Parks and Recreation Priorities
According to the California Parks and Recreation Society, the most valued feature of parks is the preservation of and access to outdoor spaces, particularly minimally-developed areas in a nearly natural state and areas with facilities for children’s play and for exercise and group sports. Parks also provide a sense of social connectedness.5 The desire for natural areas is abundantly met in Pacifica.
Pacifica has a good inventory of park land. Because population growth is expected to be slow during the planning period, little new land is needed (an estimated 13 acres citywide). Fiscal constraints, meanwhile, make park maintenance a challenge in the future. Pacifica is likely to focus on enhancing existing parks, and evaluating opportunities to create new parks on underused public land and as part of new development. Opportunity sites for new parks and park improvements are shown in Figure 3-
2. 5 California Park & Recreation Society. Market Research to Support CRPS Building the Brand Initiative. March 2009.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Policies
Guiding Policies
PR-G-5 Coastal Areas Suited for Water-Oriented Recreation. Continue to protect coastal areas suited for water-oriented recreational activities.
This policy applies to but is not limited to the following: fishing at Pacifica Pier, surfing and other water recreation at Pacifica State Beach. The policy is based on Section 30220 of the California Coastal Act.
PR-G-6 Development of City Parks. Create and enhance neighborhood and pocket parks and plazas to provide access to local recreational space to all Pacifica residents.
PR-G-7 Recreation Facilities. Enhance outdoor recreation facilities and services in local parks, in coordination with youth and adult leagues and community groups with priority given to sports fields and off-leash dog play areas.
PR-G-8 Community Gathering Place. Create or enhance one or more public plazas or central gathering places where all Pacifica residents come together. This place or places should be connected with concentrated, mixed use areas.
PR-G-9 School Playfields. Continue to cooperate with the school districts to make school playfields available for public use after school hours.
PR-G-10 Open Space Preservation. Preserve open space that protects natural resources, visual amenities, and public health and safety.
The top priority areas for conservation are beaches, oceanfront bluffs, ridgelines, hillsides areas adjacent to existing open space, and areas that support critical wildlife habitat and endangered species.
Implementing Policies
REGIONAL PARKS AND BEACHES
PR-I-21 Public Access Improvements and Habitat Restoration. Support GGNRA in implementing habitat restoration and public access improvements at its park units in the Planning Area, including Sweeney Ridge, Milagra Ridge, Mori Point, and the Northern Coastal Bluffs.
PR-I-22 Pedro Point Headlands. Complete the planned transfer of City-owned land on Pedro Point Headlands to an appropriate public or private land steward, and pursue land and/or trail easement acquisition if necessary to connect Headlands trails with the Coastal Trail in Pacifica.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-23 Northern Coastal Bluffs. Promote the permanent conservation of private land on the Northern Coastal Bluffs to protect sensitive natural communities and protect against coastal erosion. Manage protected land together with adjacent GGNRA land.
PR-I-24 Sharp Park. Support the continued operation of golf at Sharp Park Golf Course consistent with redeveloping source protection, natural hazard, and coastal vulnerability policies, existing CDP terms and conditions, and support development of additional recreational uses in upland portions of the Park located outside the Coastal Zone east of Highway 1.
The long-term management approach should protect existing development from hazards; protect and restore habitat; and maintain public access to and along the beach.
PR-I-25 Sharp Park and Pacifica State Beaches. Maintain partnership with the State of California in ownership and management of Sharp Park Beach and Pacifica State Beach, balancing public access with protection of habitat and shoreline conditions.
PR-I-26 Rockaway Beach. Pursue public ownership of Rockaway Beach and promote management that enhances natural shoreline processes.
PR-I-27 Fees and Time Restrictions. Ensure that public beaches and parks in the Coastal Zone maintain free and lower-cost user fees and parking fees, and minimize parking lot and beach curfews to the extent feasible in order to maximize public access and recreation opportunities.
CITY PARKS AND SCHOOL PLAYFIELDS
PR-I-28 Park Land Dedication or In-Lieu Fees. For new land divisions and residential development, continue to require the dedication of land or payment of in-lieu fees to provide park land at a ratio of five acres per 1,000 residents.
PR-I-29 Park Development to Meet Park Standards. Develop new parks in a timely manner using in-lieu fees or land dedicated as part of new development, to ensure that Citywide park and recreation space is available to the community at a ratio of
6.4 acres per 1,000 residents by 2040.
PR-I-30 Community Use of School Grounds and Recreation Facilities. Maintain existing joint-use agreements and seek to strengthen these as needed to ensure community use of play areas and indoor recreation facilities at school sites.
PR-I-31 Parks as Part of Future Development. Create future public spaces, accessible to the community, as part of the redevelopment of publicly-owned sites and of larger privately-owned sites, including the Rockaway Quarry site, the undeveloped San Pedro Avenue site, and the Milagra Canyon site.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-32 Pocket Park Opportunity Sites on Public Land. Explore opportunities to develop pocket parks on public land that is not otherwise needed as neighborhood gathering places and play areas.
Potential sites are on street stubs or right-of-way not needed to serve future development, and within easy walking distance to adjacent residences. Amenities should include, but not be limited to, play or exercise equipment in park-deficient areas, and benches or picnic tables at scenic overlook points.
3.4 TRAIL SYSTEM
Trails play an important role in enhancing the recreational use of the coastline. Coastal Act provisions call for upland areas necessary to support coastal recreational uses to be preserved (Section 30223).
Existing Trails in the Planning Area
The Pacifica Planning Area has 67 miles of trails through GGNRA land, in San Pedro Valley County Park, and along the coast, including segments along City streets. Historically, the City has sought to create a system that includes a coastal trail, a ridgeline trail, and lateral trails connecting the ridgeline to the coast, as shown in Figure 3-3.
Coastal Trail
Pacifica's Coastal Trail currently runs almost the length of the Planning Area, from the Daly City boundary to Pedro Point Shopping Center. The route follows Palmetto Avenue alongside the Northern Coastal Bluffs, turns onto Esplanade Avenue through the West Edgemar-Pacific Manor neighborhood, and follows Palmetto again through West Sharp Park. The trail then branches into two parallel routes.
The western route travels along the levee between Sharp Park Golf Course and Sharp Park Beach, and then east along the north side of Mori Point. The eastern route follows Francisco Boulevard south, meeting the other trail at the Mori Point trailhead. From this point, the Coastal Trail follows a path alongside Highway 1 and then arcs west along the restored section of Calera Creek in the Rockaway Quarry site. After a short on-street segment in the Rockaway Beach district, the trail follows a path over the Rockaway Headlands and then along the inland side of the dunes at Pacifica State Beach. The trail currently comes to an end at the south end of the beach.
The City in 2015 acquired an approximately five acre parcel in the Pedro Point Headlands which provided a critical link to other publically-owned land in the Headlands. As a result, it should be possible to construct a trail west of Highway 1 to extend the Coastal Trail from its current terminus southward through the Pedro Point Headlands to connect with the Devil’s Slide Trail.
Ridge Trails
Lateral trail connections to the Bay Area Ridge Trail along Sweeney Ridge exist along Milagra Ridge, Mori Ridge and Cattle Hill. Trailheads with parking lots are at Milagra Ridge, Skyline College, Sneath Lane, Devil’s Slide, and Shelldance Nursery off of Highway 1. Connections between the Coastal Trail and the Ridge trails are currently lacking.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Pedro Point Headlands
Trails at Pedro Point bring hikers from a trailhead on Highway 1 to an overlook point and to Pedro Summit. They are minimally improved, although the trailhead created with the opening of the Devil’s Slide Tunnels in 2014 has created a new public parking lot. As mentioned above, a trail connection is planned to fill the gap in the Coastal Trail between Pedro Point Shopping Center and Devil’s Slide Trail.
Trailheads and Parking Areas
Existing trailheads in the Coastal Zone exist at the Beach Boulevard Promenade; Mori’s Point Road; Shelldance Nursery; Rockaway Beach; and Pacifica State Beach. Planning Area trails also can be reached from trailheads east of the ridge at Skyline College and at Sneath Lane. A trailhead with parking exists on Highway 1 approaching Devil’s Slide Trail.
Priorities for Enhancing Pacifica's Trail System
Developing an integrated trail system, as proposed in this Plan, will enhance access to and enjoyment of Pacifica's natural resources for both residents and visitors. It will make possible a variety of loop walks taking in a diversity of scenery and connecting large open spaces with Pacifica’s activity centers.
The trail system will function both as a system with a Pacifica identity, and as a link in regional and state trail systems.
The Plan proposes four areas of improvement. First, new trail segments are needed to connect the Coastal and Ridge trails and to provide better access to and through Pacifica's neighborhoods. Second, new and improved crossings of Highway 1 are needed to make the new trail connections work. Third, new trailheads and improvements are needed to assure access at locations that reinforce existing activity centers. And fourth, a signage and wayfinding program is proposed to make the overall system legible both as a Pacifica system and as part of the California Coastal Trail and Bay Area Ridge Trail.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 3
-3: Trail System
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Policies
Guiding Policies
PR-G-11 Trail System Expansion. Expand the trail system in Pacifica to create a connected trail network with communitywide links to open space and recreation facilities, as shown on Figure 3-3, and to enhance and augment California Coastal Trail connections and connectivity.
Implementing Policies
PR-I-33 New Segments of California Coastal Trail in Pacifica. Create new trail segments through Rockaway Quarry uplands and the Pedro Point Headlands as part of development or as separate Coastal Trail initiatives.
PR-I-34 Coastal Trail Between Pacifica and Devil’s Slide. Work with involved agencies and property owners to achieve a trail connection west of Highway 1 between Pedro Point Shopping Center and the new north Devil’s Slide trailhead.
PR-I-35 Pedro Point Headlands Trails. In coordination with GGNRA and the California Coastal Conservancy, support trail improvements on Pedro Point Headlands, and extension of these trails to the new trailhead at the north end of Devil’s Slide.
PR-I-36 Pedestrian Improvements on Palmetto and Esplanade. Make sidewalk and streetscape improvements along Coastal Trail segments of Palmetto and Esplanade Avenues a priority.
Streetscape improvements for Palmetto Avenue will also support a pedestrian-oriented mixed use district in West Sharp Park and may provide for a separated path along the Northern Coastal Bluffs.
PR-I-37 Lateral Ridge Trail Extensions. In coordination with GGNRA, pursue lateral ridge trail extensions, providing new connections between the Coast and Sweeney Ridge.
• Extend the Baquiano Trail down Fassler Avenue and across private land to Crespi Drive and Highway 1. This would connect the Portola Expedition Camp with the San Francisco Bay Discovery Site on Sweeney Ridge, giving visitors the experience of this historic route.
• Extend the Farallon View Trail spur west on a new easement with a new trailhead on Caltrans land, or a shared parking agreement with the church at the base of the hill.
• Provide a safe and attractive connection between the foot of the Milagra Ridge Trail and the coastal access point north of the San Francisco RV Park.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-38 Highway 1 Over-Crossing at Mori Point. Support the development of a new over-crossing between Shelldance Nursery and Mori Point, in coordination with GGNRA and Caltrans to enhance visitor facilities in Pacifica. As an interim alternative, strengthen signage and safe connections to the existing Sharp Park Golf Course undercrossing in the East Fairway Park neighborhood.
The new over-crossing design should consider the ability to safely accommodate wildlife movement across Highway 1 as a design feature.
PR-I-39 Harry Dean Trail. Improve and extend existing trails connecting City-owned parks and open spaces in Pacifica's northern neighborhoods to reach Skyline Boulevard on the east and Westline Drive along the Northern Coastal Bluffs.
PR-I-40 Pier to Ridge Trail. Develop a direct pedestrian route between the Sharp Park Beach Promenade and upper Sharp Park Road, also connecting the West and East Sharp Park neighborhoods. Improvements should include:
• A new trail extending east from the top of Talbot Road to Sharp Park Road, with a public access easement; and
• Pedestrian improvements and trail signage along Talbot Road and San Jose or Santa Rosa Avenue.
PR-I-41 Enhanced Visitor Services at Shelldance Nursery. Support the proposal for enhanced visitor services at the Shelldance Nursery site, including an education/visitors’ center, additional parking, and better access, to be implemented by GGNRA.
Shelldance Nursery may become the hub of Pacifica’s trail system, with direct access to coastal and ridge trails, visitor amenities, and proximity to visitor-oriented commercial areas.
PR-I-42 Hikers’ Huts, Campgrounds, and Related Amenities. Support the development of hikers’ huts, kiosks, and cabins for hikers on Sweeney Ridge and at Rockaway Headlands, and the development of campgrounds on sites where sufficient management and services can be provided by the property owner or operator.
PR-I-43 Signage and Wayfinding. Develop the overall image and accessibility of Pacifica’s natural assets, through a program of consistent and attractive signage for the trail system.
• Provide wayfinding signage along all on-street portions of the trail system; at junctions of off-street trails; and at trailheads.
• Provide interpretive signage to identify landforms visible from viewpoints; provide information about the natural environment and sensitive species; information about historical and cultural points of interest; information about unique features of Pacifica; and other subjects.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Each trail should have an identity as part of the Pacifica trail system (e.g., Trail 1—Coastal Trail).
Where routes are shared with the California Coastal Trail or the Bay Area Ridge Trail, these should also be identified.
PR-I-44 Pacifica Parks and Trails Map and Guide. Develop a map of Pacifica’s parks and trails to support recreation activities, marketing and outreach efforts.
3.5 BICYCLE AND PEDESTRIAN NETWORK
As with the multi-use trail system described above, bicycle facilities expand access to the coastline for both local residents and recreational users, and support Coastal Act provisions for recreational use of upland areas (Section 30223) and maintenance and enhancement of public access (Section 30252).
Bicycle Circulation
Pacifica’s highly scenic setting, recreational amenities, and connections to major regional open spaces and trails make it ideal for recreational bicycle riding, and for local trips along the coastline or in the valley neighborhoods. However, the network of bicycle routes is inconsistently developed and not always well marked.
The proposed bicycle system, shown in Figure 3-4, is a critical component of the circulation network.
It shows both bicycle routes and improved signage to improve access and safety. It provides bicyclists with a complete network of continuous and safe access along the coastal corridor and between neighborhoods. These designations support the City of Pacifica Bicycle and Pedestrian Master Plan.
The Bicycle System includes three types of bikeway classifications, consistent with Chapter 1000 of the Caltrans Highway Design Manual:
• Class I facilities (bike paths or trails) have exclusive right-of-way, are separated from roads, and exclude general motor vehicle traffic.
• Class II facilities (bike lanes) are marked by painted stripes on the roadway. While the striping provides preferred space for bicycles, they are still part of the paved road and are not exclusive for bicycles.
• Class III facilities (bike routes) share traffic lanes with automobiles and are only identified by signage.
North-South Bikeway
Pacifica’s north-south bikeway primarily runs parallel to and along SR 1. The northern segment includes a Class III facility (a signed bike route) along Esplanade Avenue, a Class II facility (bike lane) along Esplanade and Palmetto Avenues, and another stretch of Class III bike route on Francisco Boulevard to Mori Point Road and State Route 1. At this point, the bikeway becomes a Class I facility (bike path) between Mori’s Point Road and Reina del Mar Avenue. From here, the north-south bike route goes along a Class I facility along Calera Creek through the Rockaway Quarry site to Rockaway Beach. From here the route has two branches: a bike path over the Rockaway Headlands and along the dunes from Rockaway Beach to Pacifica State Beach; and an unofficial route with a 9-foot-wide Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) striped lane along SR 1. An enhanced north-south bikeway following Plan policies will provide options for more direct travel on major roadways, or more sheltered travel on Class I facilities or low-traffic streets.
Other Bikeways
A Class II (striped bike lane) and Class III (signed bike route) facility runs east-west along Sharp Park Road between SR 1 and SR 35, providing a primary connection to the coastline from the east. Sharp Park Road has a continuous eastbound bike lane; the westbound bike lane currently exists only between College Drive and SR 35. No immediate bikeway improvements are proposed for the east-west route along Sharp Park Road.
A series of additional bikeways are proposed to serve the Sharp Park, Vallemar, Rockaway Beach, Linda Mar, and Pedro Point neighborhoods. These routes are planned to provide convenient access to most Pacifica residents, to follow streets with gradual slopes, and to use through streets with adequate right-of-way for bicycle facilities where possible. Proposed routes within the Coastal Zone are shown on Figure 3-4.
Bicycle Parking and Amenities
As of 2000, there were 24 bike racks in Pacifica with a combined capacity for 130 bikes. Bike racks are close to most major destinations along the two bike routes, but are not present at Rockaway Beach, the beach access location at the end of Esplanade Avenue, in the Pedro Point area, at some of the public schools, or in the Pacific Manor commercial area. Improved parking and amenities will increase the comfort and appeal of biking in Pacifica during the planning period.
Pedestrian Circulation
Walking is a basic and often overlooked part of all trips that also involve transit or automobiles.
Walking can be ideal for short, local trips for shopping, school, and recreation. Adequate facilities for pedestrians help to ensure access to and along the coast. This section focuses on pedestrian facilities that support comfortable and safe day-to-day pedestrian travel. See Section 3.4 for a discussion of the trail system in Pacifica, and Section 3.6 for a discussion of complete streets.
Sidewalks and Crosswalks
Where sidewalks are present in Pacifica, they are generally between five and 10 feet wide and in good condition. Crosswalks are provided at all studied intersections with appropriate striping and, where appropriate, pedestrian signals. Under the Plan, pedestrian facilities will be improved and enhanced, especially where pedestrian activity is a priority. Pedestrian Priority Zones are shown on Figure 3-5, Roadway Network and Planned Improvements.
Pedestrian and Bicycle Crossings of Highway 1
Along SR 1, there are five east-west crossings for automobiles, pedestrians and bikes, at Gateway Drive, Manor Drive, Paloma Avenue, Clarendon Road, and Sharp Park Road. In addition, there are pedestrian/bicycle overcrossings at Milagra Drive and San Jose Avenue, and an undercrossing at Sharp Park Golf Course.
Figure 3-4: Bicycle Network
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Policies
Guiding Policies
PR-G-12 Bicycle and Pedestrian Routes. Develop safe and efficient bicycle and pedestrian access within Pacifica and to local points of interest. Establish trails, bike routes and pedestrian amenities connecting neighborhoods to major shopping and public facility destinations, and fill in gaps in the existing network.
PR-G-13 Recreational Access. Provide recreational access to coastal resources and public open space in keeping with Pacifica’s natural environment, with links to regional trails and bicycle corridors.
PR-G-14 Mobility for All Users. Create a safe and attractive walking environment accessible for all users, particularly persons with disabilities, seniors, and younger residents and visitors.
PR-G-15 Connections Across Highway 1. Enhance under- and over-crossings of Highway 1 for pedestrians and bikes to improve accessibility and connect neighborhoods to each other and to the coast.
PR-G-16 Coastal Trail and North-South Bikeway. Complete the Coastal Trail and the north-south bikeway from the north to sound end of the City parallel to Highway 1, providing clear, safe and efficient means to traverse coastal Pacifica.
Implementing Policies
PEDESTRIAN ACCESS
See also policies that support pedestrian circulation listed under Section 3.4: Trail System and Section 3.6: Roadway Network and Planned Improvements.
PR-I-45 Pedestrian-Oriented Street Improvements. Reduce curb-to-curb road widths and employ roadway design features, such as wider sidewalks, islands, bulb-outs, improved striping and signage, street trees, pedestrian amenities, pedestrian countdown signals, and pedestrian refuges where feasible and appropriate. Priority locations for pedestrian-oriented design improvements include:
• Pedestrian Priority Zones, which include mixed use and higher-intensity areas;
• Streets that are part of Pacifica’s proposed trail system improvements; • Streets adjacent to schools; and
• Locations where pedestrian-automobile collisions have occurred.
Exhibit 2
LCP-2-PAC-20-0036-1
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
BICYCLE FACILITIES
PR-I-46 Direct North-South Bikeway. Complete the City’s direct north-south bicycle route to optimize safety and comfort and enhance access to and along the coast.
Improvements should include the following, from north to south:
• Class II bike lanes along Westline Drive north of Palmetto Avenue; • A continuous Class II bikeway on Palmetto Avenue between Westline Drive and the San Francisco RV Park;
• A Class II bikeway on Clarendon Road, Lakeside Road, Francisco Boulevard, and Bradford Way, improving the bikeway between West Sharp Park and Mori Point;
• A reconstructed Class I path between Mori Point and Reina del Mar Avenue that is wider and more sheltered from the highway than the current trail; • A Class II bikeway on SR 1 between Reina del Mar Avenue and San Pedro Creek, providing a direct travel route along SR 1 through southern Pacifica with well-marked and buffered lanes; and
• A Class III bikeway along SR 1 between San Pedro Creek and the Devil’s Slide bypass.
PR-I-47 Parallel North-South Bikeway West of SR 1. Create and upgrade bicycle facilities that provide an alternative for north-south bicycle travel west of Highway 1.
Improvements should include the following, from north to south:
• A Class I trail in a public access easement along the west side of the San Francisco RV park as part of any development or change in use, ensuring public access along the coast (a previous path was lost to erosion); • A Class III route along Beach Boulevard between Paloma Avenue and Clarendon Road;
• A Class III bikeway along Dondee Drive in the Rockaway Beach district, connecting existing Class I trails along Calera Creek to the north and Rockaway Headlands to the south;
• A Class I trail parallel west of SR 1 from San Pedro Creek to the Devil’s Slide bypass.
Many sections of the parallel north-south bikeway are shared with the Coastal Trail for pedestrians, covered in Section 3.4: Trail System. These sections should be evaluated for their functionality for both pedestrians and cyclists.
PR-I-48 Bicycle Lockers at Public Parking Lots. Replace existing bicycle lockers at the public parking lot on Crespi Drive, and add lockers at the park-and-ride lot on Linda Mar Boulevard.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-49 Bicycle Parking at Recreation and Shopping Areas. Provide bicycle parking at the following locations:
• Park and beach access at the northern end of Esplanade Drive (Lands End Apartments);
• Manor Plaza shopping area; and
• Pedro Point Headlands/Devil’s Slide.
PR-I-50 Bicycle Parking Requirements for New Development. Require bicycle parking facilities in new high density residential, mixed use, and non-residential development.
PR-I-51 Bicycle Parking at Schools and Workplaces. Work with the school districts and employers to provide adequate bicycle parking at all schools and workplaces with 30 or more employees.
PR-I-52 Funding for Bicycle Facilities. Designate a portion of the City’s annual street construction and improvement budget to fund bikeway design and construction, and continue to pursue potential funding from MTC and San Mateo County, as well as appropriate Federal and State programs.
PR-I-53 Eligibility Criteria for Improvements. Review eligibility criteria for funding for improvements from the State, to obtain additional funding for bicycle facilities.
3.6 ROADWAY NETWORK AND PLANNED IMPROVEMENTS
Section 30254 of the Coastal Act states that new or expanded public works facilities must be designed and limited to accommodate needs generated by development or uses permitted consistent with the Coastal Act.
Roadway Network
Three major routes connect Pacifica to the rest of the region. State Route (SR) 1 (Coast Highway) traverses the City from north to south, connecting Pacifica to Daly City and San Francisco to the north, and to Half Moon Bay and the San Mateo County coastline to the south, and providing continuous access to the Pacifica coast. SR 35 (Skyline Boulevard) generally runs along the eastern edge of Pacifica, and is a major north-south route connecting to Santa Clara County and San Francisco. Sharp Park Road follows a southwest-northeast route through the center of Pacifica, connecting SR 1 with SR 35.
It continues east of SR 35 in South San Francisco as Westborough Boulevard. Each of these major roadways intersects with I-280, an eight-lane major regional freeway on the Peninsula.
Roadway Classification
Pacifica’s roadway network is comprised of freeways, highways, arterials, collector streets and local streets. Each classification reflects the character of the roadway as well as its function within the context of the circulation system. Figure 3-5 illustrates the roadway network with street classifications.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Mode Priorities
Table 3-3 shows generally how vehicle modes of travel are accommodated on each type of roadway with the City. This table provides a guide for how future roadway improvements should help to produce a complete streets network in Pacifica, with different roadways balancing needs differently to create a system that functions optimally for all users.
TABLE 3-3: MODE PRIORITIES BY ROADWAY TYPE
Facility Transit Bicycles Pedestrians Trucks Automobiles Freeways and Multilane Highways X X
Two-lane Highways
Arterials
Collectors
Local X
X
= Dominant
= Accommodated
= Incidental
= Prohibited
1 Transit has priority over bicycles on Arterials, where conflicts exist.
Streetscape Improvements in Pedestrian Priority Zones
Pedestrian priority zones, shown on Figure 3-5, are areas in which high volumes of pedestrian traffic are encouraged and accommodated along the sidewalk. They include portions of Palmetto Avenue, Esplanade Avenue, and other streets in mixed use areas. Sidewalks should be a minimum of eight feet wide with ample pedestrian amenities such as street furniture and wayfinding signs, and a consistent street tree theme. Building frontages should provide a high level of pedestrian interest, with ample windows, doors and architectural articulation. Pedestrian crossings should have a high priority at intersections, with curb bulb-outs at key intersections. In some locations, well-protected mid-block crosswalks may be appropriate. These areas may also feature distinctive lighting, public art, and bicycle facilities at appropriate locations, and stormwater management features.
The City of Pacifica has made public realm improvements in Rockaway Beach and is currently undertaking a streetscape improvement program for Palmetto Avenue, from Clarendon Road north to Paloma Avenue. During the planning period, additional attention will be paid to streetscape improvements in the City’s mixed use centers and visitor-oriented commercial areas.
Roadway Improvements and Complete Streets
Roadway improvements will follow design standards for each roadway classification that take into account a facility’s relation to the larger circulation system; appropriate travel speeds; surrounding land uses; conditions for managing local access; safety; and mode priority, as described in this chapter. These standards will be based on “Complete Streets” concepts, and State and federal requirements for “routine accommodation” of cyclists and pedestrians. They will be flexible enough to adopt the latest and best ideas, and allowing for adjustment to existing right-of-way and special circumstances.
Figure 3-5: Roadway Network and Planned Improvements
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Many roadways in Pacifica offer opportunities for redesign of the existing right-of-way to balance the needs of all users and create a safer and more attractive public realm. Roadway improvements that do not require adjustments to curbs may involve the narrowing of travel lanes to a more compact 10 or 11 feet to accommodate bicycle lanes, or the conversion of four-lane streets to three lanes, with one travel lane in each direction and a continuous center left-turn lane.
Level of Service Standards
Level of Service (LOS) is a measure of the degree of vehicle congestion that occurs during peak travel periods and is the traditional measure of roadway and intersection performance. Level of Service can range from “A” representing free-flow conditions, to “F” representing extremely long delays. LOS B and C signify stable conditions with acceptable delays. LOS D is typically considered acceptable for a peak hour in urban areas. LOS E is approaching capacity and LOS F represents conditions at or above capacity.
In Pacifica’s Coastal Zone, the most critical congestion occurs on SR 1, where certain intersections and roadway segments currently operate at LOS E or F during peak periods. The City’s policy is to limit further deterioration of traffic conditions by evaluating the significance of impacts of new development on highway congestion, and requiring mitigation to maintain, if possible, LOS D for City streets.
Multi-Modal Level of Service
To apply the Complete Streets framework, this Plan identifies qualitative indicators that may be used to prioritize improvements and evaluate projects, for all users, including transit riders, pedestrians, and cyclists, based on the National Cooperative Highway Research Program.6 An LOS grade is established for each mode, based on the user’s perceptions of the quality of service provided by the street. These grades correspond to numerical scores, which are calculated using a variety of inputs that cover the facility design, facility controls, and volumes by mode. The thresholds for each grade are shown in Table 3-4.
TABLE 3-4: DEFINITION OF MULTI-MODAL LEVEL OF SERVICE INDICATORS LOS Transit Bicycle Pedestrian
A
(Good walk access to bus stops,
frequent service, good bus stop
amenities.)
(Few driveway and cross street
conflicts, good pavement condition,
ample width of outside lane,
including parking and bike lanes.)
(Low traffic volumes, wide buffer
separating sidewalk from traffic,
numerous street trees, and high
parking occupancy.)
B
C
D
E
F
(Poor walk access to bus stops,
infrequent service, poor schedule
adherence, no bus stop
amenities.)
(Poor pavement condition, narrow
width of outside lane, frequent
driveways and cross streets.)
(High traffic volumes, limited
buffer separating sidewalk from
traffic, few street trees, low
parking occupancy.)
Source: Dowling Associates, 2010.
6 National Cooperative Highway Research Program. “Multimodal Level of Service Analysis for Urban Streets” Report 616. Washington, DC:
2008.
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Planned Improvements
The City currently has two roadway improvement projects in the planning stage in the Coastal Zone.
These improvements are related as part of the Manor Drive Overcrossing project, described below and shown in Figure 3-5. Other improvements to the roadway network are expected to be needed during the planning period to achieve a balance between existing and future land use and traffic carrying capacity.
Manor Drive Overcrossing
The Manor Drive overcrossing is planned to be widened, and signal control is recommended to be added at the intersections of Manor Drive with Oceana Boulevard and Palmetto Avenue. This project includes a new on-ramp to SR 1 from Oceana Boulevard at Milagra Drive.
Additional Improvements to Accommodate Buildout
Additional improvements are justified based on the analysis of existing and projected future traffic conditions with projected growth during the planning period, compared to the City’s level of service standards. For example, signal optimization at the intersection of Linda Mar Boulevard and SR 1 would be calibrated to improve traffic conditions during peak hours.
Policies
Guiding Policies
PR-G-17 Comprehensive Circulation System. Create a comprehensive, multi-modal transportation system with streets and highways; transit facilities; a continuous network of sidewalks and bicycle routes.
PR-G-18 Serve All Users. Plan, design, build, and maintain transportation improvements to support safe and convenient access for all users with priority for “complete streets” projects that facilitate walking, bicycling and transit use wherever possible.
PR-G-19 Context Sensitivity. Plan, design, and build transportation improvements so that they respect the design and intensity of use of the surrounding environment.
Transportation improvements will be undertaken in consultation with local residents and businesses.
PR-G-20 Congestion on Highway 1. In consultation with Caltrans, seek solutions to ease the traffic congestion that occurs on Highway 1 near the Reina Del Mar, Fassler Avenue, and Linda Mar Boulevard intersections. Strive for the greatest benefit with the least environmental impact possible.
PR-G-21 Coordination of Local and Regional Actions. Coordinate local transportation planning and improvements with State, Regional and County agencies to ensure consistency with the Regional Transportation Plan, the Congestion Management Program, and other regional actions.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-G-22 Walkable Neighborhoods. Improve pedestrian amenities to create more walkable neighborhoods, especially in mixed use activity centers and around schools.
PR-G-23 Abandonment of Public Rights-of-Way. Ensure that abandonment or vacation of public rights-of-way does not adversely impact coastal access.
Implementing Policies
COMPLETE STREETS IMPLEMENTATION
PR-I-54 Connective Street Network. Require new streets created as part of new development to continue existing street patterns, and include stub access points to adjacent undeveloped areas.
PR-I-55 Complete Streets Design Approach. Update the City’s engineering design standards to implement Complete Streets concepts, and include Complete Streets design principles in the planning of all circulation improvement projects. These principles include, but are not limited to:
• Maximizing connections with the existing circulation network; • Minimizing ingress and egress points and consolidating entries; • Providing public transit facilities and improvements; • Providing bicycle and pedestrian facilities (bike lanes and sidewalks); • Minimizing pedestrian crossing distances by providing curb extensions; medians with safety refuges, and other treatments;
• Improving safety by providing lighting and traffic calming devices for residential streets;
• Including landscaping (trees, medians, key intersections and gateways); • Providing appropriate signage, including street signs, entry signs, directional signs, and coastal access identification signs;
• Providing street furniture; and
• Maintaining on-street parking.
Any proposed development or transportation project that does not adequately incorporate Complete Streets concepts should be supported by findings of why all travel modes have not been accommodated.
The Complete Streets approach should be applied to new roadway construction as well as to retrofit projects.
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-56 Complete Streets in the Project Development Process. Incorporate complete streets concepts at each stage of the development process for projects affecting the right-of-way, including the following:
• As part of design review, both at Phase I and Phase II, require documentation of how the “routine accommodation” of bicyclists and pedestrians has been satisfied in planning and design;
• During project review and approval, ensure that the objectives and purpose are consistent with MTC directives on Complete Streets and Routine Accommodation;
• For projects subject to MTC’s Resolution 3765, as amended, work with MTC to secure approval of the Complete Streets checklist and submittal to MTC of all required documents.
• Integrating Complete Streets considerations should require only minor additions to normal design, acquisitions, and approval guidelines.
PR-I-57 Roadway Retrofits. Identify opportunities to retrofit existing roadways to create complete streets, giving priority to arterial and collector streets where travel lanes may be narrowed or where four lanes may be converted to three, including a center left turn lane, with bicycle facilities added in both cases.
Palmetto Avenue and Esplanade Avenue may present opportunities for roadway retrofits. Roadway retrofits will also help to complete the bicycle network, as described in Section 5.4, and provide safety for cyclists. Ten- and eleven-foot travel lanes are often acceptable for auto and transit use, respectively, without adversely affecting capacity. Roadway retrofits will require additional analysis, such as coastal hazard concerns in areas within the Coastal Zone.
PR-I-58 Streetscape in Mixed Use Areas. Require pedestrian-oriented amenities and design in visitor-oriented commercial and mixed use areas, including wider sidewalks, curb bulb-outs at key intersections, outdoor seating, and public art.
Priority streetscapes include Palmetto between Paloma and Clarendon; Montecito, Santa Rosa, and San Jose Avenues in West Sharp Park; Rockaway Beach Avenue and Dondee Way in Rockaway Beach; and Manor Drive and Aura Vista Drive in West Edgemar-Pacific Manor.
PR-I-59 Block Size and Maximum Street Spacing. For new development at the Quarry site, require streets to be designed to maximize connectivity for automobiles, cyclists, and pedestrians, with blocks between 200 and 600 feet in length. Provide mid-block pedestrian connections where blocks exceed 500 feet in length.
The intent of these standards is to prevent development of introverted neighborhoods, provide flexibility in circulation, and promote access for bicyclists and pedestrians.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-60 Roadway Abandonment/Vacation and Public Access. Do not abandon, vacate, or render unusable any City-owned roadways and/or rights-of-way, unless necessary for reasons of public safety or environmental conservation. Whenever public roadways and/or rights-of-way are proposed to be abandoned, assess the value of maintaining public pedestrian and/or bicycle access, especially where coastal access can be maintained or improved. Abandonment/vacation of any public roadways and/or rights-of-way that may negatively affect coastal resources or public access to the sea will requires a coastal development permit, which shall only be approved if coastal resources can be protected in as good or better conditions as exist at the time of permit evaluation, and subject to terms and conditions to ensure the public’s interests are maintained moving forward. Any public right-of-way that cannot be maintained in a condition suitable for public use shall be offered to another public agency or private association that agrees to maintain the right-of-way for public use.
PR-I-61 Bicycle and Pedestrian Advisory Committee. Create and solicit input from a Bicycle and Pedestrian Advisory Committee (BPAC) on planning and funding for transportation improvement projects
PR-I-62 Sharp Park Area Public Realm. Use development guidelines and design standards specified in the Sharp Park Specific Plan to expand the improvements completed as part of Phase I of the Palmetto Streetscape Plan. These improvements will upgrade the appearance and function of Palmetto Avenue and connecting streets and make them more attractive to pedestrians.
PR-I-63 Additional Pedestrian Facilities on Large Sites. Enhance the pedestrian network with an interconnected system of walkways, continuous sidewalks on both sides of the street, and pedestrian crossings as part of higher-intensity redevelopment of large sites.
PR-I-64 Universal Design. Require all pedestrian facilities to be ADA compliant and accessible to persons with disabilities.
ROADWAY IMPROVEMENTS TO EASE CONGESTION AND IMPROVE LEVEL OF SERVICE PR-I-65 SR 1 Improvements Between South of Fassler and North of Reina del Mar.
Continue to work with the California Department of Transportation (Caltrans) and the San Mateo County Transportation Authority (SMCTA) to improve operations along SR 1.
Improvements to SR 1 should alleviate traffic congestion between north of Reina del Mar and south of Fassler Avenue while minimizing environmental impacts and impacts to adjacent land uses, ensuring adequate local access, and enhancing the community’s image.
PR-I-66 SR 1 and Linda Mar Operations. Work with San Mateo County to evaluate, design and implement improvements to the intersection of Linda Mar Boulevard and SR 1. Improvements that would mitigate regional growth may include providing a westbound right turn overlap phase and increasing the overall cycle length, if warranted.
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) PR-I-67 Manor Drive Overcrossing Improvements. Complete planned improvements to the Manor Drive overcrossing to facilitate traffic movement across SR 1 for all modes.
Improvements should include widening of the overcrossing, possible signal control at the intersections of Manor Drive with Palmetto Avenue and Oceana Boulevard, and a new on-ramp to SR 1 from Oceana Boulevard at Milagra Drive.
PR-I-68 Strategies to Reduce School-Related Peak Hour Auto Congestion. Work with Pacifica School District and Jefferson Union High School District to promote adoption of staggered hours, car-pooling, and use of transit to reduce traffic congestion during peak hours.
This policy applies especially to Vallemar School and the Pacifica School District offices, where trips contribute to traffic congestion around SR 1 and Reina del Mar Avenue.
3.7 PUBLIC TRANSPORTATION
Section 30252 of the Coastal Act states that new development should maintain and enhance access along the coast by facilitating transit service and providing adequate parking or providing a substitute means of serving the development with public transportation, among other means.
Pacifica’s location at the edge of the metropolitan area and its relatively low density makes extensive transit service or use challenging. Just one percent of all trips to or from Pacifica are made using transit.
While as much as four percent of trips between Pacifica and San Francisco are made by transit, only a fraction (under 0.5 percent) of trips within Pacifica are transit trips. Growth during the planning period is expected to be limited, but the LCLUP aims to concentrate new development in mixed use, transitaccessible locations.
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 3
-6: Transit Routes and Facilities
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Transit Service
The San Mateo County Transit District (SamTrans) provides bus service throughout San Mateo County and into San Francisco and Palo Alto. SamTrans provides local service in Pacifica as well as service to and from BART and Caltrain stations.
Bus Routes
As of 2019, nine SamTrans bus routes serve Pacifica’s Coastal Zone (see Figure 3-6). • Routes 14 and 16 make loops through the southern and northern areas of Pacifica serving shopping areas, schools, and services.
• Routes 19 and 49 provide service on school days to serve students. Route 19 makes loops through southern Pacifica and up to Ingrid B Lacy Middle School, and Route 49 connects northern Pacifica to Terra Nova High School.
• Routes 110 and 112 provide service between the Highway 1 corridor in Pacifica and the Daly City and Colma BART stations, respectively. Both terminate at Linda Mar Shopping Center. • Route 118 provides service to Colma BART station during the AM and PM peak hour periods of weekdays.
• Route 140 connects the Pacific Manor shopping center on Palmetto Avenue and Manor Drive to Skyline College and the San Bruno BART station to the east. It extends to Terra Nova High School on school days to serve students.
• Route 294 connects the Linda Mar Park and Ride to Half Moon Bay.
Dial-a-Ride Service
All SamTrans buses are accessible to persons with disabilities. The San Mateo County Transit District also operates dial-a-ride (or paratransit) service for persons who cannot use fixed-route bus service.
Paratransit service in the Planning Area is called RediCoast.
SamTrans OnDemand
In 2019, SamTrans initiated the SamTrans OnDemand rideshare service pilot in the Linda Mar neighborhood in Pacifica. The service offers point-to-point shuttle service within the coverage area for the standard SamTrans fare. Trips can be booked via a smartphone app or through the SamTrans Customer Service Call Center.
Planned Transit Improvements
Regular service updates to SamTrans bus lines are expected as part of an overall system efficiency plan, but no large-scale improvements are expected. Neither BART nor Caltrain have planned improvements that would change service levels in the vicinity of Pacifica.
Park-and-Ride Facilities
Commuter parking is provided at the park-and-ride lot on Linda Mar Boulevard., shown on Figure 3-
6. The lot currently has capacity for 70 vehicles.
Exhibit 2
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Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Policies
Guiding Policies
PR-G-24 Improved Public Transit. Advocate for SamTrans and other public transit providers to improve transit service and facilities, to enable trips to be made without use of a car. In particular, advocate for the expansion of public transit services and facilities to improve public access and recreation opportunities along the coast.
PR-G-25 Transportation Demand Management (TDM). Support TDM strategies to reduce congestion and single-occupant vehicle travel.
Implementing Policies
PR-I-69 Service Optimization. Continue coordination efforts with transit agencies (i.e., SamTrans) to maintain transit service that is safe and efficient, provides convenient connections to high-use activity areas and key destinations outside the City, enhances access to the coast, and responds to the needs of all passengers, including seniors, youth, and persons with disabilities.
PR-I-70 Improved Transit Stops. Work with transit agencies to improve transit stops and access to facilities.
PR-I-71 Park-and-Ride Locations and Attributes. Work with Samtrans to identify changes that would improve the convenience and functionality of Park-and-Ride facilities, and result in increased ridership.
PR-I-72 Transit-Oriented Development. Work with Samtrans to facilitate transit-oriented development in all appropriate locations where existing or projected future rider demand will support it.
PR-I-73 Promotion of Transit Use. Lead an initiative to promote transit use and reduce reliance on the private automobile in order to reduce congestion, reduce greenhouse gas emissions, and improve quality of life.
PR-I-74 Transportation Demand Management Programs. Establish a Transportation Demand Management (TDM) program for City employees that may include transit passes or subsidies, preferential carpool parking, car share programs, bicycle lockers, and other incentives to employees choosing transportation modes other than driving.
PR-I-75 Local Transportation Services. Support expanded funding for Local Transportation Services tailored to the schedules and destinations of students, seniors, and recreational visitors.
Exhibit 2
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Packet Pg. 100 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
3.8 PARKING
Section 30252 of the Coastal Act states that new development should maintain and enhance access along the coast by providing adequate parking or providing a substitute means of serving the development with public transportation, among other means. Section 30212.5 directs that public facilities, including parking areas, shall be distributed so as to mitigate against any impacts related to overcrowding or overuse by the public of any single area.
Parking policies are intended to accommodate parked vehicles used by occupants, visitors, customers, clientele, and employees of a variety of buildings in the City. These policies seek to provide accessible, attractive, secured parking facilities, and to ensure adequate access to beaches and recreational open spaces along the coastline.
On-Street Parking
On-street parking is an important contributor to a street’s functionality. On-street parking is permitted on most residential streets in Pacifica. It is allowed and encouraged on collector streets, and on most arterials in pedestrian-oriented commercial areas. On-street parking can complement both automobile and pedestrian use, and provide a buffer between the two. On-street parking is not permitted on hightraffic roadways such as SR 1, where smooth traffic flow is prioritized.
Off-Street Parking
The City requires off-street parking and loading facilities for all new developments.
Off-street parking is available in public lots in the Planning Area that serve beach visitors and visitors to recreational open space areas.
• Public parking lots for beach visitors exist at Pacifica State Beach, Rockaway Beach, and Sharp Park Beach and Promenade. The public parking lot on Crespi Drive serves the Community Center as well as beach visitors.
• The Northern Coastal Bluffs and the Esplanade bluff are publicly protected open space with limited trail or beach access, and are served by on-street parking. • Trailhead parking is provided on GGNRA land at Shelldance Nursery.
Parking for open space and beach users is shown on Figure 3-3, Trails and Parking Areas. Table 3-5 provides a current inventory of off-street parking for beach visitors in the Planning Area. While the Crespi Drive beach visitor lot is outside the Coastal Zone, it is an important source of parking for coastal and recreational users.
TABLE 3-5: BEACH VISITOR PARKING
Type and Location
Capacity
(approx.)
Crespi Drive 110
Pacifica State Beach (south) 54
Pacifica State Beach (north) 135
Rockaway Beach (south) 50
Rockaway Beach (north) 54
Sharp Park Beach Promenade/Pier 95
Total 498
Source: Dyett & Bhatia, 2013.
Exhibit 2
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Packet Pg. 101 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) In 2009, parking lots at Pacifica State Beach were 60 to 70 percent full on weekdays and full on weekends, year-round. On hot days, the lots are generally full on any day of the week, while on days with strong winds or rain the lots are 10 to 25 percent full. The lot at Crespi Drive and Highway 1 is 30 to 50 percent full on weekdays in the winter, early spring, and late fall, and 40 to 60 percent full on weekdays during late spring, summer, and early fall. On weekends, this lot is 50 to 60 percent full during the cooler seasons and 60 to 80 percent full during the warmer seasons.7 A new parking area serving coastal and recreational visitors has been created near the north tunnel entrance at Devil’s Slide, serving the new trail system at Devil’s Slide and Pedro Point Headlands.
Enhanced visitor services at Shelldance Nursery providing access to GGNRA lands will include expansion of the parking area. Finally, the public parking area at Sharp Park Beach/Pacifica Pier may be reconfigured as part of redevelopment of the former Wastewater Treatment Plant site.
Policies
Guiding Policies
PR-G-26 Private Parking. Ensure adequate off-street parking in all new development.
PR-G-27 Public and Visitor Parking. Facilitate beach and recreational use by providing safe and well-located public parking. Distribute parking areas throughout the Coastal Zone to mitigate against the impacts of overcrowding or overuse by the public of any single area.
Implementing Policies
PR-I-76 Preserve On-Street Parking. Revise the zoning code to preserve on-street parking by limiting the number, location, and size of curb cuts.
PR-I-77 New and Enhanced Trailhead Parking. Support GGNRA, the Coastal Conservancy and others in developing and enhancing new public parking for recreational users at Devil’s Slide Trail and Shelldance Nursery.
PR-I-78 Parking at Sharp Park Beach. Ensure that adequate and well-located public parking is preserved for Sharp Park Beach, the Promenade and Pier as part of any redevelopment of the City-owned Beach Boulevard property.
PR-I-79 Signage for Visitor-Serving Parking. Undertake a citywide program for improving signs for public visitor-serving parking. This may include incorporating smart parking technology for high-demand parking lots to alert drivers to the location of available parking.
PR-I-80 Parking Enforcement. Continue to make parking enforcement a priority at public visitor parking areas.
7 City of Pacifica Parks, Beaches and Recreation Commission, 2009.
Exhibit 2
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3.9 ENVIRONMENTAL JUSTICE
In 2019, the Coastal Commission adopted its first environmental justice policy8. The policy is designed to achieve more meaningful engagement, equitable process, effective communication, and stronger coastal protection benefits under the Coastal Act that are accessible to everyone. While the City of Pacifica has not adopted a formal environmental justice policy, the City recognizes the importance and benefit of inclusive and equitable practices and procedures that reduce impacts on disadvantaged communities.
Policies
Guiding Policies
PR-G-28 Environmental Justice. Strive to implement processes and procedures that promote environmental justice in support of the Coastal Commission’s environmental justice policy.
Implementing Policies
PR-I-81 Inclusive Engagement. Expand notification efforts for major policy documents and projects within Pacifica’s Coastal Zone to underrepresented communities outside of Pacifica.
PR-I-82 Removal of Barriers to Public Participation. Implement efforts to remove barriers that may prevent underrepresented communities from public participation opportunities. Efforts should be made to provide a welcoming, understandable and respectful atmosphere, and to be considerate of the timing, location, and accessibility of any meeting to accommodate the underrepresented communities. 8 California Coastal Commission Environmental Justice Policy, Adopted March 8, 2019, https://documents.coastal.ca.gov/assets/envjustice/CCC_EJ_Policy_FINAL.pdf Exhibit 2
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Packet Pg. 103 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) 4 ENVIRONMENTAL AND
SCENIC RESOURCES
The purpose of this chapter is to provide policy guidance to protect, preserve, and enhance Pacifica’s environmental and scenic resources. Topics covered in this element include hydrology and water quality; biological resources; forest, agricultural, and soil resources; and cultural and historic resources. The protection of environmental resources is a critical subject of regulation at the federal and State levels, and is a focus of the California Coastal Act.
Exhibit 2
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Packet Pg. 104 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
4.1 COASTAL ACT FRAMEWORK
The California Coastal Act provides extensive policies concerning the protection, use, and experience of the coastal environment. Policies from Chapter 3 of the Coastal Act which are most relevant to the subject matter of this chapter include, but are not limited to, the policies listed below. Chapter 3 of the Coastal Act, available in Appendix A, is incorporated by reference into this chapter.
Coastal Act Policies
Article 4: Marine Environment
• Section 30230 Marine resources; maintenance
• Section 30231 Biological productivity; waste water
• Section 30232 Oil and hazardous substance spills
• Section 30233 Diking, filling or dredging continued movement of sediment and nutrients • Section 30234 Commercial fishing and recreational boating facilities • Section 30234.5 Economic, commercial, and recreational importance of fishing • Section 30235 Construction altering natural shoreline • Section 30236 Water supply and flood control
Article 5: Land Resources
• Section 30240 Environmentally sensitive habitat areas; adjacent developments • Section 30241 Prime agricultural land; maintenance in agricultural production • Section 30241.5 Agricultural lands; determination of viability of uses; economic feasibility evaluation • Section 30242 Lands suitable for agricultural use; conversion • Section 30243 Productivity of soils and timberlands; conversions • Section 30244 Archaeological or paleontological resources Article 6: Development
• Section 30251 Scenic and visual qualities
• Section 30253 Minimization of adverse impacts
• Section 30254 Public works facilities
For the purpose of this chapter, these policies may be grouped in six areas: protection of water quality; protection of sensitive habitat on land; protection of natural shorelines; maintenance of land and water for resource-based uses including fishing and farming; protection of cultural resources; and protection of scenic and visual resources. Each of these areas is discussed in the sections that follow.
Exhibit 2
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Packet Pg. 105 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
4.2 HYDROLOGY AND WATER QUALITY
Under the Coastal Act, marine resources are to be “maintained, enhanced, and where feasible, restored” (Section 30230). This is to be achieved by controlling the quality of runoff, supporting natural infiltration and similar means (Section 30231); protecting against oil and gas spills or leaks (Section 30232); and minimizing diking, dredging, or filling of coastal water, including wetlands (Section 30233).
Pacifica’s water resources are unique and numerous, and they provide important benefits to the city, including wildlife habitat, scenic natural corridors, and flood control. Careful management of urban waterways ensures maintenance of water quality, preservation of ecological functions, and safety of surrounding development.
Understanding Pacifica’s surface water and groundwater resources provides a context for policies for hydrology, water quality, and management.
Surface Water
The City of Pacifica’s Coastal Zone is part of eight watersheds, shown on Figure 4-1, Hydrology. Some of the watersheds drain directly into the ocean, while others feed one of five creeks . From north to south, these are Milagra Creek, Sanchez Creek (also known as Sharp Park Creek), Calera Creek, Rockaway Creek, and San Pedro Creek.
Milagra Creek
Milagra Creek drains approximately 460 acres. The drainage area has varied land cover types, including undeveloped portions of the Golden Gate National Recreation Area (GGNRA), and relatively dense residential and commercial development near Highway 1. Milagra Creek has intermittent flow in most years. The lower reaches of Milagra Creek have been altered and the channel hardened in the Coastal Zone reach below Highway 1 to the ocean.
Sanchez Creek
Sanchez Creek watershed, located almost entirely within the City, drains approximately 1,070 acres. Most of the steep hillsides and higher elevations are GGNRA protected open space, while valley bottoms and flatter portions of the hillsides include residential development, Highway 1, and Sharp Park Golf Course. Sanchez Creek has intermittent flow in most years.
At its mouth within the Coastal Zone, Sanchez Creek flows through Horse Stable Pond and exchanges water with Laguna Salada within the Sharp Park Golf Course. Creek flow is then conveyed through a levee to the ocean via a system of pipes. The discharge point of the pipe(s) is often buried in beach sands and is occasionally excavated to allow for free drainage. During high flows, water from the golf course is pumped over the levee into the ocean. There are also several depressional and formerly estuarine wetlands near the mouth of Sanchez Creek at Horse Stable Pond and Laguna Salada.
Calera Creek
Calera Creek drains approximately 1,600 acres via two forks: a main channel to the north, and a smaller southern fork, referred to as Rockaway Creek. Land use is dominated by residential neighborhoods with some businesses along main roads. The contributing area of Calera Creek is altered along the valley bottom and near the mouth.
Exhibit 2
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Packet Pg. 106 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) The City of Pacifica’s wastewater treatment plant is located near the mouth of Calera Creek, west of Highway
1. The lower reach of Calera Creek, in the Coastal Zone, was part of a significant restoration project implemented in 1997 and 1998, which included excavation of a new stream channel, restoration of 16 acres of wetlands and 12 acres of surrounding uplands. The restoration site receives additional tertiary-treated wastewater from the Calera Creek Water Recycling Plant (CCWRP), adding approximately 3.6 million gallons per day (mgd) to the lower reach. The amount of flow generated by the CCWRP varies with rainfall and usage. The creek is now perennial in the lower reach due to the input from the CCWRP. The creek was likely intermittent in at least some years, and is still intermittent with residual pools above the CCWRP discharge point.
Rockaway Creek
Rockaway Creek is south of Calera Creek in the larger Calera Creek watershed. Rockaway Creek parallels Rockaway Beach Avenue, and flows into the southern end of Rockaway Beach. The upper portions of the watershed are primarily open space, while the valley bottom is comprised of a small residential area, which follows the creek.
San Pedro Creek
San Pedro Creek watershed is the largest in Pacifica, draining approximately 5,300 acres. The watershed extends north to Sweeney Ridge, east to Spring Valley Ridge, and south into the slopes of Montara Mountain. San Pedro Creek has several tributaries extending past the City boundaries. These tributaries include the South Fork, Middle Fork, North Fork, and Brooks/Sanchez Creek.
San Pedro Creek supports anadromous steelhead trout, a federally-listed endangered species. This creek also has one of the only functioning estuaries between the Devil’s Slide area and the Golden Gate Bridge. Wetlands along San Pedro Creek provide habitat for the threatened California red-legged frog.
The upper watershed is largely undeveloped, while the lower portion is highly developed with residential subdivisions and commercial shopping centers at Park Mall and near Highway 1. Alterations from urban development have resulted in a deep channel with steep banks. Channel downcutting and erosion throughout the reach has threatened roads and structures, as many residential lots back up against the creek. In order to protect the banks, formal and informal bank stabilization techniques have been installed over the years.
The City and stakeholders (including the California Coastal Conservancy, Go Native, the Pacifica Land Trust, the San Pedro Creek Watershed Coalition, the California Department of Fish and Game, the Army Corps of Engineers, and the State Water Resources Control Board) have implemented restoration projects along the creek resulting in reduced flooding of homes and businesses, reduced erosion of Pacifica/Linda Mar State Beach, and the conservation habitat for steelhead trout.
Exhibit 2
LCP-2-PAC-20-0036-1
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Packet Pg. 107 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Figure 4
-1: Hydrology
Exhibit 2
LCP-2-PAC-20-0036-1
1.a
Packet Pg. 108 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Groundwater
The 700-acre San Pedro Valley Groundwater Basin lies within the City. Alluvial deposits consisting primarily of clays, sands, silts, and some gravels are found throughout the majority of the basin and are the primary waterbearing formation in the Planning Area.1 These deposits are approximately 150 feet thick or more. Water quality, groundwater level, and groundwater storage data for the basin is minimal. The outflow of water from the aquifer occurs by evapotranspiration and seepage to streams, springs, and the ocean. The water table fluctuates seasonally.
In a 1992 study, groundwater wells in the City were monitored to determine the location of seasonally shallow groundwater. The groundwater was mapped for three depths below the ground surface: less than 1.5 feet; less than 3.0 feet; and less than 6.0 feet. Areas within the Coastal Zone with seasonally shallow groundwater include Pedro Point, Fairway Park, and Sharp Park.
Wetlands
The Coastal Act defines wetlands as “lands within the coastal zone which may be covered periodically or permanently with shallow water and include saltwater marshes, freshwater marshes, open or closed brackish water marshes, swamps, mudflats, and fens” (Section 30121). Areas where the water table is at, near, or above the land surface at some time during each year may be identified as wetlands. The criteria for wetland boundary determinations are detailed in California Code of Regulations section 13577(b). Importantly, wetlands in the coastal zone only need meet one parameter (i.e., hydrology, hydric soils, or hydrophytic species) to be considered a wetland, as differentiated from three parameter delineations which require all three to be present (e.g., ACOE delineations).
Seasonal wetlands occur in smaller drainages and localized depressions, forming ponds or flowing water, and are underlain by saturated soils during the winter and spring. Seasonal wetlands also occur along the banks and sediments that accumulate in creeks.
Wetlands in Pacifica are found along riparian areas, drainages, along the coast, and as fresh and brackish water marshes (such as on the Sharp Park Golf Course). The National Wetlands Inventory (USFWS, 2020) has identified different types of wetlands within the Planning Area (Cowardin et al., 1979). These are intertidal marine wetlands and emergent, forested, scrub-shrub, and unconsolidated palustrine wetlands.
Impaired Water Bodies
The federal Clean Water Act requires a Total Maximum Daily Load (TMDL) be established for the pollutants identified as causing the impairment of surface water quality. TMDL refers to the maximum amount of a pollutant that a water body can receive and still meet water quality standards. Generally, TMDL is the sum of the loads of a single pollutant from point and nonpoint sources. In Pacifica’s Coastal Zone, San Pedro Creek and Pacifica State Beach is listed as impaired by coliform bacteria The Environmental Protection Agency approved the TMDL for San Pedro Creek and Pacifica State Beach on August 1, 2013.
1 Department of Water Resources (DWR), 2004.
Exhibit 2
LCP-2-PAC-20-0036-1
4.2 1.a
Packet Pg. 109 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Stormwater
Pacifica’s storm drainage system consists of a collection system and two pump stations. This drainage system acts to convey drainage to area creeks or the ocean. Overall, the City’s system serves 178 miles of roads and 986 inlets, only a small portion of which is within the Coastal Zone.2 San Mateo Countywide Water Pollution Prevention Program The San Mateo County Water Pollution Prevention Program (SMCWPPP) was established in 1990 with the assistance of the San Mateo County City/County Association of Governments. The primary goal is to reduce pollution carried by stormwater, and to maintain compliance with the San Francisco Bay Municipal Regional Stormwater National Pollutant Discharge Elimination System (NPDES) permit. Participating agencies, including the City of Pacifica, must comply with the NPDES Permit by ensuring that municipal operations, new development and redevelopment, industrial and commercial site controls, and construction site controls mitigate water quality impacts to stormwater runoff during construction and operation phases of projects.
Stormwater Management and Site Planning
New development and redevelopment projects are subject to NPDES Provision C.3, and are grouped into categories based on project type. Depending on their category, projects are required to include stormwater controls, including site design measures, source controls, treatment measures, low impact development, hydromodification management, and construction best management practices (BMPs). Projects are also required to complete and implement a Green Infrastructure Plan for the inclusion of low impact development drainage design into storm drain infrastructure, which describes how projects will shift their impervious surfaces and storm drain infrastructure from gray, or traditional storm drain infrastructure where runoff flows directly into the storm drain and then the receiving water, to green—that is, to a more-resilient, sustainable system.
Construction BMPs include scheduling grading and excavation work in dry weather only; installing temporary erosion controls until vegetation is reestablished; effectively managing all run-off within the site and from offsite. Post-construction stormwater treatment measures are required for all projects that create over a certain amount of impervious surface (the current threshold is 5,000 square feet for uncovered parking areas, restaurants, auto service facilities, and gas stations, and 10,000 square feet for other development types.) Stormwater treatment measures that remove pollutants from stormwater during project operations include rain gardens; bioretention areas; and flow-through planters.
San Pedro Creek/Linda Mar Storm Drain Treatment/Diversion Project In 2004, the City completed the Pacifica State Beach Improvement Project. This project has successfully redirected polluted water from first-flush release into the ocean to two constructed wetland treatment swales, and, together with other elements of the project, improved water quality. 2 San Mateo Countywide Water Pollution Prevention Program. Annual report, 2007-08. August 29, 2008.
Exhibit 2
LCP-2-PAC-20-0036-1
1.a
Packet Pg. 110 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Policies
Guiding Policies
ER-G-1 Water Quality. Support the improvement of Pacifica’s water quality, including both surface water and groundwater, through Best Management Practices (BMPs) for stormwater management, stream restoration, and riparian habitat restoration.
ER-G-2 Watershed Management. Recognize the interrelated nature of Pacifica’s hydrology system, its watersheds, and development in the Planning Area, and protect water resources through comprehensive management of entire watersheds.
ER-G-3 Maintain Hydrological Features as a Resource. Ensure both access to and ecological functionality of the hydrological features in Pacifica.
ER-G-4 Retain Natural Processes. Enable natural processes to occur on developed sites, and utilize these processes to enhance the built environment and users’ experiences of it.
Implementing Policies
CREEKS, WETLANDS, AND COASTAL WATERS
Creek Protection and Restoration. Maintain, protect, and restore Pacifica’s creeks, including San Pedro, Rockaway, Calera, Sanchez, and Milagra creeks, as environmental and aesthetic resources. Actions will include, but are not limited to:
• Continuing restoration efforts along San Pedro Creek to improve conditions for steelhead by removing obstacles to fish passage, placing rock weirs to facilitate fish passage, and by monitoring the effectiveness of these projects; • Partnering with local organizations, such as the San Pedro Creek Watershed Coalition, Go Native, the Pacifica Land Trust, and others, on restoration efforts; • Exploring opportunities to collaborate with other agencies and organizations on stream restoration and riparian habitat restoration along Sanchez and Calera creeks; • Enforcing restrictions on the planting of invasive species near creek areas; • Identifying and working with property owners to take advantage of unique opportunities where human active use (e.g., through trail development) would enhance creek appreciation without disrupting ecological function; • Requiring a minimum of 100 feet setbacks from the top of creek banks, or from the outer edge of riparian vegetation, where it exists, whichever is further, for development proposed adjacent to creeks, in keeping with City regulations and Best Management Practices. The 100-foot buffer may be reduced by the minimum necessary (1) to avoid a taking (for private development), or (2) to provide required public services (for public development), provided that the buffer is as close to 100 feet as possible, and no less Exhibit 2
LCP-2-PAC-20-0036-1
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Packet Pg. 111 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) than 50 feet in any case, and provided that creek resource impacts are avoided as much as possible, and unavoidable impacts commensurately mitigated, all as conclusively demonstrated by a qualified biologist to the satisfaction of the City, USFWS, and CDFW. Exceptions to such buffer requirements should be supported by a biological report demonstrating that the adjusted buffer, in combination with incorporated siting, design or other mitigation measures, shall prevent impacts that significantly degrade the creek. Buffer adjustments should also be limited to where the entire subject legal lot is within the buffer or where it is demonstrated that development outside the buffer would have a greater impact on the creek.
• Permitted uses within buffer zones are limited to uses dependent on the resources within these areas and their buffer zones (i.e. habitat management and restoration, scientific research and educational activities, and low-intensity public access and recreation). Temporary disruption (e.g. less than six months) for the construction, alteration, repair, and maintenance of existing or newly permitted facilities or structures is allowed if there are no feasible alternatives, the disruption area is restored to its predisruption state or better within one year from the initial point of impact and there is no significant ground disturbance.
Improvement of Impaired Waterways. Strive to improve water quality in San Pedro Creek, which is listed on the Clean Water Act 303(d) list ofimpaired water bodies, and any other waterway that may be listed as impaired in the future, by reducing and controlling sources of bacterial pollution that affect waterways. .
Funding for Creek Maintenance. Require property owners with parcels adjacent to creeks to pay for creek improvement maintenance.
Wetlands Preservation. Prohibit new development in existing wetlands except as allowed under the federal Clean Water Act and the California Coastal Act. Continue to require formal delineations of wetlands subject to State or federal regulations prior to any proposed development project where potential wetlands have been identified. If impacts on wetlands are unavoidable, compensation measure should be in line with the State’s no-net-loss goal regarding wetlands.
Limitations on Diking, Filling or Dredging. Only permit the diking, filling, or dredging of open coastal waters, wetlands, and lakes for the following purposed where there is no feasible, less environmentally damaging alternative, and where feasible mitigation measures have been provided to minimize adverse environmental effects:
• New port, energy, and coastal-dependent industrial facilities, including commercial fishing facilities.
• New boating facilities and the placement of structural pilings for public recreational piers that provide public access and recreational opportunities. • Incidental public service purposes, including, but not limited to, burying cables and pipes or inspection of piers and maintenance of existing intake and outfall lines.
Exhibit 2
LCP-2-PAC-20-0036-1
4.3 4.3
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Packet Pg. 112 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) • Mineral extraction, including extraction of sand, except in environmentally sensitive areas.
• Restoration activities;
• Nature study, aquaculture, or similar resource-dependent activities.
Minimize Disruption of Dredging. Require any proposed dredging and spoils disposal to be planned and carried out in a way that will avoid significant disruption to marine and wildlife habitats.
Maintain Functional Capacity of Wetlands. Ensure that any diking, filling, or dredging in existing wetlands maintains or enhances their functional capacity.
Any alteration of coastal wetlands identified by the Department of Fish and Wildlife or as defined by the Coastal Commission shall be limited to very minor incidental public facilities, restorative measures, or nature study.
Continued Movement of Sediment and Nutrients. Evaluate the suitability of sediment removed from erosion and flood control facilities to be placed at appropriate points on the shoreline, where environmental effects will be minimal.
STORMWATER MANAGEMENT
Countywide Water Pollution Prevention Program. Continue to participate in the San Mateo Countywide Water Pollution Prevention Program.
The Program represents a collaborative effort amongst the County and its municipalities, consisting of five major areas of water pollution prevention and control:
• Municipal maintenance activities
• Industrial and illicit discharge
• Public information and participation
• New development and construction controls
• Watershed monitoring
Stormwater Discharge. Ensure compliance with the Municipal Regional Permit, the Construction General Permit and the Construction Dewatering Permit, which regulate stormwater discharge from new and existing development.
These permits are established by the National Pollutant Discharge Elimination System (NPDES) and administered by the Regional Water Quality Control Board. They require that new development incorporate Best Management Practices (BMPs) in site design, construction, and management to minimize storm water runoff rates and volumes, control water pollution, and maximize infiltration.
Exhibit 2
LCP-2-PAC-20-0036-1
1.a
Packet Pg. 113 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Protect Water Quality through Best Management Practices. Continue to require the use of best management practices to reduce water quality impacts from construction and development. Measures include:
• Site Design and Source Control. Ensure that all new development incorporates site design and source control BMPs into the project design in order to preserve the infiltration, purification, and retention functions of each site’s natural drainage systems, and to prevent or minimize the runoff of pollutants, sediments, waste, and pathogens from the site.
• Construction Pollution Control. Require all construction projects to adopt measures to avoid when possible, or minimize erosion and runoff of pollutants and sediments from construction-related activities, and to limit activities that result in the disturbance of land or natural vegetation.
Construction projects will be required to use appropriate erosion prevention techniques, sediment control measures, and best management practices in accordance with City specifications and the San Mateo Countywide Water Pollution Prevention Program.
• Treatment Control. Require that new development implement treatment control BMPs (or structural treatment BMPs) where the combination of site design and source control BMPs is not sufficient to protect water quality and comply with applicable water quality permits.
Stormwater treatment systems must meet the numeric sizing criteria established in the NPDES Permit, and must be operated and maintained in compliance with the NPDES Permit.
Infrastructure and Water Quality. Ensure that the design and construction of new infrastructure elements does not contribute to stream bank or hillside erosion or creek or wetland siltation, and incorporates site design and source control BMPs, construction phase BMPs, and treatment control BMPs to minimize impacts to water quality, in compliance with the NPDES Permit.
Green Infrastructure. Require that new development projects incorporate inclusion of low impact development drainage design into storm drain infrastructure on public and private lands, including streets, roads, storm drains, parking lots, building roofs, and other storm drain infrastructure elements.
Erosion Control. Manage erosion in the Planning Area, particularly in watershed areas, through on-site erosion control.
Construction projects will be required to use appropriate erosion prevention techniques, sediment control measures, and best management practices in accordance with City Specifications and General Conditions of Approval and the San Mateo Countywide Water Pollution Prevention Program.
Minimize Site Disturbance. Require the use of best practices during development design and construction to preserve natural resources, such as soil, trees, native plants, and permeable surfaces.
Exhibit 2
LCP-2-PAC-20-0036-1
1.a
Packet Pg. 114 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Reduce Impervious Surfaces. Enable natural drainage by reducing the amount of impervious surfaces on a development site, whenever feasible.
Techniques that help accomplish this objective:
• Designing development projects to share driveways;
• Placing parking lots under buildings, whenever feasible; and • Using permeable paving materials on walkways and driveways, whenever feasible.
On-site Stormwater Management. Continue to require all small projects and detached single-family home projects, as defined under the NPDES Permit, to incorporate site design measures that facilitate groundwater recharge and natural hydrological processes, allowing stormwater to infiltrate the ground on-site and/or be collected for reuse in landscaping and designated to on-site stormwater detention facilities.
Techniques for on-site stormwater management include use of:
• “Rain gardens” or bioretention areas in yards, parks, and parking lots; • Landscaped drainage swales along roadways;
• Green roofs;
• Permeable pavers for walkways and parking areas;
• Rain barrels for harvesting runoff from rooftops;
• Tree box filters for on-street filtration;
• Parking areas that direct stormwater flow into vegetated areas; • Grading that lengthens flow paths and increases runoff travel time to reduce the peak flow rate; and • Cisterns or sub-surface retention facilities that capture rainwater for use in irrigation and non-potable uses.
Prevent Contaminated Runoff. Ensure that new parking lots and commercial development incorporate BMPs designed to prevent or minimize runoff of oil, grease, solvents, battery acid, coolant, gasoline, sediments, trash, and other pollutants from the site.
Runoff from areas serving vehicle traffic, structures, landscaping, loading areas, repair and maintenance bays, fueling areas, vehicle/equipment wash areas, outdoor material storage areas, and waste storage areas should be prevented or minimized.
Oil and Hazardous Substance Spills. Provide protection against the spillage of crude oil, gas, petroleum products, or hazardous substances in relation to any development or transportation of such materials.
For any accidental spills that do occur, the City will require immediate and effective containment, and cleanup facilities and procedures.
Exhibit 2
LCP-2-PAC-20-0036-1
1.a
Packet Pg. 115 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1)
WASTEWATER COLLECTION AND TREATMENT
Sanitary Sewer Discharge. Ensure that discharges of treated wastewater from the Calera Creek Wastewater Recycling Plant continue to comply with the Sanitary Sewer System Permit.
The City will manage the release of treated wastewater as part of habitat restoration along Calera Creek, and pursue the use of recycled water for irrigation and other uses.
4.3 BIOLOGICAL RESOURCES
The Coastal Act seeks to protect Environmentally Sensitive Habitat Areas (ESHAs) from any significant disruption of their habitat values by providing strict limits on what may be allowed within these areas and ensuring that adjacent development will be compatible with habitat (Section 30240). Marine resources must also be maintained (Section 30230).
Pacifica contains some of the most natural habitat on the San Francisco Peninsula, providing for a wide variety of native plant and animal species, and natural communities. Some of these species and communities, have special legal status, having been listed under the federal or state Endangered Species Acts, or having been listed under the California Department of Fish and Wildlife Species of Concern, California Native Plant Society, USFWS Birds of Conservation Concern or other regulating authority. Portions of the Coastal Zone have been noted as especially valuable because of their special nature, such asproviding important resources to plants and wildlife, or their potential to be designated Environmentally Sensitive Habitat Area (ESHA) under the California Coastal Act.
Environmentally Sensitive Habitat Areas are defined by the California Coastal Act as “any area in which plant or animal life or their habitats are either rare or especially valuable because of their special nature or role in an ecosystem and which could be easily disturbed or degraded by human activities and developments.” These areas are to be protected against any significant disruption of habitat values, and only uses dependent on those resources are to be allowed within those areas. Development in areas adjacent to environmentally sensitive habitat areas must be sited and designed to prevent impacts which would significantly degrade those areas, and be compatible with the continuance of those habitat and recreation areas.
Plant Communities and Wildlife Habitats
Plant communities and habitats found in Pacifica are briefly described below and depicted in Figure 4-2, Vegetation. The map is illustrative and for information purposes only; site-specific biological studies are required as part of proposed development review to determine the presence and extent of plant communities and habitat. The EIR for the General Plan and Local Coastal Land Use Plan Update includes a more detailed description of each of these communities and habitats. The listed species mapped communities and habitats here are not intended to preclude the possibility that other communities species or habitat occur within Pacifica, nor to definitively conclude that . Species identified with various the plant communities or habitats identified are not necessarily present as indicated, rather the map is a tool to help identify areas where further evaluation for biological issue may be relevant. in the Planning Area. Some of these communities are recognized as “special status communities,” or provide critical habitat for special status species.
Exhibit 2
LCP-2-PAC-20-0036-1
4.4 1.a
Packet Pg. 116 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) Annual Grasslands
Annual grasslands in Pacifica occur most often in a mosaic with coastal scrub and are dominated by non-native annual grass species and a variety of other non-native weeds. The grasslands in Pacifica are of limited and highly disturbed nature, having been damaged through unauthorized vehicle activity that has created off-road trails on hillsides. Grasslands attract reptiles and amphibians, including several lizard species and the western rattlesnake.
Annual grasslands are important foraging grounds for bats and other mammals such as coyote, black-tailed deer, jackrabbits, and various rodents. Small rodents attract raptors (birds of prey) including hawks, owls, and turkey vultures. In urban situations, grassland patches tend to support more disturbance-tolerant animals adapted to impacted environments, such as fox squirrels, skunks, raccoons, rats, and mice.
SPECIAL-STATUS SPECIES IN GRASSLAND HABITATS
Special-status species3 that have the potential to occur in grassland habitats around Pacifica include the Mission blue butterfly, San Bruno elfin butterfly, Crystal Springs fountain thistle, Marin western flax, San Mateo thornmint, white-rayed pentachaeta, Crystal Springs lessingia, pappose tarplant, and San Francisco owl’s clover.4 Coastal Bluff Scrub
Coastal bluff scrub is found along the immediate coast line to the west of Highway 1. It consists of a mosaic of open sand, native low growing shrubs and herbaceous perennials. Native species present include dwarf coyote brush, silver bush lupine, yellow bush lupine, seaside woolly sunflower, bunchgrass, buckhorn plantain, beach evening primrose, beach bur, yellow sand verbena, beach saltbush, and beach morning glory. Other exotic species are Italian ryegrass, bull thistle, and fennel.5
SPECIAL-STATUS SPECIES IN COASTAL BLUFF SCRUB HABITAT
Special-status species that may be found in this habitat around Pacifica are bumblebee scarab beetle, sandy beach tiger beetle, Hickman’s cinquefoil, blue coast gilia, coast yellow leptosiphon, coastal marsh milk-vetch, coastal triquetrella, compact cobwebby thistle, Franciscan thistle, Point Reyes horkelia, rose leptosiphon, San Francisco Bay spineflower, and short-leaved evax. Bank swallows, double-crested cormorants, and big freetailed bats may use cliff sides for nesting.
Northern Coastal Scrub
Northern coastal scrub habitat is found on undeveloped slopes, often in a mosaic with annual grasslands.
Northern maritime chaparral, a special-status community, is included in this category. Northern coastal scrub is dominated by either coyote brush or California sagebrush, primarily depending on slope aspect. North facing slopes support a greater diversity of shrub species and canopy cover than south facing slopes. Coastal scrub habitat, often interspersed with other habitats, provides foraging and nesting habitat for species that are attracted to edges of plant communities. These include various bird species, including hummingbirds; small 3 “Special-status” plant and animal species are defined in more detail in the Special-status Species section of this chapter. Briefly, they are:
• Species listed under the Federal Endangered Species Act, Marine Mammal Protection Act, California Endangered Species Act, California Fish and Game Code, and the Native Plant Protection Act as endangered, threatened, or depleted; species that are candidates or proposed for listing; or species that are designated as rare or fully protected. • Locally rare species defined by CEQA Guidelines Sections, which may include species that are designated as sensitive, declining, rare, locally endemic, or as having limited or restricted distribution by various federal, state, and local agencies, organizations, and watch lists. 4 John Northmore Roberts & Associates et al., 1992; State of California Department of Parks and Recreation, 1990. 5 State of California Department of Parks and Recreation, 1990; ESA surveys, 2008 Exhibit 2
LCP-2-PAC-20-0036-1
4.5 4.5
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Packet Pg. 117 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) mammals including skunks, rabbits, gophers, and rodents; larger predators such as fox, coyotes, mountain lions, and bobcat; and small reptiles.6
SPECIAL-STATUS SPECIES IN NORTHERN COASTAL SCRUB HABITAT Special-status animals that may use northern coastal scrub around Pacifica include merlins, dusky-footed woodrat, Mission blue butterfly, and San Bruno elfin butterflies. Special-status plants with the potential to occur include: Pacific manzanita, Presidio manzanita, San Bruno manzanita, San Francisco lessingia, Choris’ popcornflower, Davidson’s bush-mallow, fragrant fritillary, Kellogg’s horkelia, Montara manzanita, Oregon polemonium, pale yellow hayfield tarplant, San Francisco campion, San Francisco collinsia, and San Francisco gumplant.
Eucalyptus
This habitat type is dominated by planted Eucalyptus species, primarily blue-gum eucalyptus. Groves of eucalyptus are dense and form a closed canopy, restricting other native overstory trees to clearings. Eucalyptus trees have allelopathic properties, releasing chemicals into the soil to reduce or inhibit growth of other plants.
In addition, they produce extensive leaf and bark litter which further inhibits the growth of understory plants.
Eucalyptus trees provide perching, roosting, and nesting sites for larger birds, such as crows, ravens, red-tailed hawks, red-shouldered hawks, and barn owls. The migratory monarch butterfly frequently roosts in eucalyptus trees in the winter.
Monterey Cypress
Small patches of Monterey cypress occur throughout the Planning Area in planted stands surrounded by a mosaic of scrub and grasslands. The largest stand occurs at the north end of the Planning Area. Although the small patches of Monterey cypress found in Pacifica are unlikely to support significant wildlife populations, they complement surrounding habitats by providing nesting and roosting substrates for birds as well as shelter for other animals.
Riparian Mixed Hardwood
Areas with riparian mixed hardwood habitat occur along San Pedro Creek, Rockaway Creek, Calera Creek, and Laguna Salada. Native trees that are found include red alder, various willow species, and creek dogwood.
Riparian areas also host native herbs and emergent vegetation, as well as various nonnative ivies, grasses, blackberry, and other plants.7 Riparian areas provide foraging ground for birds and small mammals, and habitat for small reptiles and amphibians.
SPECIAL-STATUS SPECIES IN RIPARIAN MIXED HARDWOOD HABITAT Special-status wildlife that could be present in the riparian corridor includes tricolored blackbirds, raptors such as Cooper’s hawk, sharp-shinned hawk, and great blue heron.
Seasonal Wetlands and Ponds
Seasonal wWetlands occur in smaller drainages and localized depressions, forming ponds or flowing water, and are underlain by saturated soils during the winter and spring. Seasonal wWetlands also occur along the banks and sediments that accumulate in creeks, Wetlands in Pacifica are found along riparian areas, drainages, along the coast, and as fresh and brackish water marshes (such as on the Sharp Park Golf Course). Vegetation and 6 John Northmore Roberts & Associates et al., 1992
7 San Pedro Creek Watershed Coalition, 2005
Exhibit 2
LCP-2-PAC-20-0036-1
4.6 1.a
Packet Pg. 118 Attachment: Attachment A - California Coastal Commission Suggested Modifications Exhibit (5518 : LCLUP Meeting #1) wildlife found in wetlands varies with water characteristics, inundation patterns, surrounding habitat, and level of disturbance.
SPECIAL-STATUS SPECIES IN SEASONAL WETLANDS AND PONDS
The California red-legged frog, San Francisco garter snake, Leech’s skyline diving beetle, San Francisco forktail damselfly, Tomales isopod, western pond turtle, and bristly sedge are special-status species that may be found in wetlands in and around Pacifica. The wetlands in Sharp Park are also known to support saltmarsh common yellowthroat. Seasonal wetlands and ponds at Mori Point and Sharp Park Golf Course also known to support the California red-legged frog as well as the San Francisco garter snake.
Streams
Streams are important habitat features in Pacifica as they can function as movement corridors as well as providing protective cover. Wildlife species that are associated with stream habitat include river otters, great blue heron, snowy egret, belted kingfisher, dark-eyed junco, and black phoebe. Black-tailed deer, raccoon, opossum, and grey fox may use the creeks as movement corridors. Fish species present include the prickly sculpin, the Pacific lamprey, and the threespine stickleback.
SPECIAL-STATUS SPECIES IN STREAMS
The federally threatened steelhead trout use parts of San Pedro Creek for spawning, including the main portion parallel to Linda Mar Boulevard, as well as the middle and south forks in San Pedro County Park.8 This is the only stream with a steelhead population between the Golden Gate Bridge and Half Moon Bay. Lower Calera Creek on the Quarry site supports the federally-threatened California red-legged frog and the Endangered San Francisco garter snake.
Beach/Intertidal
Significant expanses of continuous sandy shoreline occur along the San Mateo coastline, including in Pacifica.
Beaches are dynamic systems that change with wind and waves; generally, sand is eroded from beaches in the winter and re-deposited in the summer, resulting in annual changes in beach slope and width.
Beach habitats can be divided into supratidal, intertidal, and subtidal. The supratidal beach fauna consists of sand crabs, California beach flea, amphipods, polychaete worms, flies, and isopods that feed on detritus; these species in turn are fed on by a variety of birds. The by-the-wind sailor, a jellyfish-like colony of organisms, frequently washes up on the upper beach areas. Exposed rocks or cobble, especially at the lower intertidal areas, can have attached algae, mussels, and barnacles. Intertidal areas are home to the Pacific egg cockle and spiny mole crab. The Subtidal zone is primarily inhabited by fish such as surf perch, striped bass, salmon, anchovies, sanddabs, California halibut, and the starry flounder. 9
SPECIAL-STATUS SPECIES IN BEACH/INTERTIDAL HABITAT
Some special-status species may be found in the shallow waters off of Pacifica. Harbor seals and sea lions haul out on isolated beaches and sands spits. The endangered black abalone may be present in intertidal areas attached to rocks. The threatened green sturgeon may also forage in the shallow waters off of Pacifica. Both the gray whale and southern sea otter use the nearshore waters, and the California brown pelican is also frequently observed.
8 San Pedro Creek Watershed Coalition, 2005
9 BLM, 1981; State of California Department of Parks and Recreation, 1990 Exhibit 2
LCP-2-PAC-20-0036-1