CITY OF PACIFICA
COUNCIL AGENDA SUMMARY REPORT
6/10/2024
1 SUBJECT:
Certification of Final Environmental Impact Report and other associated approvals for 310-330 Esplanade Avenue Infrastructure Preservation Project
RECOMMENDED ACTION:
Staff recommends that Council moves to adopt Resolution approving the following:
(1) Certify Final Environmental Impact Report (“EIR”) for 310-330 Esplanade Avenue Infrastructure Preservation Project (“Project”);
(2) Approve Project as defined and analyzed in the EIR and proceed therewith by applying to the California Coastal Commission for permits/approvals; (3) Adopt CEQA Findings and Mitigation and Monitoring Report (“MMRP”); and (4) Direct City staff to file Notice of Determination.
STAFF CONTACT:
Roland Yip, Deputy Director of Public Works - City Engineer (650) 738-3771
[email protected]
Stefanie Cervantes, AICP, Senior Planner
(650) 738-7341
[email protected]
BACKGROUND/DISCUSSION:
Over the past several decades, the northern coastline of Pacifica has seen progressive coastal bluff erosion threatening man-made development. The combination of poorly cemented bluff sand and high energy waves cause the bluff sand to be eroded, resulting in a loss of land, laterally. This land loss puts the bluff edges closer to public infrastructure, including roads and utilities. The erosion is generally episodic in nature. Some winters, there would be no erosion, while some winters that see strong storm events may experience significant erosion (>10 feet).
As a result of the erosion occurring in 2015-16 winter season and subsequent removal of apartment buildings at 310, 320, and 330 Esplanade, the 310-330 Esplanade Infrastructure Preservation project was born with the goal of maintaining existing infrastructure and utility services in the area.
On June 30th, 2017, staff received notification from California Office of Emergency Services (CalOES) that the Pacifica's Hazard Mitigation Grant Program (HMGP) grant application was Pacifica City Council 2
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formally approved for the first phase (Design & Environmental) of the 310-330 Esplanade Infrastructure Preservation Project.
On September 24th, 2018, the City approved an agreement with Cotton Shires & Associates (CSA) along with their subconsultants to analyze, design, and assist in permitting a project to maintain Esplanade Ave. The concept chosen for this project is a vertical seawall along the toe of the bluff with the upper portion of bluff remaining unarmored and allowing it to recline to a more stable slope.
After preliminary design work was completed, it became clear the cost of a vertical shotcrete seawall with sheet pile scour protection (preferred alternative) was going to cost significantly more than originally estimated by CSA. Staff began to consider other funding options while continuing technical studies needed for the preferred alternative to be permitted and designed appropriately were progressed. In early 2020, the project was ready to be submitted to the California Coastal Commission and undergo their CEQA equivalent process. However, due to budgeting issues, the project was put on hold. At the time it was placed on hold it was unclear if the project would be continued to be managed by City Staff or if the United States Army Corps of Engineers (USACE) would take over the project under their Continuing Authorities Program (CAP 103).
City Staff then worked with USACE as well as with the Federal Emergency Management Agency (FEMA) and the CalOES to see where additional funding could be secured. After several meetings with USACE and FEMA, it became clear funding the project through FEMA would provide the project higher funding than through USACE if FEMA was to award additional HMGP funding. City Staff has continued to work with FEMA/CalOES on allocating additional HMGP and appears to be close to consensus with the project scope and funding. Staff is hopeful that it will receive additional funding for the project. Additionally, through support from Assemblymember Kevin Mullin, the City was able to receive a total of $7.75 million in funding through the State of California budget process in the summer of 2021 for this and other projects.
As a result of this funding, City staff determined that the Project could proceed and began to prepare the permitting application and technical reports in the Fall of 2021. After permits were ready for submission, City planning staff reanalyzed the project and found the City should be the lead agency for purposes of CEQA instead of the California Coastal Commission but the Coastal Commission retains jurisdiction to approve the actual Project. City staff and the consultant team have worked through the CEQA process and released a Notice of Preparation in October 2022, with a public scoping meeting held in November of 2022. A Notice of Availability of a Draft Environmental Impact Report (“DEIR”) (Attachment B) was released in October 2023. During the public review process, the City received five (5) comment letters from Federal and State agencies and two (2) comment letters from organizations, businesses, or individuals. The responses to comments can be found in the Final Environmental Impact Report (“FEIR”) (Attachment C).
Project Description
The Project site is located along the west side of Esplanade Avenue, between Manor Drive on the south and West Beaumont Boulevard on the north, in the City of Pacifica. The residential structures formerly occupying the properties at 310 - 330 Esplanade Avenue have been removed and the lots have been graded towards the road and covered by a tarp and drain rock.
There are two-story apartment buildings still standing at the 340, 350, and 360 Esplanade Avenue properties, and a three-story apartment building at 380 Esplanade Avenue. The proposed seawall construction would extend along the base of the coastal bluff adjacent to these properties as well as 100 Esplanade and will abut or tie into the existing seawalls to the south, adjacent to the 360 and 380 Esplanade Avenue, and to the north, adjacent to 100 Pacifica City Council 3
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Esplanade.
The proposed Project includes a proposed seawall, its construction, and the proposed blufftop restoration.
A. Seawall
The proposed Project design includes several structural elements to fortify the bluff including a sheet pile wall below the low sand levels, a cap beam on top of the sheet pile wall also below the low sand level, and a shotcrete (sprayed concrete) wall secured to the bluff face with tensioned tieback rods/tendons drilled into the bluff face above the low sand level.
The wall is estimated to be 650 feet long, spanning the length between the existing seawall to the north of 100 Esplanade Avenue and the existing seawall to the south at 360-380 Esplanade Avenue. The height of the proposed seawall would extend from the base of the bluff to an elevation of 40 feet above sea level, which is approximately a height of 26 feet above the toe of the bluff, and would be constructed from structural shotcrete and anchored to the bluff with high tensioned tiebacks to support the weight of the wall. The tiebacks would consist of double corrosion protected high strength bars or multi-strand tendons installed in a minimum 6-inch diameter hole and declined roughly perpendicular to the bluff face at 15 to 30 degrees downward into the bluff approximately six inches. According to the Project plans, there would be three rows of tiebacks spanning the length of the wall, for a total of approximately 189 tiebacks.
Extending the wall to an elevation of 40 feet (North American Vertical Datum of 1988 (NAVD88))2 allows the remainder of the bluff above to setback naturally to a stable slope. The buried portion of the seawall would extend approximately 20 feet below the sand levels to protect against wave scour from undermining the wall. The buried portion of the wall would consist of interconnected sheet piles that will be driven adjacent to the bluff and below the beach to an elevation of -10 feet NAVD88. The sheet piles will be installed with a suitably sized vibratory or impact hammer, capable of driving the sheets to their designed embedment depth.
See Figure 3-3 for the proposed Site Plan and Figure 3-4 of the DEIR for the Seawall design.
B. Permanent Removal of Existing Riprap
Following construction of the proposed Project, all existing riprap on the beach coincident with 310-330 Esplanade Avenue (approximately 8,000 tons) would be removed from the Project site.
The riprap would be removed within one year of the termination of construction for the Project.
The riprap would be disposed of at an appropriate licensed facility.
C. Blufftop Restoration Plan
The Project includes a blufftop restoration plan that involves replanting the developed areas along the top of the bluff within the Project site after the seawall construction is completed. The
0.72-acre restoration area is approximately 600 feet long and 60 to 70 feet wide and is currently covered with plastic, and drain rock. This area would be used as a staging area during construction of the seawall. Following the completion of seawall construction activities, the existing drain rock, and any fill soils present will be removed, and a qualified restoration ecologist will ensure that the replacement soils meet appropriate requirements for soil and sediment characteristics for native northern coastal scrub restoration. If the soils are determined not to be suitable, the placement of a stable three-foot deep zone of horticulturally suitable soil may be required to facilitate long-term establishment of northern coastal scrub plantings. The objectives of the restoration include: (1) restoring upland native scrub habitat (northern coastal scrub); (2) increase runoff infiltration and control erosion; (3) provide habitat for native species; and (4) a minimum amount of long-term maintenance for establishment of plantings.
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Hydroseed plantings are planned on the western-most portions of the blufftop, while the eastern-portions closest to Esplanade Avenue are anticipated to receive container plantings. An 8-foot wide asphalt pedestrian trail to provide public access is also shown, along decomposed granite paths to several benches along the length of the path. An interpretive sign would be installed near one of the benches. A cable fence would be installed to prevent visitors from accessing the bluff edge. Watering to establish and maintain the restoration plantings would be accomplished by hand. No irrigation system is proposed to be installed. The success of plant growth in the restoration area would be monitored for a minimum of three years. The bluff restoration plan sheet is shown in Figure 3-5 of the DEIR, and the restoration plant palette is shown in Figure 3-6 of the DEIR. Figure 3-7 through Figure 3-11 of the DEIR, show photos of the Project site and adjacent areas.
D. Bluff Monitoring Program
An annual evaluation of the condition and performance of the seawall (bluff protection) would be undertaken as part of the Project. The evaluation would identify whether significant weathering, undermining, outflanking, overtopping, impacts, corrosion, or damage has occurred that would adversely impact the integrity or future performance of the structure. As part of the annual evaluation, measurements of differential retreat between the natural bluff face and the wall face, at the north and south ends of the protective devices, would be taken. In addition to the annual evaluation, a visual inspection of the seawall would be performed immediately after major wave events (as conditions permit) that may impact the wall or cause damage to the structure or nearby sections of shoreline, and after seismic events that create strong ground shaking in the Pacifica area.
The monitoring information would be summarized in a report prepared by a licensed engineer familiar with shoreline processes and would be submitted to the California Coastal Commission Executive Director after each winter storm season. After the first three years, the report would be provided each third year following the last annual report for that year. In addition, inspections with reports would be submitted immediately following either an “El Niño” storm event (comparable to or greater than a 20-year storm) or an earthquake of Magnitude 5.5 or greater with an epicenter in San Mateo or San Francisco counties.
E. Construction
Construction of the seawall is estimated to take 260 calendar days and would occur between spring to early winter. Anticipated equipment includes large excavators, crane(s) on top of the bluff, heavy duty tieback drilling equipment, and heavy-duty sheet pile driving equipment (vibratory or impact hammer) on the beach. All existing loose slope debris material located on the lower portions of the bluff between the proposed sheet pile wall alignment and the bluff face would be excavated to expose undisturbed terrace deposit material. The sheet piles would be installed above the high tide line. All of the work, including the sheet pile installation, will be constructed during naturally dewatered conditions (i.e. low tide) in dry sand without the need for artificial dewatering (e.g., use of pumps or coffer dams). The only time that artificial dewatering would be required is if an unanticipated storm/rogue wave topped the temporary riprap wave protection installed around the work area and flooded the construction area. Under those circumstances, small submersible pumps and hoses would be used for dewatering operations.
No vehicles or heavy equipment would be operated in open water or tidal habitat. Access to the site by foot and small machinery would occur through the public access trail at 100 Esplanade Avenue directly north of the site. Larger equipment would either be lowered from the blufftop via crane or driven to the work area during low tides from the existing beach access located opposite Manor Drive, at the south end of the Project site.
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Artificial dewatering would be required for excavations extending below +5 feet NAVD88; however, no excavations that deep are anticipated. The sheet piles would be driven into place and would not require excavation to install. The excavation would be limited to the depth required to install the wall below the sand and the pile cap that sits atop the sheet pile, which according to the plans extends to a depth of +7 feet NAVD88. As previously stated, isolated artificial dewatering could be required if unanticipated storm/rogue waves topped the temporary riprap wave protection measures.
Construction of the proposed seawall would occur on both weekdays and weekends. Because the construction requires a building permit from the City, the days and hours of construction would adhere to the provisions of the Pacifica Municipal Code Section 8-1.05 (Title 8. – Building Regulations, Chapter 1. – Building Code), which limits construction to the hours of 7:00 AM to 7:00 PM Monday through Friday, and from 9:00 AM to 5:00 PM on Saturday and Sunday.
F. Equipment Staging and Material Storage
Two equipment staging and material storage areas are designated for the Project. The north staging area would be located on the blufftop in the 310 to 330 block of Esplanade Avenue and would be set back a minimum of 10 feet from the bluff edge. The south staging area would be located on the City-owned blufftop property south of 380 Esplanade opposite of Manor Drive, adjacent to the existing ramp that would provide equipment access to the beach. This ramp has also provided public access to the beach, but is currently closed. Following the construction phase of the Project, the ramp would again be available for public access to the beach. A crane pad would be established in the north staging area. As the first part of site preparation, the staging and material storage areas would be fenced, and signage installed to identify the area as the staging and storage area and to keep the public from entering the area. The north staging area is currently fenced with chain link for public safety. The staging and material storage areas would have one point of ingress and egress to and from Esplanade Avenue. All concrete washout basins would be contained in designated locations within these staging/storage areas. Lighting facilities with generators may be used in these areas. A designated parking area for construction workers would also be established in these areas.
G. Drainage
Following construction, the blufftop between 310 and 330 Esplanade Avenue would be recontoured to ensure that the blufftop slopes uniformly towards Esplanade Avenue to direct stormwater sheet flow towards Esplanade Avenue and away from the bluff face. Recontouring is anticipated to require less than 50 cubic yards of imported material. After construction of the seawall, during the early winter months (e.g., November through January), the top of the bluff would be revegetated with native, drought tolerant species suitable for blufftop habitat to protect the bluff from surface runoff and associated erosion. Native plantings would be hand watered only through establishment of the vegetation; an irrigation system would not be installed for the plantings.
Impact Analysis and Mitigation, Monitoring, and Reporting Program Resource areas requiring mitigation measures to reduce impacts to less-than-significant include Air Quality, Biological Resources, and Noise, as shown in Table 1 below. Resource areas listed as less-than-significant or no impact do not require mitigation.
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TABLE 1: Resource Area Impact Summary
Less-than-Significant or No Impact Less-than-Significant Impact with Mitigation
Aesthetics Air Quality
Agricultural and Forestry Resources Biological Resources Energy Cultural and Tribal Cultural Resources
Geology and Soils Noise
Greenhouse Gas Emissions
Hazards & Hazardous Materials
Hydrology/Water Quality
Land Use
Mineral Resources
Population/Housing
Public Services
Recreation
Transportation
Utilities/Service Systems
Wildfire
The DEIR contains discussion of impacts for the following sections: Aesthetics, Air Quality, Biological Resources, Cultural and Tribal Cultural Resources, Geology and Soils, Hazards and Hazardous Materials, Hydrology and Water Quality, Land Use, Noise and Public Services and Recreation. The EIR found that there are potentially significant impacts that could result from the proposed Project; however, the EIR identified mitigation measures that result in less than significant impacts with mitigation.
Less than Significant Impacts with Mitigation. The impacts identified under the following resource areas have mitigations which are further detailed in the Mitigation Monitoring and Reporting Program (MMRP) for the Project. Sections of the DEIR are identified for each resource area to obtain more information.
Air Quality (Section 4.2)
The project would implement mitigation measures to avoid impacts to air quality relating to potential, short-term adverse health risks associated with exhaust emissions during construction. The City shall require contractors, contractor’s representative, and/or other appropriate personnel to comply with the construction equipment restrictions detailed in the MMRP.
Biological Resources (Section 4.3)
The project would implement mitigation measures to avoid either directly or through habitat modifications impacts on special-status fish (steelhead, Coho salmon, and green sturgeon), Essential Fish Habitat (EFH), and American peregrine falcon, bank swallow, and other nesting birds. The mitigation measures include best management practices to protect water quality, special-status fish, and EFH; pre-construction/pre-disturbance surveys for nesting birds; bank swallow habitat assessment; bank swallow incidental take permit; and invasive species best management practices.
Cultural Resources (Section 4.4)
The Project could inadvertently encounter cultural resources. Mitigation measures will be implemented to avoid or reduce impacts due to inadvertent discovery of archaeological resources, archaeological resources and/or human remains that may be present on the site, which includes work stoppage and tribal consultation if resources are discovered.
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Noise (Section 4.10)
Noise from project construction would be reduced to a less than significant impact with implementation of a mitigation measure requiring notification of construction activities, reduction of construction equipment noise levels, installation of temporary noise barrier along Esplanade Avenue, and preparation of construction noise complaint plan, Public Comment on the Draft EIR
Seven public comment letters were received, included in the FEIR, which include five comment letters from public agencies and two letter from individuals. All comments were responded to in the Final EIR (FEIR).
Final EIR
Following the conclusion of the public comment period, the City prepared a FEIR in accordance with Section 15132 of the CEQA Guidelines. The FEIR was published on May 31, 2024. The FEIR is included as Attachment C and is available at:
https://www.cityofpacifica.org/departments/planning/environmental-documents.
The FEIR includes the Mitigation Monitoring and Reporting Program (MMRP) that describes mitigation measures to reduce potentially significant environmental impacts to less than significant levels.
Mitigation Monitoring and Reporting Program
The Mitigation Monitoring and Reporting Program (MMRP) identifies 11 mitigation measures related to Air Quality, Biological Resources, Cultural and Tribal Cultural Resources, and Noise.
The MMRP is incorporated with the FEIR as indicated above and is included in Attachment C.
Implementation of the MMRP will be monitored by City staff to reduce potential impacts of the implementation of the proposed project in accordance with CEQA.
Public Comments
Staff has not received any public comments prior to hearing.
Staff Analysis and Recommendation
Certification of the FEIR is needed to proceed with applying for the appropriate permits with the California Coastal Commission. Delays or changes to the Project will prolong the timeline of the Project and could result in higher costs and additional staff resources. The Project is consistent with City Council goals and work plan and will provide protection to a critical area of the City’s coastline.
Staff recommends that the City Council (1) Certify Final Environmental Impact Report (“EIR”) for 310-330 Esplanade Avenue Infrastructure Preservation Project (“Project”); (2) Approve Project as defined and analyzed in the EIR and proceed therewith by applying to the California Coastal Commission for permits/approvals; (3) Adopt CEQA Findings and Mitigation and Monitoring Report (“MMRP”); and (4) Direct City staff to file Notice of Determination with County Clerk.
ALTERNATIVE ACTION:
None.
RELATION TO CITY COUNCIL GOALS AND WORK PLAN:
The 310-330 Esplanade Avenue Infrastructure Preservation Project is consistent with the Pacifica City Council 8
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following item(s) in the Council-adopted Strategic Plan and Priority Work Plan for FY 2023-24:
• Goal 2: Improve and steward City infrastructure, street and facilities. o Strategy B: Advance Beach Boulevard Resiliency and Esplanade Protection Projects (including the Pier, as feasible).
FISCAL IMPACT:
No direct fiscal impact. Processing costs will be billed to the funding sources below.
Estimated Project Costs
310-330 Esplanade
Planning & Design $ 620,000
Construction $ 13,565,000
Total $ 14,185,000
Funding Sources
310-330 Esplanade
FEMA/CalOES HMGP $ 9,250,000
State Budget $ 2,935,000
City ERAF $ 2,000,000
Total $ 14,185,000
ORIGINATED BY:
Planning Department
ATTACHMENT LIST:
Attachment A - Draft Resolution to Certify Final EIR with Exhibit A + B (PDF) Attachment B - Draft Environmental Impact Report (PDF)
Attachment C - Final Environmental Impact Report (Includes MMRP) (PDF)