Att 3 - City Council Agenda Item 7E, July 18, 2023 Meeting — San Clemente City Council, March 19, 2024 (part 1 of 6)

AGENDA REPORT

CITY OF SAN CLEMENTE
City Council Meeting
910 Calle Negocio
2nd Floor
San Clemente, California
www.san-clemente.org
Meeting Date: 7/18/2023 Agenda Item: (
Department: Public Works
Prepared By Kiel Koger, Public Works Director/City Engineer Subject:

CONSIDERATION OF A RESOLUTION APPROVING UNITED STATES ARMY CORPS OF

ENGINEERS (USACE) COASTAL STORM DAMAGE REDUCTION PROJECT IN SAN CLEMENTE; ADOPTING THE FINAL FEASIBILITY STUDY AND CERTIFYING THE FINAL

ENVIRONMENTAL IMPACT STATEMENT / FINAL ENVIRONMENTAL IMPACT REPORT AND

SUPPLEMENTAL ENVIRONMENTAL ASSESSMENT AND FINDING OF NO SIGNIFICANT IMPACT; ADOPTING THE MITIGATION MONITORING AND REPORTING PROGRAM, AND FINDINGS OF FACT AND STATEMENT OF OVERRIDING CONSIDERATIONS; AND

AUTHORIZING ENTRY INTO A STATE LANDS LEASE
Summary:

Coastal erosion is a very significant problem in the City of San Clemente (City) that threatens the public beaches, coastal public access, existing structures, and critical public infrastructure. In July 2001, the City of San Clemente entered into a Federal Cost Share Agreement (FCSA) with the United States Army Corps of Engineers (USACE) for purposes of collaborating on the Coastal Storm Damage Reduction Project (Project) Feasibility Study. The Project Feasibility Study was originally authorized under the Energy and Water Development Appropriations Act of 2000.

The City has been participating in Project development efforts with Federal and State agency partners for more than 20 years. The State of California, through the State Parks, Division of Boating and Waterways, has been a steadfast partner through the California Public Beach Restoration Act Program since 2000.

The Project is intended to reduce coastal storm damages to property and infrastructure along the study area shoreline for a period of 50-years; improve public safety in the study area by providing a wider sandy beach which serves as a natural wave buffer; and reduce coastal erosion and shoreline narrowing to improve public recreational opportunities for beach users within the City for the next 50 years.

The purpose of this item is to formally complete and conclude the California Environmental Quality Act (CEQA) process for the City in its capacity as the CEQA Lead Agency for the Project.

Specifically, the City Council is asked to conduct a public hearing and, following the public hearing, adopt the Resolution, that would:

1. Approve the Project in San Clemente;

2. Adopt the Final Feasibility Study and certify the joint Final Environmental Impact Statement / Final Environmental Impact Report (FEIS/FEIR) and Supplemental Environmental Assessment CITY OF SAN CLEMENTE Page 1 of 8 Printed on 7/13/2023
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Attachment 3
Meeting Date: 7/18/2023 Agenda Item: (
(SEA) and Finding of No Significant Impact (FONSI);

3. Adopt the Mitigation Monitoring and Reporting Program (MMRP) and Findings of Fact and Statement of Overriding Considerations;

4. Authorize the filing of a Notice of Determination with the County Clerk; and

5. Authorize entry into a lease with the State Lands Commission.

Taking these actions will enable the beach nourishment project to move forward commencing later this year.

Background:

The Project Feasibility Study was initiated in 2000 to: 1) identify problems and opportunities to reduce storm damages, improve public safety, increase recreation opportunities, and protect the environment; 2) formulate and evaluate an array of alternatives; and 3) identify the most technically feasible and economically beneficial “recommended plan” that addresses the problems while also complying with local, state, and Federal laws and regulations.

The Project study area encompassed the entirety of the City’s shoreline from San Mateo Point in the south at the southern boundary of the City to Dana Point Harbor in the north. The original study area was divided into ten reaches based on locations of development and the condition of the stone revetment that runs along various stretches of the existing railroad tracks. After analysis of each section, the USACE determined that Reach 6 (from Paseo de Cristobal to Linda Lane) had the greatest potential for an economically justified Federal project.

The USACE initially considered a broad range of alternatives, including:
• No Action Alternative (i.e., the Do-Nothing Alternative) • Managed Retreat
• Beach Nourishment
• Revetment
• Seawall
• Groins
• Visible Offshore Breakwater
• Submerged Reef
After reviewing the alternatives, beach nourishment emerged as the optimal alternative being both economically feasible and environmentally acceptable. All other alternatives were dropped from further consideration due to a variety of considerations including cost, potential environmental effects, or lack of local support. The USACE then further evaluated 12 beach width scenarios (from 33 to 115 feet) to assess the expected storm damage reduction benefits and costs associated with each beach width scenario.

USACE policy requires it to identify the National Economic Development (NED) plan which is the alternative that maximizes the potential economic benefits to the Nation. Of the 12 beach width scenarios, the 50-foot wide (i.e., 15-meter) beach fill alternative was identified as the NED plan. The USACE was also required to identify a Least Environmentally Damaging Practicable Alternative (LEDPA) which is the alternative that has the fewest potential effects and still meets the Project purpose and objectives. Based on this, the USACE also identified the 50-foot beach width alternative CITY OF SAN CLEMENTE Page 2 of 8 Printed on 7/13/2023
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as its Recommended Plan, which is the alternative that was forwarded for authorization and funding by Congress in 2012.

The Project will nourish an estimated length of 3,412 feet of shoreline at a 50-foot width. The beach compatible sand needed for the nourishment will be taken from a designated borrow site located offshore of the City of Oceanside that will be hauled to San Clemente and placed by hopper dredge on the beach. The southern limit of the proposed beach fill is located immediately south of the TStreet overpass and the northern limit immediately north of the City’s Marine Safety Headquarters. A taper would continue an additional 330 feet to the north and south to merge with the existing shoreline.

For the hopper method, sand is combined with seawater until it reaches the consistency of slurry. At the receiver beach, the dredge is attached to a moored floating section of pipeline extending approximately 1,500 feet to the shoreline. The material is re-suspended and discharged through its on-board pumping system to the receiver site. Existing sand at the receiver site can be used to build a berm to anchor the sand placement operations.

When slurry is pumped onto the beach, it is pumped between this berm and toe. This berm reduces ocean water turbidity by allowing all the sand to settle out inside the bermed area while the seawater is channeled just inside the long berm until it reaches the open end where it drains across the shore platform and into the ocean. Temporary dikes within this berm will direct the pumped sand for settlement in designated areas. Once a section of berm is filled in with sand, another berm is created, the pipeline is moved or extended into the new berm area, and the process begins again. As the material is deposited behind the berm, the sand is usually spread using two bulldozers and one frontend loader to direct the flow of the sand slurry and form a gradual slope to the existing beach elevation. The berms will be subject to the forces of the waves and weather once constructed and will eventually settle down to a natural grade for the beach.

Re-nourishment cycles would be performed approximately every 6 years thereafter over a 50-year project life (2023-2073). Sand placement would occur during off-season winter months and would require temporary closure of small sections of the beach (200-300 feet) during sand placement activities to ensure public safety.

At a March 15, 2011 San Clemente City Council hearing, the City expressed its support for the Project recommended by the USACE in the EIR/EIS. The recommendation was based in part on the support from the City’s Beaches, Parks & Recreation Commission and Coastal Advisory Committee.

This milestone set the stage for Feasibility Study and Project approval by the USACE.

The Project was heard by the USACE Civil Works Review Board (CWRB) in Washington DC at a public meeting on May 12, 2011. The Draft EIS/EIR was filed with the U.S. Environmental Protection Agency and was made available to interested parties for public review and comment pursuant to regulations of the President's Council on Environmental Quality for implementing NEPA (40 CFR Parts 1500-1508) as well as the State Clearinghouse/Governor’s Office of Planning and Research for a 45-day public review period beginning on August 9, 2011 and ending on September 23, 2011. The Project was assigned a State Clearinghouse (SCH) Number (SCH # 2010084002). Responses to the comments are included in the Final EIR/EIS.

The Project received agency approval from the California Coastal Commission (CCC) in November CITY OF SAN CLEMENTE Page 3 of 8 Printed on 7/13/2023
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2011 and a federal Consistency Determination (CD-029-11) was issued for the Project. The USACE has designed the Project to be resilient to future sea level rise (SLR) over its 50-year life under various scenarios consistent with the 2018 CCC Sea Level Rise Policy Guidance document which recognizes beach nourishment is a preferred SLR adaptation strategy for developed coastlines.

The USACE Chiefs Report approving the Project was issued on April 15, 2012 and the final NEPA action of publishing the Record of Decision (ROD) occurred on September 6, 2012. These approvals signaled the formal conclusion of the Project’s NEPA process and the “Feasibility Phase” which enabled the Project to progress to the “Pre-Construction Engineering and Design” (PED) phase beginning in June 2018. The Project’s PED Phase concluded in 2020 following the collection of preconstruction baseline data.

During the PED phase for the Project, all required pre-construction monitoring tasks were completed for the purpose of establishing baseline conditions to support Project implementation and postconstruction monitoring.

The Regional Water Quality Control Board issued a Clean Water Act Section 401 Water Quality Certification and Waste Discharge Requirements Order No. 2003-0017-DWQ for the Project on November 3, 2022 and filed a CEQA Notice of Determination with the State Clearinghouse as a CEQA Responsible Agency in November 2022.

The final agency approval for the project is issuance of a land lease for the area offshore of the City below the mean high tide line. The California State Lands Commission (CSLC) has scheduled the City’s land lease application for the August 17, 2023 meeting. Obtaining this final approval enables the Project to move to contracting by the USACE and a planned construction start later in 2023.

The action before City Council formally complete and conclude the CEQA process for the City as the CEQA Lead Agency by approving the Project, certifying all the Project environmental documents, and adopting the MMRP and Findings of Fact Statement of Overriding Considerations. This would result in filing a Notice of Determination (NOD) with the County Clerk following adoption of the Resolution, thus formally concluding the CEQA process for the Project.

The proposed Resolution also authorizes the City Manager to enter into a project lease with the State Lands Commission enabling the lease to be approved by the California State Lands Commission meeting on August 17, 2023. This is the final agency approval needed for the Project and will support the project contracting by the USACE and planned construction start of the Project later this year.

Council Options:
 Adopt Resolution 23-74, approving the Project; certifying all the environmental Project documents; adopting the MMRP and Findings of Fact and Statement of Overriding Considerations; authorizing the filing of a Notice of Determination with the County Clerk and thus formally concluding the CEQA process for the Project; and authorizing entry into a state lands lease for the Project.
 Modify and adopt Resolution 23-74.
 Continue the Item and direct staff to provide additional information. Note: Any continuance of CITY OF SAN CLEMENTE Page 4 of 8 Printed on 7/13/2023
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Meeting Date: 7/18/2023 Agenda Item: (
this Item will not allow the CSLC enough time to review and approve the land lease application at their August 17, 2023 meeting and would place the Project in jeopardy or, at minimum, delay the Project for at least a year due to the timing of the projects in the Cities of Encinitas and Solana Beach.
 Do not adopt the Resolution and provide alternative direction.

Fiscal Impact:

None at this time. The City has already contributed all required local match funds and passed through the construction grant funding from State Parks to the USACE in support of the Project.

Environmental Review/Analysis:

This Project is subject to both the California Environmental Quality Act (CEQA) and the National Environmental Policy Act (NEPA). The USACE is the Lead Agency for NEPA and the City of San Clemente is the CEQA Lead Agency for the Project.

As discussed in the joint FEIS/FEIR, SEA/FONSI, MMRP, Findings of Fact and Statement of Overriding Considerations, all potentially significant impacts of the Project can be avoided or reduced to a level below significance by the implementation of mitigation measures and/or conditions of approval as required by the regulatory agencies including the CCC, RWQCB, NOAA/NMFS and USFWS in their project respective conditions of approval with the exception of potentially significant and unavoidable impacts to surfgrass located on rocky vegetated reefs offshore of the City.

Potentially cumulatively considerable impacts of the project may occur to short term air quality and recreation impacts.

Public notice of the Draft Supplemental Environmental Assessment (SEA) was posted on the USACE, Los Angeles District on September 30, 2022. The SEA addressed the Section 7 Endangered Species Act consultation with NOAA/NMFS on issues related to the potential for green sea turtle effects. The SEA also documented that a Clean Water Act Section 401 water permit from the RWQCB has been obtained for the Project in 2022. Continued consultation under Section 106 with the State Historic Preservation Office was addressed regarding the San Clemente municipal pier which was constructed in 1928. The Project will have no impact on the City’s Municipal Pier. Lastly, the SEA noted a reduction in the dimensions of the borrow site (located on City of Oceanside Granted Tidelands) by narrowing the borrow area and creating a 300-foot offset to the CDFW Oceanside Artificial Reef.

The USACE publicly circulated the SEA and issued a Public Notice on September 30, 2022. The USACE published a notice that the Final SEA and FONSI were available for review to the mailing list recipients included in Attachment A to the SEA/FONSI. The Final SEA/FONSI was published on the USACE LA District website on June 29, 2023 and sent to the State Clearinghouse for publication.

The USACE has received no requests for additional information and no comments were received on the SEA/FONSI.

As the City and the USACE have been in a “Project Partnership Agreement” for more than 20 years for this Project, preparing supplemental documentation for green sea turtles is unwarranted as the process completed by the USACE covers the entirely of the Project for both NEPA and CEQA purposes. The regulatory agencies with jurisdiction for green sea turtles (namely NOAA/NMFS) have CITY OF SAN CLEMENTE Page 5 of 8 Printed on 7/13/2023
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already weighed in and issued an incidental take permit for the Project and have signed off on the adequacy of the environmental documentation prepared to date and provided the measures that are contained within the MMRP to ensure avoidance of impacts to green sea turtles. There are no new significant impacts and previous impact conclusions have remained unchanged from 2011 and the City will rely on the already completed NEPA process for the SEA/FONSI for the green sea turtles pursuant to CEQA §15222, §15223, §15225 and §15226.

The potentially significant impacts and the mitigation measures are fully described in the FEIS/FEIR and SEA/FONSI. All mitigation measures, project design features and best management practices (BMP’s) also are set forth in the Mitigation Monitoring and Reporting Program (MMRP) that that is included as Attachment 11.

Copies of the Final Feasibility Study, FEIS/FEIR, SEA/FONSI, MMRP, Findings of Fact and Statement of Overriding Considerations and other documents and materials that constitute the administrative record of proceedings upon which staff is recommending this decision be based have been available for public review from the custodian of these records, the Department of Public Works at City Hall.

The City Council must independently review, analyze and consider the Final Feasibility Study, FEIS/FEIR, SEA/FONSI, MMRP, Findings of Fact and Statement of Overriding Considerations and other documents and materials that constitute the administrative record of proceedings and all public comments, written and oral, received before making a decision.

The City Council is being asked to certify the Final EIS/EIR included as Attachments 2 and 3, incorporating the mitigation measures attached as Attachment 11. The Council is also asked to considering the Final EIS/EIR and in conjunction with making its findings pursuant to Section 15092 of the CEQA Guidelines, that approval of the Project has the potential to result in significant effects on the environment; however, the City eliminated or substantially lessened these significant effects where feasible, and can determine that the remaining potentially significant effects are found to be unavoidable under Section 15091 and acceptable under Section 15093.

Attachment 13 (Findings of Facts and Statement of Overriding Considerations) and Attachment 11 (Mitigation Monitoring and Reporting Program) provide findings required under Section 15091 of the CEQA Guidelines for potentially significant effects of the Project for Council to consider. Attachment 13 (Findings of Facts and Statement of Overriding Considerations) also provides the findings required under Section 15093 of the CEQA Guidelines relating to accepting the adverse impact of the Project due to overriding considerations.

The Council is being asked to balance the economic, legal, social, technological, and other benefits of the Project against the unavoidable environmental risks that may result and find that the specific economic legal social technological and other benefits outweigh the potential for unavoidable adverse environmental effects.

CITY OF SAN CLEMENTE Page 6 of 8 Printed on 7/13/2023
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Meeting Date: 7/18/2023 Agenda Item: (
Recommended Actions:

Staff Recommendation
STAFF RECOMMENDS THAT the City Council:

1. Conduct the public hearing: Open the Public Hearing; report any disclosures; receive staff and public comment; close the Public Hearing.

After the public hearing, adopt Resolution No. 23-74, which would:

2. Approve the Project and implement public beach restoration activities placing 251,000 cubic yards of sand on the City’s beaches in 2023/2024 with future beach sand replenishment events over the next 50 years (through 2073/2074);

3. Adopt the Final Feasibility Study and certify the FEIS/FEIR and SEA/FONSI;

4. Adopt the Mitigation Monitoring and Reporting Program;

5. Adopt the Findings of Fact and Statement of Overriding Considerations;

6. Authorize staff to file the CEQA Notice of Determination with the County Clerk; and

7. Authorize the City Manager to enter into a State Lands Lease with the California State Lands Commission in support of the Project.

Attachments:

1. Resolution No. 23-74
Final Feasibility Study & FEIS/FEIR for the USACE Coastal Storm Damage Reduction Project

2. San Clemente Final EIS-EIR Vol 1 July 2011

3. San Clemente Final EIS-EIR Vol 2 July 2011
NEPA Supplemental Environmental Assessment & FONSI (Attachments 4-10)

4. San Clemente SEA and FONSI

5. Supplemental Environmental Assessment

6. Clean Water Act Section 401 Water Quality Certification

7. California Coastal Commission Revised Staff Commendation

8. Conservation and Management Act Essential Fish Habitat Response

9. Department Of Parks and Recreation Office of Historic Preservation Letter

10.EJScreen Report (Version 2.11)

11.Mitigation Monitoring and Reporting Program

12.USACE Record of Decision

13.Findings of Fact and Statement of Overriding Considerations

14.State Lands Lease
CITY OF SAN CLEMENTE Page 7 of 8 Printed on 7/13/2023
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Notification:

Public Hearing Notice
CITY OF SAN CLEMENTE Page 8 of 8 Printed on 7/13/2023
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RESOLUTION NO. 23-74

A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF

SAN CLEMENTE, CALIFORNIA, APPROVING USACE

COASTAL STORM DAMAGE REDUCTION PROJECT IN
SAN CLEMENTE; ADOPTING THE FINAL FEASIBILITY

STUDY AND CERTIFYING THE FINAL EIS/EIR AND
SEA/FONSI; ADOPTING THE MMRP, FINDINGS OF FACT
AND STATEMENT OF OVERRIDING CONSIDERATIONS;

AUTHORIZING THE FILING OF A NOTICE OF
DETERMINATION TO SUPPORT THE PROJECT; AND

AUTHORIZING ENTRY INTO A STATE LANDS LEASE
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Shoreline erosion is substantially increased
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San Clemente City CouncilMarch 19, 2024

San Clemente City Council
March 19, 2024