Title
PLN240286 - SALINAS VALLEY SOLID WASTE AUTHORITY (SVSWA)
Public hearing to consider establishment of a large volume self-haul/commercial refuse transfer station including the construction of a 25,200 sq. ft. public and commercial solid waste drop-off building, a 8,700 sq. ft. public recycling drop-off building, a 240 sq. ft. cashier/scale building, conversion of an existing 3,200 sf. ft. building into a hazardous household waste drop off building, installation of two 70-foot vehicle scales, two 97,171-gallon water tanks and associated retaining walls, circulation improvements, related site infrastructure, the removal of three protected trees, grading on approximately 6,710 sq. ft. of slopes in excess of 25%, and a Variance to exceed 30-foot height limit by 16 feet.
Project Location: 350 Crazy Horse Canyon Road, Prunedale, North County Area Plan
Proposed CEQA action: Consider the adopted Negative Declaration for the Salinas Valley Solid Waste Authority “North County Recycling and Transfer Station” (State Clearinghouse Number 2025080381) and find that no further environmental review is warranted pursuant to CEQA Guidelines section 15162.
Body
RECOMMENDATION:
It is recommended that the Planning Commission adopt a resolution to:
1. Consider the adopted Negative Declaration for the Salinas Valley Solid Waste Authority “North County Recycling and Transfer Station” (State Clearinghouse Number 2025080381) and find that no further environmental review is warranted pursuant to CEQA Guidelines section 15162;
2. Approve a Combined Development Permit consisting of:
a. Use Permit to allow a large volume self-haul/commercial refuse transfer station including construction of a 25,200 sq. ft. tension fabric/steel building on concrete foundation for drop-off and collection of public and commercial solid waste, 8,700 sq. ft. tension fabric/steel building on concrete foundation for drop-off and collection of public recyclable materials, a 240 sq. ft. cashier/scale house, improvements to an existing 3,200 sf. ft. metal building for hazardous household waste drop off, installation of two 70-foot vehicle scales, two 97,171-gallon water tanks and associated retaining walls, circulation improvements and site infrastructure, and removal of three protected oak trees; and
b. Use Permit to allow approximately 6,710 sq. ft. of grading on slopes of 25%; and
c. Variance to increase the maximum allowed height in PQP Zoning District (30 feet) to allow construction of a 46-foot-tall main structure.
The attached draft resolution includes findings and evidence for consideration Exhibit A. Staff recommends approval subject to 20 conditions of approval.
PROJECT INFORMATION:
Agent: Brian Kennedy, SVSWA
Owner: Salinas Valley Solid Waste Authority (SVSWA)
APN: 125-271-063-000
Zoning: Public/Quasi-Public (PQP)
Parcel Size: approximately 140 acres
Project Area: approximately 5 acres
Flagged and Staked: No
Project Planner: Mary Israel, Supervising Planner
israelm@countyofmonterey.gov, (831)755-5183
SUMMARY:
The proposed project is located on the 160-acre Crazy Horse Landfill site, with 72 acres previously permitted for Class III municipal solid waste disposal, in the ownership of Salinas Valley Solid Waste Authority (SVSWA). As proposed, the project would establish a large volume refuse transfer station with an approximately 5-acre mostly flat, paved portion of the property. The project includes restoring waste disposal services to North County by developing a large volume recycling and waste transfer station. Structural improvements include construction of a 25,200 square-foot tension fabric/steel building for drop-off and collection of public and commercial solid waste, an 8,700 square-foot tension fabric/steel building for drop-off and collection of public recyclable materials, a 240 square-foot cashier/scale house, and improvements to an existing 3,200 square-foot metal building for hazardous household waste drop-off. The main 25,200 square foot 40.6-foot-tall structure would need to be tall enough to receive commercial waste transport vehicles that could tip into receptacles in a covered environment (measured 46 feet in height from average natural grade, maximum). A variance to the PQP height maximum for main structures (30 feet) is requested. The project would also require widening the existing entrance and adding new deceleration and acceleration lanes to accommodate ingress and egress. Grading on manmade slopes in excess of 25% and removal of three protected oak trees would be required to construct the facility.
DISCUSSION:
Background and Operations
The landfill began operations in 1934 as a burn dump and transitioned to sanitary landfill operations in 1966. The City of Salinas owned the landfill from 1950 until 1997, when ownership was transferred to the SVSWA. The Landfill operations continued until May 2009, when the site ceased accepting waste. Closure activities were completed in 2013, and final closure certification was obtained in 2017. During its operational years, the landfill handled municipal solid waste, recyclables, and organic materials (e.g., green and wood waste) for customers in Salinas and North Monterey County. Currently, the site holds a Limited Volume Transfer Station Notification (EA Notification Tier), restricting waste intake to 15 tons or 60 cubic yards per day. Although the notification is active, only minimal collection has occurred for research purposes related to waste recovery technologies. There are ongoing post-closure maintenance activities and environmental monitoring.
The large volume transfer station will have operating hours between 7 a.m. to 4 p.m. Monday through Friday and 8 a.m. to 4 p.m. Saturday and Sunday. SVSWA anticipates 8 full-time employees. Site maintenance required as part of the Stormwater Plan for the closed landfill will continue, including daily cleaning and/or wetting of surfaces, litter control, and upkeep of roads, equipment, and stockpiles. All material drop-off points will be under cover to comply with stormwater best practices. Covered areas will include a tension fabric recycling drop-off building (8,700 sq. ft.) and a main waste drop-off building (25,200 sq. ft.). An existing 3,000 sq. ft. service shop will be converted into the HHW collection facility.
The facility will accept and transfer off-site up to 400 tons per day of municipal solid waste, recyclables and organic wastes. All materials will be transferred offsite for processing and disposal. As waste accumulates throughout the day, it will be consolidated by loaders. Roll-off boxes and transfer trailers will be loaded as needed for off-site transport. Solid waste, green waste, and wood waste will be transferred to the Johnson Canyon Landfill in Gonzales. Recyclable materials will be sent to different destinations based on type: currently metal and plastic to Castroville, tires to Hollister, mattresses and carpet to San Jose, and HHW to Fremont. The facility is expected to operate for at least 25 to 30 years, although the exact duration will depend on future regional waste management needs and regulatory requirements.
Associated improvements include installation of two 70-foot vehicle scales, two 97,171-gallon water tanks on a concrete pad with associated retaining walls and internal circulation improvements. The project also requires removal of three protected trees (see Exhibit A, Plans and Operations Plan). Traffic flow is indicated in the Site Plan with colored arrows (Sheet A1.0). Civil sheets of the entrance provide details, such as the installation of islands to slow traffic entering and exiting the gate (Concept Driveway Plans, starting at page 28 of 32, Plans).
The project has been reviewed for site suitability by HCD's Planning, Engineering Services, and Environmental Services groups, the County of Monterey Environmental Health Bureau (EHB), and the North County Fire Protection District (NCFPD). The application included an operations plan, site plans, and several reports for the proposed project, including an arborist report, a geotechnical report, and the SVSWA draft Initial Study and Negative Declaration (IS/ND). HCD and EHB found the project has the potential to comply with the 2010 General Plan and the North County Area Plan as designed in the following respects:
General Plan
The project is consistent with 2010 General Plan Goal PS-5 and Policy PS-5.2, which encourage recycling, composting, and source reduction of solid waste and support the designation, development, and maintenance of efficient, environmentally compliant, and cost-effective disposal sites; the project provides North County residents with a local depository for recycling, organics, and other refuse, saving transportation to the existing dump on Del Monte Boulevard in Marina (ReGen Monterey, Monterey Regional Waste Management District).
The project is consistent with Policy PS-6.2, which requires new and expanded solid waste facilities to be located where potential environmental impacts can be mitigated and rendered compatible with surrounding land uses. The project-specific IS/ND found potential impacts would be mitigated by design and conformance with local, State, and Federal regulations, and reviewed how the project is sited inside the entrance of the closed landfill, which was closed pursuant to a certified Environmental Impact Report (SCH# 2009011062). The project is also consistent with Policy PS-6.5, which recommends that new development projects handle waste in conformance with State-mandated diversion and recycling goals and provide adequate solid waste recycling collection areas; SVSWA's institutional expertise in this area has informed development plans that ensure adequate collection areas are provided.
2010 General Plan Policy LU-1.13 requires exterior lighting to be unobtrusive, reduce off-site glare, and light only an intended area, implemented through Title 21 section 21.63.020. Condition No. 7 (Exterior Lighting Plan) is applied to address lighting that may be needed to illuminate the transfer station during use.
Parking
Parking requirements for different land uses are presented in Title 21 section 21.58.040. “Contractor yard” is the closest potential match to the project use; that type of use requires one space per 3,000 square feet lot area. In the case of this transfer station, the lot area is not mapped for contractor use, per se, but is mapped for clientele circulation route, as they stay within their vehicles during visits to the site (53,393 square feet). The project includes approximately 6,613 square feet of structural area that would be occupied by employees, as well. In sum, the 60,006 square feet of area requires a minimum of 20 parking spaces under the applicable parking ratio of one space per 3,000 square feet. The total area would provide 21 on-site parking spaces, inclusive of one ADA compliant space, which meets the intent of the parking requirement. The spaces are intended primarily for employees, administrative visitors, and occasional service vehicles.
Tree Removal
North County Area Plan Policy NC-3.4 discourages removal of healthy, native oak and madrone trees in the North Monterey County Area. HCD-Planning reviewed the project’s tree removal information in the Operations Plan and the supporting arborist reports and found the removal of three protected oak trees can be supported with replacement at the 2:1 ratio recommended by the project arborist at the locations that the arborist recommended in the project Arborist Report (Neve, March 24, 2026, HCD Library Document number LIB250385) and reflected in the Operations Plan. Consistent with Title 21 section 21.64.260.D.5, the tree removal is the minimum required under the circumstances: the Arborist found two coast live oaks of 51 inches and 10 inches in diameter at 2 feet above ground, would require removal from the entrance area. However, the preferred entrance design, selected later in application processing, and shown in the Plans, would also very likely impact a third oak tree south of the entrance to accommodate the Southbound acceleration lane. The Arborist did not recommend a replanting location for the oaks in the immediate area, as confirmed by staff at the site inspection on May 1, 2026 - there are pipes in the ground in the only area that would not be developed for entrance improvements. The Arborist recommended replanting with coast live oak near the oak woodland on the subject parcel, to improve the health of the forest. The Arborist did not find the removal of three protected trees and a few unprotected trees within the project area would involve a risk of adverse environmental impacts. The Arborist recommended 2:1 replanting for the protected trees removed and a two-year care and maintenance plan (Condition No. 20). Conditions of Approval related to Tree Removal and Tree Protection are applied as Condition Nos. 4 and 5.
Transportation & Safety
The transfer station is projected to generate approximately 721 average daily trips (586 self-haulers, 64 franchise collection trucks, 55 outbound transfers, and 16 employee commute trips). The Traffic Report by Ethan Heckman and Kai-Ling Kuo, Hexagon Transportation Consultants, Inc. dated February 12, 2026 (HCD Library Document No. LIB250387) concluded that all study intersections, including the US 101/Crazy Horse Canyon Road interchange and San Juan Grade Road/Old Stage Road, will continue to operate at LOS C or better with the project added to the existing conditions.
HCD-Engineering reviewed the project for conformance with County Transportation Safety standards and State regulations. Based on the Traffic Report, HCD-Engineering found that roadway improvements are required to ensure traffic safety near the entrance, consisting of a Northbound Left-Turn Channelization Lane, a Southbound Right-Turn Channelization Lane, a Southbound Right-Turn Acceleration Lane, and a Northbound Left-Turn Acceleration Lane, together with applicable signs and pavement markings at the project entrance (Condition No. 8). A Traffic Control Plan is required prior to issuance of construction permits (Condition No. 9). Sight distance at the project driveway currently meets standards looking right toward northbound traffic, with over 550 feet available (exceeding the CalTrans baseline standard of 548 feet and the American Association of State Highway and Transportation Officials [AASHTO] grade-adjusted requirement of 475 feet for an 8% uphill grade at a 58-mph design speed). However, sight distance to the left toward southbound traffic is currently limited to about 450 feet. It does not meet the AASHTO grade-adjusted requirement of 604 feet (accounting for the 6% downgrade) or the Caltrans 548-foot baseline. To achieve the required sight distance for southbound traffic, Condition No. 10 requires the applicant to trim back roadside brush and vegetation, and potentially regrade the dirt shoulder and embankment north of the driveway to ensure appropriate sight distance. Engineering Services will confirm the Sight Distance complies with CalTrans and AASHTO regulations prior to issuance of the grading permit. SVSWA also worked closely with HCD-Engineering on the entrance design that is shown in the project plans.
Development on Slopes Exceeding 25 Percent
General Plan Policy OS-3.5 requires a Use Permit for development on slopes in excess of 500 square feet or 10 percent of the development area, whichever is less, and requires a finding that either no feasible alternative would allow development to occur on slopes of less than 25 percent, or that the proposed development better achieves the goals, policies, and objectives of the General Plan and applicable area plan than other alternatives.
The subject parcel's natural slope gradient rises from the southwest and southeast, varying from approximately 10 to 30 percent, with man-made slopes of up to 25 percent to the north and northwest where the landfill is capped. The project include a total of 6,709 square feet of grading on man-made slopes exceeding 25 percent.
There is no feasible alternative to development on these slopes. The project entails re-grading to allow construction of structures and safe ingress and egress required for the transfer station to function, while remaining within the existing paved area to the greatest extent possible. Within that area, the applicant would re-grade 2,815 square feet of manmade slopes in excess of 25% to place the new main structure, while protecting an existing roadway to the north of it for access to the new water tanks required for fire safety. The project also requires widening the existing entrance to accommodate safe vehicular access with traffic calming islands and deceleration/acceleration lanes. Therefore, the project would re-grade 3,894 square feet of manmade embankments in excess of 25% near the existing entrance and along Crazy Horse Canyon Road. The sloped areas requiring grading are within the most reasonable locations for these improvements, The sloped areas requiring grading are within the most reasonable locations for these improvements. As the site is constrained by the covered landfill on two sides and a steep naturally sloped and wooded area on the third side, redesigning the project to retain the manmade slopes would be infeasible on two sides and likely cause grading on natural slopes and wooded areas on the third. Pursuant to General Plan Policy OS-3.5.1.b, the site is regulated for erosion control through the Industrial General Permit to minimize construction-related erosion and sedimentation.
Site Development Standards and Variance Request
The project is on an approximately 5-acre area of a much larger parcel in the ownership of the SVSWA. With respect to site coverage, parking standards, and heights of all but one structure, the project conforms with the site development standards of the PQP zoning district.
The main structure, a 25,200 square-foot tension fabric covered steel building proposed to serve the main refuse tipping station, is proposed to be 46 feet from average natural grade at its highest point. This exceeds the allowable height of main structures by 16 feet. The applicant has applied for a variance to allow this exceedance of height.
To grant a Variance to modify site development standards, the Appropriate Authority must find:
1. That because of special circumstances applicable to subject property, including size, shape, topography, location or surroundings, the strict application of this Title is found to deprive subject property of privileges enjoyed by other properties in the vicinity and under identical zone classification; and
2. That the variance does not constitute a grant of special privileges inconsistent with the limitations upon other property in the vicinity and zone in which such property is situated;
3. A variance shall not be granted for a use or activity which is not otherwise expressly authorized by the zone regularly governing the parcel of property.
Special circumstances apply to the subject property, including its location and surroundings, such that strict application of the Monterey County Code development standards would deprive the property of privileges enjoyed by other properties with PQP zoning in the vicinity. The project requires a covered structure of sufficient height to accommodate commercial trucks entering it to tip refuse into receptacles, and the 30-foot PQP height limit is not tall enough to accommodate this central project component, making it impossible to build the project without the granting of a height Variance. The site is a closed landfill previously permitted for a small transfer station; given high demand for refuse collection in North County, SVSWA determined this site to be the most appropriate location for a large transfer station, and it is not possible to design such a facility there within the PQP height maximum.
Within North County, five properties within the PQP district have been granted permits for structures that exceed the 30-foot height limit (PLN040628, PLN070491, PLN990189, PLN140633, and PLN040174, four wireless communication facilities and one gas flare at the subject landfill) so disallowing the project based on the PQP height restriction would deprive the property of privileges enjoyed by nearby properties within the same zoning district. As four other properties within NCAP and PQP zoning district were granted discretionary permits for structures taller than the 30-foot maximum height of the zoning district, granting the Variance would not constitute a grant of special privileges.
The Variance also does not authorize a use not otherwise expressly authorized by the zone regulations; PQP zoning districts (Title 21, Chapter 21.40) do not expressly authorize structures exceeding the maximum height unless they are barns, stables, or farm outbuildings, and the proposed use is otherwise allowed in the PQP district with a Use Permit pursuant to Title 21 section 21.40.050.N.
Aside from these variance findings, the neighboring RDR-zoned properties on the west side of Crazy Horse Canyon Road may likewise construct barns and farm outbuildings up to 50 feet above natural grade to accommodate large vehicles, comparable to the 46-foot height needed for the proposed large refuse transfer station.
In sum, the request for variance is reasonable and can be supported. Therefore, HCD-Planning staff recommend that the Planning Commission grant the requested Variance to maximum main structure heights in the PQP Zoning District.
CALIFORNIA ENVIRONMENTAL QUALITY ACT:
Pursuant to Public Resources Code Section 21083 and CEQA Guidelines Sections 15063(a) and 15063(b)(2), SVSWA, as Lead Agency, prepared an Initial Study (IS) for the North County Recycling and Transfer Station project (State Clearinghouse Number 2025080381) and, pursuant to CEQA Guidelines Section 15073(a), circulated the document for a 30-day public review period from August 9, 2025 to September 9, 2025. The IS analyzed potential impacts to Aesthetics, Air Quality, Biological Resources, Cultural Resources, Energy, Geology & Soils, Greenhouse Gas Emissions, Hazards & Hazardous Materials, Hydrology & Water Quality, Noise, Population/Housing, Public Services, Transportation, Tribal Cultural Resources, Utilities & Service Systems, Wildfire, and cumulative considerations (Mandatory Findings of Significance), and concluded that all potential impacts were mitigated through project design and the regulatory environment; the IS did not recommend any mitigation measures.
A Negative Declaration (ND) was prepared and adopted by SVSWA on September 18, 2025 (Resolution No. 2025-53), based on the SVSWA Board of Directors' finding that there is no substantial evidence, based on the record as a whole, that the project may have a significant effect on the environment. See Exhibits C and D.
The Monterey Bay Air Resources District (MBARD), among others comments on the IS/ND. MBARD requested clarification on separation equipment, which SVSWA staff provided, and in a second comment letter requested notification for demolition and renovation pursuant to Rule 424, recommended electric vehicle charging stations, recommended Tier 3 or Tier 4 emissions standards for construction equipment, and recommended a Vehicle Miles Traveled (VMT) evaluation. SVSWA responded that it would comply with MBARD Rule 424 and incorporate dual-port Level 2 and DC fast-charge stations where feasible and at the discretion of decision-makers.
Caltrans District 5 requested that merge and diverge and basic freeway segment operations on Highway 101 at the Crazy Horse Canyon/Echo Valley Road interchange be analyzed using Highway Capacity Manual 7th Edition methodologies; SVSWA responded that the project was evaluated under CEQA Guidelines Section 15064.3(b) using VMT as the metric, but offered to coordinate with Hexagon Transportation Consultants to prepare additional freeway operations analysis using HCM7 methodologies. The Traffic Report prepared for HCD after IS/ND circulation included VMT and HCM7 method analysis at freeway intersections.
The County of Monterey submitted comments on the IS/ND. EHB commented with pathways that the project could comply with Title 15 and SVSWA responded that they will provide portable toilet facilities with required pumping and maintenance schedules and coordinate with EHB on local permitting. HCD-Engineering commented on how the Traffic Study should be revised and SVSWA submitted a revised Traffic Study with permitting documents. HCD-Planning provided comment that the Land Use and Planning section of the IS should discuss consistency with the 2010 General Plan and the North County Area Plan, and identified tree protections and removal permitting requirements as well as exterior lighting requirements for the project. None of the County reviewers specified the need for substantial changes to the ND. SVSWA, as Lead Agency, did not find edits to the IS were required.
Pursuant to CEQA Guidelines Section 15162, there are no substantial changes with respect to the circumstances under which the project is undertaken that would require major revisions to the adopted Negative Declaration. There has been no change in the environmental circumstances for traffic since the ND was adopted, as shown by the proposed project's Traffic Study, nor has there been a change in Earth, Air, Water, Plant and Animal Life, Natural Resources, Energy, Land Use, Population and Housing, Public Utilities, Public Services, Noise, Hazards, Aesthetics, or Cultural Resources in the SVSWA landfill and Crazy Horse Canyon area of Prunedale since the Negative Declaration was adopted on September 18, 2025. The analysis contained in the Initial Study and the record as a whole indicate the project would not result in changes to the resources listed in Section 753.5(d) of the California Department of Fish and Game regulations, and the Negative Declaration concluded the site does not have the potential to support sensitive animal and plant species.
Accordingly, on the basis of the whole record before the Planning Commission, there is no substantial evidence that the proposed project, as designed and conditioned, will have a significant effect on the environment. Staff recommend the Planning Commission find that no further environmental review is required and the project is consistent with the scope of work analyzed in the IS/ND, State Clearinghouse Number 2025080381.
OTHER AGENCY INVOLVEMENT:
The following agencies have reviewed the project, have comments, and/or have recommended conditions:
Environmental Health Bureau
HCD-Engineering Services
HCD-Environmental Services
North County Fire Protection District
North County Land Use Advisory Committee
LAND USE ADVISORY COMMITTEE (LUAC):
Based on the LUAC procedure guidelines adopted by the Monterey County Board of Supervisors, the project was referred to the North County LUAC. The LUAC on May 6, 2026 voted 6 yeas, 0 noes with 3 absent to support the project as proposed (Exhibit B).
Prepared by: Mary Israel, Supervising Planner, 755-5183, israelm@countyofmonterey.gov
Reviewed by: Fionna Jensen, Principal Planner
Approved by: Melanie Beretti, AICP, Chief of Planning
The following attachments are on file with the HCD:
Exhibit A - Draft Resolution including:
• Conditions of approval
• Site Plans
• Project 3D Renderings
• Operations Plan
Exhibit B - North County Land Use Advisory Committee Minutes (May 6, 2026)
Exhibit C - Final Initial Study & Mitigated Negative Declaration
Exhibit D - SVSWA Board of Directors adopted Resolution No. 2025-53
Exhibit E - Vicinity Map
Exhibit F - Arborist Report (LIB250385)
Exhibit G - Traffic Report (LIB250387)
cc: Front Counter Copy; Planning Commission; Mary Israel, Planner; Fionna Jensen, Principal Planner; Melanie Beretti, AICP Chief of Planning; Brian Kennedy, Applicant/Owner; The Open Monterey Project (Molly Erickson); LandWatch (Executive Director); Christina McGinnis, Keep Big Sur Wild; Project File PLN240286.