Title
PLN220106 - BIG SUR CG OWNER LLC
Public hearing to consider Big Sur Campgrounds & Cabins improvements including a replacement septic system, rearrangement of existing visitor serving accommodations/camp sites (no increase), demolition of approximately 14,704 square feet of existing campground common spaces and construction of approximately 10,491 square feet of campground common space including a 70 square foot gatehouse, 1,020 square foot campground general store, 2,131 square foot registration and office, 4,987 square foot campground café, 1,578 square foot recreational room, and 705 square foot guest services building. The Proposed Project includes development within 100 feet of Environmentally Sensitive Habitat Areas, 750 feet of known archaeological resources, and on slopes exceeding 30 percent. Associated improvements include approximately 150,608 square feet of habitat restoration and 5,135 cubic yards of grading.
Project Location: 47000 Highway 1, Big Sur, Big Sur Coast Land Use Plan.
Proposed CEQA Action: Adopt a Mitigated Negative Declaration pursuant to section 15074 of the CEQA Guidelines.
Report
RECOMMENDATIONS
It is recommended that the Planning Commission adopt a resolution:
1) Adopting a Mitigated Negative Declaration pursuant to section 15074 of the CEQA Guidelines;
2) Approving Combined Development Permit consisting of:
a. a General Development Plan, Coastal Administrative Permit, and Design Approval to allow Big Sur Campground & Cabins improvements including replacement septic system, rearrangement of existing visitor serving accommodations/camp sites, demolition of approximately 14,704 square feet of existing campground common spaces and construction of approximately 10,491 square feet of campground common space including a 70 square foot gatehouse, 1,020 square foot campground general store, 2,131 square foot registration and office, 4,987 square foot campground café, 1,578 square foot recreational room, and 705 square foot guest services building;
b. a Coastal Development Permit to allow development within 100 feet of Environmentally Sensitive Habitat Areas;
c. a Coastal Development Permit to allow development on slopes exceeding 30 percent; and
d. a Coastal Administrative Permit to allow development within 750 feet of a known archaeological resource; and
3) Adopting Mitigation Monitoring and Reporting Plan.
The attached draft resolution includes findings and evidence for consideration (Exhibit B). Staff recommends approval subject to 30 conditions of approval.
PROJECT INFORMATION
Property Owners: Big Sur CG Owner LLC
Agent: Mike Linder, JD
APN: 419-201-023-000
Zoning: Visitor Serving Commercial, Design Control District, Coastal Zone or “VSC-D(CZ)”
Plan Area: Big Sur Coast Land Use Plan
Flagged and Staked: Yes
Project Planner: Fionna Jensen, Senior Planner, 831-796-6407, JensenF1@co.monterey.ca.us
SUMMARY
The Big Sur Campground & Cabins (BSCG) was originally established in 1955 by Don McQueen. It is licensed as a mobile home and recreational vehicle park under the California Department of Housing and Community Development (Park ID No. 270075-MP). Today, the property consists of 106 visitor serving accommodations - including 82 RV camp sites, four mobile homes, 17 park model RVs, and three A-frame cabins. The property is improved with common areas for food and beverage, retail, recreation, and guest services. The Proposed Project includes a replacement septic system, rearrangement of existing visitor serving accommodations/camp sites, demolition of approximately 14,704 square feet of existing campground common spaces, and construction of approximately 10,491 square feet of campground common space and other site improvements including improvements to internal circulation, restoration, and 5,135 cubic yards of grading to be balanced on-site. The primary goal of the Proposed Project is to upgrade aged and outdated infrastructure, specifically the existing wastewater system, that may otherwise pose a risk to the Big Sur River and groundwater. The Proposed Project includes a General Development Plan that consists of four main components: 1) re-development and enhancement of campground common space areas; 2) improvement of utilities, parking, and internal site access; 3) rearrangement of campground sites; and 4) restoration and landscaping. These components are discussed in more detail in Exhibit A.
County staff also prepared a draft Initial Study (IS) (see Exhibit C) for the Proposed Project. Staff identified potentially significant impacts to biological resources, land use and planning, hazards and hazardous materials, and tribal cultural resources. Mitigation measures have been proposed to reduce the identified impacts to a less-than-significant level. The Proposed Project and its potential environmental impacts are discussed in detail in the project discussion at Exhibit A.
DISCUSSION
The subject property is zoned Visitor Serving Commercial (VSC) and is governed by regulations and policies in the 1982 General Plan, Big Sur Coast Land Use Plan (LUP), Big Sur Coastal Implementation Plan (Part 3), and County of Monterey Coastal Zoning Ordinance (Title 20). The subject property is in an area identified as the Big Sur Valley Rural Community Center.
Site Development Standards
In accordance with Title 20 section 20.22.070, the proposed General Development Plan establishes the subject property’s setback requirements. As proposed and detailed in the attached General Development Plan (Exhibit B), the development will maintain a front setback of 135 feet, side setback of 57 feet and 26 feet (north and south, respectively), and a rear setback of 21 feet. These proposed setbacks are comparable to setbacks of neighboring zoning districts (Watershed and Scenic Conservation). However, the RV campground sites, A-frames, and Mobile Homes along the perimeter of the internal access road will have reduced setbacks from those established in the General Development Plan. Existing A-frames AF-2 and AF-3 will not be replaced or relocated; only interior improvements will occur within these structures and therefore will maintain their existing 2-foot side setback. Proposed Mobile Home MH-2 will be sited in the same location as existing Mobile Home MH-2 and will maintain the existing 13-foot side setback. Additionally, proposed Park Model PM-13 and proposed Mobile Home MH-1 will be sited in a location currently occupied by RV campground sites RV-16 and RV-13, respectively, and will maintain the existing 10.75-foot and 13-foot rear setback. The proposed development will not exceed the allowable height of 35 feet and is within the allowable site coverage (50%).
Table 1: Land Use and Development Intensity
Based on the Assessor’s Map (Exhibit J), prepared Historical Report (Monterey County Library No. LIB220350; Exhibit I), and County of Monterey Building records, the Big Sur Campgrounds & Cabins, with 106 sites, was established in 1955 and permitted in 1956 (Planning Commission Resolution No. 6207) prior to the certification of the Big Sur Coast LUP in 1986. All existing 82 RV campsites will remain as RV campsites and will continue to be available for tent camping. Similarly, all existing 17 park models, 3 A-frames and 4 mobile homes will remain in the same quantity. Therefore, the Proposed Project does not require allocation of any additional visitor serving units and is consistent with the unit cap allocation numbers contained in the Big Sur Coast LUP and CIP (Table 1 and CIP section 20.145.140.B.1.c.5). Consistency with Table 1 (Exhibit F) and other Big Sur Coast LUP policies relative to visitor serving accommodations are discussed in more detail in Exhibit A.
Development on Slopes in Excess of 30%
Installation of the proposed replacement wastewater treatment system in Proposed Building P(5) will impact approximately 426 square feet of development on slopes in excess of 30%. Therefore, the applicant has applied for a Coastal Development Permit. Based on its review, staff has concluded that the proposed location of the wastewater treatment system’s processing equipment is the most appropriate and feasible location that allows the leach field areas to meet required on-site well, Big Sur River, and Redwood tree setbacks (150-, 100-, and 20-feet, respectively). Meeting these setbacks, as well as the standards of the Monterey County Local Agency Management Plan (LAMP), Chapter 15.20 of the Monterey County Code and the State Water Resource Control Board, ensures protection of the local ground water quality and nearby drinking water sources downriver, including the Clear Ridge Neighborhood and Captain Cooper Elementary. This is discussed in more detail in Exhibit A.
Development within Environmentally Sensitive Habitat Areas
The Project site is within, and adjacent to, Environmentally Sensitive Habitat Areas (ESHA), including but not limited to Coast Redwood Forest and the Big Sur River and its associated habitat and species, and is designated as critical habitat for California red-legged frog. Although the Project Biologist did not observe special status wildlife species during his seven site visits, the prepared biological report (Monterey County Library No. LIB220345; Exhibit G) concluded that the Proposed Project would result in potentially significant impacts to special status plant and animal species if mitigation measures were not incorporated.
The LAMP requires new on-site wastewater treatment systems (OWTS) to be designed with primary and secondary leach lines and demonstrate that adequate area is available for a future dispersal system (tertiary system). This requirement demands extensive portions of the property to be developed with leach fields. In this case, the 12 primary and secondary leach fields occupy approximately 21,000 square feet (0.5 acres). Given the property’s environmental and hydrological constraints, the siting of infrastructure elements has been field-assessed though coordination with various consultants (Project Biologist, Arborist, and Engineers) to determine the most appropriate siting while minimizing potential root impacts of Redwood trees and meeting the on-site well and Big Sur River setbacks. Although the proposed leach fields will be setback 20 feet from nearby Redwood trees, trenching associated with installation of the absorption fields will be within the critical root zones of nearby Redwoods. No tree removal is proposed. Coast Redwoods are renowned for their capability of compensating for disruptions to their root systems through a variety of characteristics, including resiliency, widespread lateral root structure, buttress flaring, and ability to tolerate heavy siltation accumulations by growing successionally higher root systems. However, implementation of Mitigation Measure Nos. 1, 3, 4, 6, and 7 (Condition Nos. 18, 20, 21, 23, and 24) will ensure that potential root impacts are reduced to a level that supports the long-term health of the Redwood trees, as required by the Big Sur Coast LUP and CIP.
The Biological Assessment determined that the Proposed Project site and local vicinity contain suitable habitat for Western Pond Turtle, Pacific lamprey, Foothill yellow-legged frog, California red-legged frog, and Steelhead, and therefore the potential for these species to inhabit the Project site is high. Although the Project site soils are generally unsuitable, California tiger salamander and the California horned lizard have low to moderate potentials to inhabit the Project site. Additionally, Western bumble bee and Crotch’s bumble bee have the potential to occupy the site’s leaf litter or other vegetative debris. Mitigation Measure Nos. 1, 2, 3, and 10 (Condition Nos. 18, 19, 20, and 27) have been applied to reduce impacts to these species to a less-than-significant level.
The existing and historical visitor use of the site has significantly reduced the riparian vegetation along the Big Sur riverbank due to wood collecting, tramping of plants, cutting of vegetation and trail systems that navigate down the banks from campsites. Additionally, areas of riparian habitat have also been colonized by invasive plants. The Arroyo Willow Riparian habitat is considered ESHA and are therefore subject to the protection policies (Chapter 3.3) of the Big Sur Coast LUP. Although no development is within the Big Sur riverbank, restoration of this area is necessary to ensure long-term habitat maintenance. Adherence to Mitigation Measure No. 9 (Condition No. 26) will reduce impacts to the riparian habitat to a level of less than significant by requiring preparation and implementation of a Riparian Restoration Plan, which would restore approximately 33,540 square feet of the Big Sur riverbank and eradicate invasive plant species.
More details regarding the Proposed Project’s potential impacts on ESHA and the intended effect of the draft mitigation measures are provided in Exhibit A, Discussion.
Development Within 750 Feet of Known Archaeological Resources
Based on Monterey County Geographic Information System, the subject property is within an area of high archaeological sensitivity but not within 750 feet of a known archaeological resource. However, the prepared Phase I and Phase II Archaeological Assessment (Monterey County Library No. LIB220346) found that the subject property is located adjacent to the Carmel-San Simeon Highway Historic District, which is registered as a resource per the California Historic Resources Information System’s Northwest Information Center. The Carmel-San Simeon Highway Historic District is a 100-mile segment of Highway 1 between Carmel and San Simeon. The Proposed Project would have no impact on Highway 1, or its Historic District as the site already serves as a campground and no intensification is proposed. The archaeological reports concluded that there is no evidence that the subject property contains historic or prehistoric site indicators. The possibility of disturbing previously unknown archaeological resources represents a potentially significant impact that would be adequately mitigated with implementation of Condition No. 3. Potential impacts to tribal cultural resources are discussed in Exhibit A.
ENVIRONMENTAL REVIEW
Pursuant to Public Resources Code section 21083 and California Environmental Quality Act (CEQA) Guidelines sections 15063(a) and 15063(b)(2), the County as Lead Agency completed environmental review to determine if the Proposed Project may have a significant effect on the environment. The County prepared a draft initial study and mitigated negative declaration (IS/MND) for this Proposed Project (Exhibit C). Staff filed the draft IS/MND with the County Clerk on October 14, 2023; and circulated for public review from October 14, 2023, through December 14, 2023 (State Clearinghouse Number 2023110363). The draft IS/MND identified potentially significant impacts to biological resources, land use and planning, hazards and hazardous materials, and tribal cultural resources. Mitigation measures have been proposed to reduce the identified impacts to a less-than-significant level and are discussed in more detail in Exhibit A. The Applicant has agreed to implement the mitigation measures, which have been incorporated into the project as conditions of approval (Condition Nos. 18 through 27). All other standard topics of environmental analysis were found less than significant or no impact from the Proposed Project.
During public review of the Initial Study and Mitigated Negative Declaration, staff received public comment (Exhibit D) regarding noise, events, types of units proposed, traffic impacts, exterior lighting, and general operation and maintenance of the campground. Letters also contend that as designed, the Proposed Project “resembles an inn, not a campground or residential trailer park” and the Proposed Project will convert existing rustic campsites into RV or Park Model because the plan set illustrates RV campsites, not rustic campsites. The Proposed Project site is permitted with 106 visitor serving accommodations - including 82 RV campsites, four mobile homes, 17 park model RVs, and three A-frame cabins. As detailed above in “Table 1: Land Use and Development Intensity,” the existing RV campsites and proposed replacement RV campsites are considered “Inn/RV campground” units, not “rustic campground” units. These RV campsites can still be used for tent camping purposes; no Park Model or Mobile Home will be placed on these campsites. No additional daily trips will be generated with the Proposed Project and no additional employees are proposed. Condition Nos. 11 and 25 have been applied to address proposed exterior lighting and on-going campground management. No events (including weddings) are proposed, nor allowed with the granting of this Combined Development Permit and General Development Plan. The Big Sur Campgrounds & Cabins is subject to the County’s noise ordinance, which prohibits loud and unreasonable sound from 9:00pm to 8:00am the following morning and noise that exceeds 85 decibels during the day. Operational noise is not anticipated to increase the existing ambient noise as the Proposed Project does not increase the number of visitors serving accommodations and on-site facilities are limited to use only by campground guests. No additional employees will be needed to operate the Proposed Project.
OTHER AGENCY INVOLVEMENT
The following County agencies have reviewed this project, have comments, and/or have recommended conditions:
HCD-Engineering Services
HCD-Environmental Services
Environmental Health Bureau
CalFire
LUAC
The Proposed Project was referred to the Big Sur Land Use Advisory Committee (LUAC) for review on January 10, 2023. During this meeting, the item was continued to February 14, 2023 to allow time for the LUAC members to conduct a site visit. On February 14, 2023, the LUAC voted 5-0 to support the project as proposed (Exhibit E). The LUAC members raised questions and comments relating to the proposed café and whether its use would be restricted to only on-site guests, employee housing, signage, special events, and pricing of each unit. Staff provided the following summarized response: the proposed café, as detailed in the General Development Plan, would be limited to use only by campground guests, employee housing is provided on a neighboring property, existing signage will remain, no special events are proposed, and pricing is not regulated by the Big Sur Coast LUP. Members of the public requested that employee housing be incorporated into the Proposed Project. One public member claimed that there are only 88 existing units, not 106 units.
Prepared by: Fionna Jensen, Senior Planner x6407
Reviewed by: Anna Ginette Quenga, AICP, Principal Planner
Approved by: Melanie Beretti, AICP, Acting Chief of Planning
The following attachments are on file with HCD:
Exhibit A - Discussion
Exhibit B - Draft Resolution, including:
• Conditions of Approval and Mitigation Measures
• Site Plan, Floor Plans and Elevations
• General Development Plan
Exhibit C - Draft IS/MND
Exhibit D - CEQA Comment Letters
Exhibit E - Big Sur Land Use Advisory Committee minutes
Exhibit F - Table 1 of the Big Sur Coast Land Use Plan
Exhibit G - Biological Assessment
Exhibit H - Existing and Proposed Water Demand
Exhibit I - Historical Report
Exhibit J - Assessor’s Parcel Map
Exhibit K - Vicinity Map
cc: Front Counter Copy; California Coastal Commission; CalFire; HCD-Environmental Services; HCD-Engineering Services; Environmental Health Bureau; Fionna Jensen, Senior Planner; Anna Ginette Quenga, AICP, Principal Planner; Big Sur CG Owner LLC, Property Owner; Mike Linder, JD, Agent; Patrick Orosco, Interested Party; Christina McGinnis, Interested Party; The Open Monterey Project; LandWatch (Executive Director); Lozeau Drury LLP; Planning File PLN220106