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HomeMy WebLinkAbout _ 9.4(a)--Award Bid Schedule No. 5314, Update-Redding Riverfront Specific Plan GI �" Y � F � � � ° � � � " � � CITY OF REDDING REPORT TO THE CITY COUNCIL MEETING DATE: February 7, 2023 FROM: Jeremy Pagan, Development ITEM NO. 9.4(a) Services Director/Bldg Official ***APPROVED BY*** �� k���� �„„ ��� '� :,G �� ��n � .�.._ s.N,.�� v,� �v� ��� n�vN� ��� � � � � ���' 7�rc�ai�v,�,�a��.�<lc>p2.:���kS�.ac��r�'�DaNuciti�t�'L31�i�C7£#ncial �... q;3tt?(�2� � � ip}?ITi,�'1 � 2t1� ��.�-: ��1�7d}�i� �;��.,���`��,�` jpagan@cityofredding.org btippin@cityofredding.org SUBJECT: 9.4(a)--Consider awarding Bid Schedule No. 5314 to update the Redding Riverfront Specific Plan and repare the Environmental Impact Re ort. Recommendation Approve the following actions relative to Bid Sched�ule No. 5314, to update the Redding Riverfront Specific Plan (RRSP), and prepare the Environmental Impact Report: (1) Authorize staff to negotiate a contract with MIG/Populous for preparation of an update to the RRSP and associated Environmental Impact Report (EIR), in an amount not to exceed $1,230,043; (2) Authorize the Mayor to execute the contract; and (3) Authorize the City Manager to approve amendment(s) to the contract for an additional amount not to exceed$19,957 for contingency purposes. Fiscal Impact The City Council (Council) previously adopted a resolution appropriating $1,250,000 of American Rescue Plan Act of 2021 (ARPA) funding for this project. Alter�native Action The City Council could award the contract to one of the other �rms interviewed or provide City of Redding (City) staff with alternate direction. Background Current Reddin�Riverfront S�ecific Plan The RRSP was originally adopted in 1990 and its Final Environmental Impact Report (FEIR) was certified for the project. lVlinor amendments to the RRSP were adopted in 1992. The current speci�ic plan area encompasses approximately 500 acres. The complete planning area is shown on the map, attached Figure 1, and is specified as either the Northern Riverfront or Southern Riverfront. These areas are separated by Highway 44 and both border the Sacramento River. For Report to Redding City Council February 1,2023 Re: 9.4(a)--Award Bid Schedule No. 5314, Update-Redding RiverfrontSpecific Plan Page 2 purposes of this update, it is proposed that the plan area not extend across the Sacramento River, thus not including the area known as Turtle Bay East. Current zoning for properties within the RRSP includes the "SP", Specific Plan Overlay District in addition to the underlying base zoning districts. The purpose of the "SP" Overlay District is to provide for specific staff review of development proposals to ensure projects will coinply with all facets of the specific plan. Since its adoption, private development activity within the RRSP has been somewhat limited. Several office buildings were constructed near the south end of the Southern Riverfront area, and another was constructed near the north end. The Turtle Bay Exploration Park and a Sheraton Hotel, with a restaurant, were developed in the Northern Riverfront area. This somewhat limited development within the RRSP area reflects circumstances related to property ownership and long-term leasehold issues, along with related economic considerations along the Park Marina frontage properties in the Southern Riverfront area. The history of public ownership of properties in the Northern Riverfront area limited new development to institutional and support services, such as the Turtle Bay Exploration Park and the aforementioned hotel and its restaurant. The City declared approximately 14 acres within the Northern Riverfront area as surplus property in 2014 which is now in private ownership. The Sheraton Hotel and associated parking was constructed on approximately five acres. The remaining nine acres south and east of the hotel remains vacant. No development proposals for the property have been made to the City and this update to the RRSP will serve to establish development and design parameters for fut�ure uses. In 2021, the City received an unsolicited proposal by private parties to explore the design, feasibility, master planning, and eventual development of the approximate 45-acre riverfront area consisting of the Civic Auditarium, Rodeo Grounds, and related facilities. Eventual redevelopment of the Civic Auditorium and Redding Rodeo Grounds as well as planning for development/redevelopment of private property would have been addressed in that effort. After five public meetings, the City Council directed that the property not be declared surplus and that the RRSP be updated as described below. Pro�osed Goals of the Reddin�Riverfront S�ecific P1an U�date A primary goal of updating the RRSP is to reflect current community and property owner desires for development of private and public uses within the RSSP area. The Southern Riverfront is privately owned and is occupied by a mix of office, residential, limited retail uses, a mini mart/gas station, and a motel/restaurant that has been closed for a number of years. The Northern Riverfront's principle uses are public and institutional in nature (i.e. Redding Civic Auditorium, Redding Rodeo Grounds, Turtle Bay Exploration Park, and a boat launch facility), but also include a hotel with restaurant, office buildings, a roller-skating rink, vacant lands, riverfront trails, and a bird sanctuary. The RRSP update will analyze and provide detailed master plan documents considering the future uses and potential redevelopment of City-owned facilities, such as the Redding Civic Auditorium, Redding Rodeo Grounds, and associated parking and ancillary uses, as well as the future development/redevelopment of privately held properties a11 located in the Northern Riverfront area. Report to Redding City Council February 1,2023 Re: 9.4(a)--Award Bid Schedule No. 5314, Update-Redding RiverfrontSpecific Plan Page 3 Additionally, the update will determine whether the RRS:P should be adopted as a "regulatory specific plan" (with its own zoning district requirements), a policy-based plan that relies on the SP Overlay District review as described above, or a hybrid document based on geographic areas or other considerations. Broadly, the City's goals for the RRSP update are to: a) Clearly define the role of the distinct RRSP areas as it relates to residents while also serving Redding's strong tourism industry; b) Provide a roadmap to reenergize the area as a leisure, recreation, civic, and cultural center for all residents and visitors; c) Act as a catalyst for new and high quality residential, commercial, civic, and tourist service uses that wi11 enhance the vitality, accessibility, and civic appeal of the area, while recognizing market and financial realties; d) Respond to the area's history and character, development patterns, and future potential, while incorporating best practices for sustainable development; e) Integrate civic art and landscape design into the public realm; � Provide for legibility of design and function that is clear to locals and visitors alike; g) Promote adaptability to change in use over time. Consultant Selection Given the complexity and scope of updating the RRSP, and without the required expertise and staff resources currently available in the City's Planning Division, it was determined that hiring outside consulting services would be necessary to complete the RRSP update. Therefore, staff prepared a Request for Proposal (RFP) and the City Council authorized staff to publish and distribute the RFP to qualified urban planning and environmental consulting firms at its regularly scheduled City Council meeting on September 6, 2022. In response to the RFP, the City received proposals from three consulting �rms: Kimley-Horn, PlaceWorks, and MIG/Populous. A selection panel was assembled that was comprised of staff from the Public Works and Community Services Departments, the City Manager's Office, and the Planning Division. The selection panel reviewed the submitted proposals and conducted interviews with each consulting firm. During the interviews, the firms were evaluated and considered according to their understanding of the objectives of the RRSP update; stated strategy to meet these objectives; clarity and completeness of the presentation given; experience 1eve1; firm qualifications; and relevant project experience. Individual members of the selection panel scored the consulting firms; the scores were compiled and a ranking was determined. MIG/Populous ranked first and is therefore the seleetion panel's recommended ehoice. The selection panel carefully reviewed all proposals submitted for the project and coneluded that MIG/Populous' proposal demonstrated the firm's qualifications to complete the work in a thorough and timely manner. Further, MIG/Populous' proposal demonstrated the firm's qualifications and dedication to facilitating robust and thorough community engagement; Report to Redding City Council February 1,2023 Re: 9.4(a)--Award Bid Schedule No. 5314, Update-Redding RiverfrontSpecific Plan Page 4 bringing world-class architectural design, experience, and vision; as well as to provide the necessary expertise to complete the technical studies required so that the EIR will comply with the California Environmental Quality Act (CEQA). The selection panel considers the cost to be fair and reasonable for this project. The proposal from MIG/Populous was lowest cost proposal received. Envir�onmental Review Adoption of the RRSP update is a project under CEQA and will require an EIR as described above. However, awarding a contract to a planning consultant to help prepare these documents is not a project under CEQA, and, therefore, no further action is required at this time. Council Priority/City ManageN Goals � Government of the 21st Century — "Be relevant and proactive to the opportunities and challenges of today's residents and workforce. Anticipate the future to make better decisions today." • Economic Development— "Facilitate and become a catalyst for economic development in Redding to create jobs, retain current businesses and attract new ones, and encourage investment in the community." 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Q� t� � �'c �J'�"�������� ����� �� �� ��� , a „ � � � ��� i �' � � �� ^� � � P e� `' � � �,.,,, ��` t�. • �dp�.'"' � r,. x 4��� � �� �A �� � � . d . ����II�N� u � b �� y � � � ��7#� ��'' M � r � �'� �u � � �.�.: � .. �� �� � ��� 5 � .,�,�p� �, � c�� � r ��� `(, „ e ' �� � 1 S4 y � '�i�*.7�@ Sa�ka%a�d 1Y 4���`a z .�\ '� Y �7 � � t�,�; � � � R`el '� ��������f�63� �,� " �,� ��' ts � d���'Ik ��� � ��' � ��� ������ � , ''��' ���, � � �4 �� � � ' �`�+ ' � �� � �II��� � �;, ° � � � � � � ��. �''��� � � ���� � �� ���� �n � , �' � <<�r� �� �`"� ����' � �, � �������� ���—�k����� ��,�' � � �, `'"� � '� �` ,, - ���� �"�� ��l�+���'' � ��` � � � � ; � � � �� � , . � �� ���.�- � �`�. � � � � ; � � �i��ur� �, F��c��i�� I�i�� r��t ����ifii� �I�r� �Ipd��� � _ �� ���� �'��r� �r�� ��� ���@�r��� � ��t� �n��� �f� �� ����It�� �r��raat�.�u��,��z�; RESOLUTI4N N4. 2022-042 A RESOLUTION OF THE CITY OF REDDING APPROVING AND ADIJPTING THE 4QTH AMENI}MENT TCJ CITY BUDGET RESOLUTI(7N N{J. 2021-418 APPROPRIATING $Q F4R RE-ALL4CATION OF AMERICAN RESCUE PLAN ACT (ARPA) CITYWIDE BROADBAND AND SOUTH CITY PARK PROJECTS TO FUND CITY OF REDDING RIVERFRONT SPECIFIC PLAN FOR FISCAL YEAR 2021-22 BE IT RES(?LT�D I3Y?'HE CI7`I'�4fINCIL QF THE CI�'Y Q�IZEl}D�NG THAT Budget Reso������c� �������Q78 be and is hereby amended as follows: j�. � } 1 1�,: 4 FUND L��`��SION DES����`I'ION INCREASE DECREASE 111 �;427 Non-D��artmental $500 000 lll ���10 Parks $500,000 ,, � � � ��` � �,:��s �� �,� ;� THAT aecount titles ant���i`�ri�bers �����ring ac�j����ents by this Resolutian are as follows: ,. , �, � ; � � 4' ,, , USE SDURCE � y ,�, � �F FUNDS OF FUNDS Increase(Decrease)Revenues , >� 111-427-6-2650-08 Federal Grant Operat�n ,����ti Govt � ��� $ 1,250,Q00 111-427-6-2650-15 Federal Grant Cap ta���""a��:Govt � {750,000} 111-b10-6-2b50-19 Federal Grant C �����'���&Rec f' {SOQ;000) � , �, Inorease{Decrease)Expenditures ��� 111-427-4010-92 ARPA-Citywide Broadband ���0,000) � `� 1ll-610-4010-98 ARPA-.South City Park s ���OO,OQ,�� '� � �""�� 1 ll-427-4410-$7 ARPA-Riverfrant Specific Plan „ ���������"'"" � 1 S � ��l:J ` ���� t ,�, - $ - THAT the purpose is ta appropriate $0 for Re-A1loeatian of American Rescue P1an Act (ARPA) citywide broadband and Sauth City Park projects to fund City of Redding Riverfront specific �`-' plan for fiscal year 2021-22. ��, �: :�:� ��; '`��: ��� � t�� � I HEREBY CERTIFY that the foregaing resolution was intraduced at a regular meeting of the City Council of the City of Redding on the 3rd day of May, 2022, and was duly adopted at said meeting by the follawing v4te: AYES: Council Members: Dacquista,Resner,Winter, and Schreder NOES: Council Members: Mezzano ABSTAIN: Council Members: None ABSENT: Council Members: None � ��� ' " ' ` I�RISTEN SC EDER Ma or �� � � � y t, t , � , � ,.., ,, ,�.° ATTEST: ,� ' APPROVED AS TO FORM: �� � � ��� �� �� ' ���'� '� � ` PAMELA MIZE, �i�����'���'` �� ��,��Y E. 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', . , { '� � ' I .` . ' . ,. _ .. ..� ��. � . � .�y � b {• { e� �. �II v o • � `� � � ,� � � �� � ��� � � � ":.i � � j ' �;' "� ' � � , c � � ����`� ,�\� � , � �i ,_ � � " ,:' ���''`�. � . . _ � � � � ���� ;:� � 1 B ' .4 ��� .� � I� `�� �f t, � � . � � � � � =� t� , , � . �. , . 0 f; �';,. o � . . . � ' �.I " • „ , � ;# :�z �� � � �� � �� �: � � �� �:���'� . � �i � � O �;' , . �(� LJ � { � ; . ; ' . . . .. 0 1 , .- � � � j� . � � . I � . ` � s . j ! � . � � � � � ,. � � ,�`�����. ��� .. . , . .. ,� - .. > � .. :: . <. , ,�J�� ?- - 7� �Vintu Audubon Societ � - � ?. f U O w �� � ��`� Birding in Northern California ��„D v�p PO Box 994533 Redding, CA 96099-4533 wintuaudubon.org February 6, 2023 Mayor Michael Dacquisto and City Council Subject:Agenda Item 9.4(a), February 7 Agenda, Consultant Selection for Riverfront Specific Plan Update Dear Mayor Dacquisto and Council: Wintu Audubon has closely followed and commented on the City's consideration of development proposals and surplus property proposals for the Turtle Bay area,culminating in Council's April 2022 decision to update the Redding Riverfront Specific Plan (RRSP), since these issues first arose in late 2021. We now are dismayed to learn that a consultant proposal has been recommended to the Council with no advance warning nor the ability to review the proposal and the consultant's qualifications.To our knowledge, the MIG/Populous proposal (Proposal) has not been circulated to the public, however,a Council Member kindly provided us a copy. Our comments below are based on our time-constrained review of the Proposal. Due to the importance of this decision by the Council, we request the Council delay a decision for at least one month, to allow the public to understand the consultant's approach to this important project. We further express our grave concerns in selecting a consultant team which includes the same company� which sought to purchase portions of the same City lands to develop them for profit.This represents more than the appearance of a conflict of interest. It provides development interests with a clear advantage in influencing the decision process which they can then benefit from. Finally, we are concerned that the Proposal neglects to include the assessment of and analysis of impacts to biological resources, including riparian habitat, special status wildlife species, and the Turtle Bay Bird Sanctuary. These assessments and analyses are required by CEQA and should be first undertaken as early in the RRSP's land use decision process as possible, not after the draft RRSP has been completed.Their exclusion reveals the need for a significant additional expense not included in the Proposal. Due to the extraordinary public interest, the City has maintained an informational website since consideration of the Populous/K2/McConnell proposal was debated in 2021. It was updated with information on the planned update of the RRSP as late as August, 2022. It listed (still lists!) a date for awarding the RRSP contract in November, 2022. Since August, no updates or other public information releases have been made on the RRSP. Now staff proposes to move ahead with no public participation Michael Daquisto, February 6, 2023 Page 2 and no information on the proposal by MIG/Populous, with a mere 2 business days for public review. That review can now only be based on conjecture as to what will be done and by whom.The City asked the public to trust it to reveal steps toward updating the RRSP on the City website. No mention of this very important decision or the process to reach it appears on the website. We believe MIG/Populous is the wrong team for this work. Populous' specialty is intensive downtown urban development with an emphasis on sports arenas, not protecting sensitive resources adjacent to pristine riverine sites.Their past projects occur in locations where native vegetation and natural areas have long since been exhausted and forgotten, with severely limited opportunity for restoration. Literally none of the built projects featured on their website are anywhere near sensitive biological resource areas such as Turtle Bay Bird Sanctuary and the riparian areas adjacent the Museum and the Rodeo Grounds.Selecting them to lead the north riverfront component of the RRSP indicates a predisposition to including a major sports/events arena in the planned land uses, one which could dwarf the Civic Auditorium in size, capacity and potential for impacts on wildlife and riparian resources. Additionally, choosing Populous creates the appearance of conflict of interest based merely on their previous proposal.A Designer/Developer is not appropriate for this task. We are concerned that Populous will seek to revamp its prior proposals and attempt to convince the public that intensive new land uses close to the river and encroaching on riparian lands will be considered.This team does not seem particularly sensitive to the maintenance or restoration of undisturbed riparian zones, especially adjacent to the Rodeo Grounds where their proposal shows development right up to the water's edge, reversing the graphics provided by the City a year ago.Their proposal does not even acknowledge the Bird Sanctuary, calling it instead "Recreation/Preservation Area".This could imply that new recreation activities within it might be permitted, while in fact the Bird Sanctuary requires development restrictions and carefully managed public access by its very nature. There is no mention we can find in the Proposal of necessary analyses of existing biological resources, including riparian habitat and special status fish and wildlife.The Turtle Bay Bird Sanctuary and riverfront adjacent to the Museum, Sundial Bridge, and Rodeo Grounds abound with habitat for many species including 192 bird species and other special status and protected species. (See Appendix 1.)The tasks envisioned for the EIR exclude any biological resource assessments and analyses of impacts and mitigation for them. Deferral of such analysis until individual projects are approved is not permitted by CEQA and its Guidelines. (Please see for additional context Page 2, paragraph 4 and Page 5, paragraphs 1, 2 and 3 of the attached letter from Shute, Mihaly and Weinberger to Mayor Kristen Schreder dated April 14, 2022.)The Proposal indicates subsequent CEQA review will be avoided. Page 5 states "The EIR will address key topics necessary for subsequent project streamlining, including air quality, GHG, traffic, flooding, and noise." No mention of biological resource studies and associated EIR analyses is made. Since these biological resource assessments and analyses are required by CEQA,they will have to be added to the scope of the Proposal at a considerable additional expense.The estimated expense quoted by the Proposal will increase, potentially making this Proposal more expensive than the others rejected by the City. Due to the high profile and public interaction previously sought by the Council and staff,we request to know: Michael Daquisto, February 6, 2023 Page 3 • How will local and non-development voices be part of the team deciding the disposition of our local, public land? • What is the timeline proposed by the team? • How will the assessment of biological resources (wildlife and its habitat, both in naturally vegetated and riparian areas, as well as wetlands, flood zones and the river itself) be utilized to inform the decision process of preferred land uses and its infrastructure needs? • When will the biological resource assessments required by CEQA be done?At what additional expense? How do the true expenses of the Proposal (including biological resource assessments and impact analyses) compare to the proposals which have been rejected? • Why are staff seeking approval by the Council without engaging the public in the decision process, with time to review it? • Why has the staff failed to update its website?(Since the date of staff's decision to recommend this team, there has been ample time for website updates.) • Why does the City's staff report mention the previous"Unsolicited Offer" to buy/develop, but fail to reveal that Populous, a key member of the Team,was the firm making that offer? We request that the Council delay the decision to award the contract for at least one month. We further urge the Council to select an RRSP consultant team that gives local voices at least co-equal authority with outside development interests, and certainly not to consultants who will have a direct interest in development of the projects permitted by the land use documents they prepare.We request that the Council demand a proposal that includes robust assessments and impact analyses of wildlife and riparian habitat during the land use and infrastructure decision process, not after it. Sincerely, Bruce Webb, Conservation Chair Rebeca Ladron DeGuevara, President cc. 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'a � � ,f6„ o � � 3 w u °' w °' ¢ ' °' a �o � � o -o v 3 i � s v � a > `� ia C7 u H � N � t w v ,� :% :: 6� 3 > Q C -o '^ � � v .� p o a io `^ � > > a�i O. N � O O 0! N Ol L O N 'Y "O O] 61 Q Q v a a 3 3 3 3 > > � ie �i 3 � �' a S H UTE M I HALY ���"�-�- W E l N B E R C E R ��P , 396 HAYES STREET, SAN FRANCISCO, CA 94102 WINTER KING T: (415) 552-7272 F: (415) 552-5816 Attorney www.smwlaw.com King@smwlaw.com April 14, 2022 Via Electronic Mail Onlv Ms. Kristen Schreder, Mayor City of Redding 777 Cypress Avenue Third Floor Redding, CA 96001 E-Mail: kschreder@cityofredding.org Re: Redding Civic Auditorium & Rodeo Grounds Dear Mayor Schreder and Members of the City Council: We represent Wintu Audubon, Sierra Club Shasta Group, and Shasta Environmental Alliance with regard to the potential sale for future redevelopment of the Civic Auditorium and the Redding Rodeo Grounds and adjacent open space areas. As you are aware, the Civic Auditorium and Redding Rodeo Grounds ("Project Site") lie immediately adjacent to extensive riparian lands with extremely high biological resource values, including the Turtle Bay Exploration Park open space area, the Turtle Bay Bird Sanctuary, and riparian resources extending from the Sundial Bridge upstream and beyond the Posse Grounds boat ramp, all areas with significant natural resource and public recreational values. Given these resources, the City must undertake environmental review before taking the discretionary action of designating the Project Site as "surplus property"—a designation that will result in development on the site and associated significant environmental impacts. CEQA Guidelines, California Code of Regulations, title 14, §15002(i) and §15357; see generally The Flanders Foundation v. City Of Carmel–By– The–Sea, (2012) 202 Ca1.App.4th 603 (EIR prepared prior to City deciding whether to sell property with historic resource). Moving forward with the "surplus property" designation without any analysis of potential environmental impacts would violate the California Environmental Quality Act, Public Resources Code § 21000 et seq. ("CEQA"). It would also be inconsistent with numerous General Plan policies prioritizing preservation and restoration of the area. Kristen Schreder April 14, 2022 Page 2 I. Introduction Changes in the scope, intensity, timing and character of land uses at the Project Site would impact—visually, auditorily, and biologically—the approximately 200 acres of the Turtle Bay Exploration Park, the Turtle Bay Bird Sanctuary, and riparian lands extending from the Sundial Bridge upstream to and beyond the boat ramp, and including portions of the Sacramento River Trail designated as a National Recreation Trail by the U.S. National Park Service. These open space and riparian areas provide habitat for wildlife on land and in the river. They provide scenic views, public trails, pedestrian-bike river crossings, fishing and boating access, and a wide corridor of habitat that supports a variety of wildlife, including many special status species. See Appendix 1, Special Status Species of the Turtle Bay Bird Sanctuary, Exploration Park, and Adjacent Riparian Areas; and Redding General Plan, Parks, Trails and Open Space Master Plan, Open Space Strategy at p. 4. The City's General Plan and the Open Space Strategy of the Parks, Trails and Open Space Master Plan (OS Master Plan) prioritize preservation of the Sacramento River and adjacent open space and describe it as "the focal point of the community and the organizing element of the park and trail system." Redding General Plan, Parks, Trails and Open Space Master Plan, Open Space Strategy at p. 4. "Establishing public open space areas along the River and its tributary streams provides outdoor recreation and the potential to restore wildlife habitats, create effective storm water management, and preserve scenic views." Id. "The presence of the River in the Redding region is very � important to this area's quality of life and natural ecosystems, and to the region's tourism � economy." Id. at 15. The City's Parks, Trails and Open Space Master Plan, Open Space Suitability Analysis, Maps section shows that the riparian and natural resource areas adjacent the Project Site are identified as "Open Space Interest Areas." Id. at p.7. "Proximity to the river, its streams, and other bodies of water is one of the twelve criteria used in determining what types of land would make appropriate open space. The remaining criteria address other General Plan Goals, including conserving the habitats of sensitive and endangered species...." Id. at 4. Given the natural and biological resources and community value of the areas adjacent to the Project Site, conveying the Project Site to a commercial developer would impose development stresses and impacts on those resources inconsistent with the City's General Plan. The irreplaceable resources of the riverine and riparian corridor s H��r�-., �� �i i,rr��� , ,� a������� �E:�zcE.K �_�F� Kristen Schreder April 14, 2022 Page 3 immediately adjacent to the Project Site, call for their long-term preservation as open space resources, consistent with the vision set forth in the City's General Plan and Open Space Plan. The City can, and should, consider alternatives to designating the Project Site as "surplus property" and selling it to private developers. For example, the City should consider master planning the Project Site itself, so that crucial environmental studies can properly inform the appropriate CEQA analysis and natural resources can be preserved.l This approach would avoid a land sale that could result in the foreclosure of options for protection of important and irreplaceable public resources while ensuring the City's control over the master planning process. II. The City's Potential Decision to Designate the Project Site as Surplus Property Is a Discretionary Decision Under CEQA. The CEQA Guidelines define a project as the whole of an action, which has potential for resulting in a physical change in the environment, directly or ultimately... CEQA Guidelines § 15378; emphasis added. In general, CEQA requires public agencies to identify the potential environmental impacts of a project, as well as mitigation measures and project alternatives, before approving it "Project" is defined as "an activity which [1] may cause either a direct physical change in the environment or a reasonably foreseeable indirect physical change in the environment" and [2] is either undertaken by a public agency or requires agency approval. Guidelines § 15378(a). If a project could have significant, adverse impacts, the agency must prepare an"environmental impact report" or "EIR." The purpose of conducting this environmental review is to provide the public and decision-makers with information about the project's environmental effects and ways to minimize them. CEQA requires that environmental review take place "as early as feasible in the planning process to enable environmental considerations to influence project program and design (and yet late enough to provide meaningful information for environmental assessment)." CEQA Guidelines § 15004(b). For public projects, "CEQA compliance should be completed prior to acquisition of a site." CEQA Guidelines § 15004(b)(1). Public agencies "shall not undertake actions concerning the proposed public project that would have a significant adverse effect or limit the choice of alternatives or mitigation measures, before completion of CEQA compliance...." Guidelines § 15004(b)(2). Nor may lead agencies "piecemeal" a project, i.e., break up the project into smaller pieces and limit environmental analysis to the first piece. See Laurel Heights Improvement Assn. v. � To our knowledge, there have been no recent professionally prepared biological surveys of the riparian habitat on-site and in immediately adjacent areas. S H U T F, f��l I t-I t��Y �i�_ti��F_INBE�RGE R�.�_F> Kristen Schreder April 14, 2022 Page 4 Regents of University of California (1988) 47 Cal.3d 376, 396 (improper to "submerge[ environmental impactsJ by chopping a large project into many little ones—each with a minimal potential impact on the environment—which cumulatively may have disastrous consequences"); San Joaquin Raptor/Wildlife Rescue Center v. County of Stanislaus (1994) 27 Cal.App.4th 713 (residential project description inadequate because it failed to include necessary sewer expansion); Tuolumne County Citizens for Responsible Growth, Inc. v. City of Sonora (2007) 155 Cal.App.4th 1214 (project improperly segmented where lead agency treated development and access road as two separate projects); Sundstrom v. County of Mendocino (1988) 202 Ca1.App.3d 296, 307 (deferring environmental analysis until after project approval leads to post-hoc rationalization in violation of CEQA). Further, agencies shall not "otherwise take any action which gives impetus to a planned or foreseeable project in a manner that forecloses alternatives or mitigation measures that would ordinarily be part of CEQA review of that public project." Guidelines § 15004(b)(2)(B); emphasis added; see also Save Tara v. City of West Hollywood(2008) 45 Ca1.4th 116 (finding that lead agency violated CEQA by not conducting environmental review prior to entering a conditional agreement to transfer property to a developer as well as providing a loan to the developer for a public-private project). Therefore, if the City contemplates designation of the proposed Project Site as "surplus property" knowing that the intensity, frequency or scope of uses on the site might foreseeably be greater in the future, then the City must analyze the impacts related to development of that use in an environmental impact report ("EIR"). See, The Flanders Foundation v. Ciry Of Carmel By–The–Sea, (2012) 202 Cal.App.4th 603 (considering the adequacy of an EIR prepared to analyze the potential environmental impacts of the possible uses that a potential purchaser under the Surplus Land Act might make of the property). Here, the Council's potential decision to designate the Project Site as "surplus property" is the first step in facilitating the sale, and the foreseeable development, of the property. Moreover, the proposal presented to the City by the development company `Populous' indicates that the development concept would be a massive, dense, urban- scale development with the potential to include a sports arena, a convention center, and entertainment venues. See Populous Proposal dated August 19, 2021. As discussed below, these foreseeable uses would result in significant impacts that must be evaluated prior to the City's designation of the Project Site as "surplus." S f-I U T 1=�, N1 I H f\LY -y�. �;.i ---��'EINBLRGER �.��> Kristen Schreder April 14, 2022 Page 5 III. Development of the Proposed Project Site Would Result in Significant Impacts. Development of the proposed Project Site, particularly following the vision and concept submitted by Populous, would result in foreseeable significant impacts. For example, increases in urban and commercial use intensity, including more frequent large events, would result in significant increases in light/glare and noise, which, in turn, would result in significant impacts to wildlife in the adjacent riparian areas and through the entire riverine corridor. The degradation of these wildlife values would also reduce scenic values from open space areas and trails. The Project Site's location along the river also makes it likely that new development there could significantly impact buried cultural, tribal and/or archaeological resources. Development that draws large numbers of people (e.g. venues such as new or expanded convention centers or sports arenas) would result in increased air pollution and greenhouse gas emissions due to additional car traffic and congestion. As envisioned by the Populous proposal, these new levels of visitation may be at all times of day or night, on most or even all days of the week, whereas currently activity levels are typically very low after dark, particularly when activities at the auditorium or rodeo grounds are not scheduled. This change in use intensity and frequency will bring new impact sources and more light, glare and noise to the riverine corridor. However, irrespective of the scope of the various scenarios suggested by the Populous proposal, it is important to recognize that ANY increase in the frequency, intensity or scope of land uses on the Project Site has the potential for significant adverse impacts on the riparian resources, due to their immediate � proximity, their sensitivity, and their high public and biological values. � � Although the riparian areas appear to be excluded from parcels proposed to be declared surplus (as shown on maps of the parcels in question provided on-line and in City Council meetings), their exclusion from the proposed land sale would not preclude impacts to them. Impacts to the riparian habitat are likely because an adequately sized and positioned no-disturbance buffer zone has not been assured. In order to adequately buffer against the impacts on the riparian resources of development and land use changes at the Project Site, such a no-disturbance buffer zone may need to be wider than site conditions even allow, resulting in impacts that could remain significant even after mitigation. The California Department of Fish and Wildlife, conservation organizations and other agencies have long-established that a no-disturbance buffer zone is essential to prevent riparian impacts. Public improvements such as roads, improved trails and other hardscape are known to negate the benefit of spatial setbacks. See, Development, Land Use, and Climate Change Impacts on Wetland and Riparian Habitats Cali ornia SHUTF, R-11Hf\LY y,;-,, �..,, _-���jEINB[�EtGE�R�.�.�� Kristen Schreder April 14, 2022 Page 6 Department of Fish and Wildlife, Northern Re�ion, May, 2014, at https:/hlrm.df�.ca.�ov/FileHandler.ashx?Document[D=163508. Therefore, the City should undertake further study to determine the need and necessary size of such protected buffers. Last but not least, selling the Project Site for development of more intensive commercial or institutional urban uses would be incompatible with the City's Vision to preserve riverside open space for the ecological values and the benefits provided to the community. See, e.g., Redding General Plan, Parks, Trails and Open Space Master Plan, Open Space Strategy at p. 4. Increased development intensity would be inconsistent with multiple General Plan policies intended to protect the City's open space resources, particularly when part of the Sacramento River Corridor. See, e.g., CDD3B, CDD3C, CDD4B, Goal CDD4. Specifically, the following General Plan policies mandate preservation of natural areas along the river: • Policy CDD3B: Require buffer areas between development projects and significant watercourses, riparian vegetation, and wetlands in accordance with the Natural Resources Element. • Policy CDD3C: Preserve natural corridors and linkages between habitat types through project design, key open-space acquisitions, floodplain and slope dedications and easements, conservation easements, and similar mechanisms. • GOAL CDD4: Protect And Enhance The Relationship Between The City And The Sacramento River. • Policy CDD4B: Continue acquisition of key lands along the river and the other area waterways to provide passive, nonmotorized public access and to preserve important ecological values and sensitive habitats. This may be accomplished by a combination of public and private land purchases, donations, dedications, granting of public easements, the use of life estates, and similar mechanisms. • GOAL NR9: Promote And Facilitate Habitat Preservation, Restoration, And Enhancement. S N U"f�I�, I��t I I--I f�LY �"`;` �l�('1:I N I�l��G E: R �_�.�� Kristen Schreder April 14, 2022 Page 7 Policy NR9A: Encourage the acquisition, preservation, restoration, and enhancement of native vegetation with a focus on wetlands and riparian habitat that will improve the biological value and integrity of the City's natural resources. Encourage native landscape in unvegetated, manmade areas, such as along streets and in abandoned lots. These General Plan policies also demonstrate that these public lands continue to be necessary for the City's use, and thus the City cannot make the findings required to designate them as "surplus." See Government Code § 54221(b)(1). For example, pursuant to Policy NR9A, the access road along the east edge of the Rodeo Grounds adjacent to the river could be restored as a no-disturbance riparian buffer zone to provide and protect the eXisting high quality river corridor habitat adjacent to it, for the greater public benefit. Many other sections of the parcels proposed for surplus designation include, or are adjacent to, high quality river corridor habitat and could be restored per Policy NR9A. Declaring these areas surplus is thus inconsistent with Policy NR9A. We understand the City Attorney has advised that CEQA review would be premature, because it is not certain what precisely would be developed at this time. But here the City has an actual proposal in hand. Thus, implementation of that proposal, or one with similarly extensive and new impacts on the resources above cited, is reasonably foreseeable. The City cannot "piecemeal" environmental review of the sale and subsequent development given the record before it, nor can it defer analysis of the reasonably foreseeable development that will occur if the land is sold. Moreover, the lack of a specific development proposal did not prevent the City of Carmel-by-the-Sea from preparing an EIR before deciding whether to sell public land with a historic resource on it. See generally The Flanders Foundation v. City Of CaYmel— By—The—Sea, (2012) 202 Cal.App.4th 603. Indeed, Carmel had even less certainty about what would be developed than Redding does here. Nonetheless, because selling the property would have the reasonably foreseeable effect of impacting the historic resource there, the City prepared an EIR. Id. Likewise here, selling the property for more intensive development would necessarily have significant impacts on a variety of sensitive resources, as described above. IV. The City's Potential Decision to Designate the Project Site as Surplus Property Does Not Qualify For An Exemption From CEQA Review. Nor would the City decision to designate the Project site as surplus property qualify for an exemption from CEQA review. The draft resolution for this proposed S H U-t�E, R 1 I F-I��LY �;;?'�_-�Y%1�iNBE:RG(:R��r� Kristen Schreder April 14, 2022 Page 8 designation claims this action is exempt under the "common sense" exemption.2 Not so. Pursuant to CEQA Guidelines section 15061, this common sense exemption can only be used if"it can be seen with certainty that there is no possibility that the activity in question may have a significant effect on the environment." CEQA Guidelines § 15061. Here, as described above, overwhelming evidence in the record demonstrates that the designation of the land as surplus, and ultimate sale of the property, will have significant, adverse, environmental impacts. Rominger v County of Colusa (2014) 229 CA4th 690, overruled in part on other grounds by Union of Med. Marijuana Patients, Inc. v City of San Diego (2019) 7 CSth 1171 (holding that the common sense exemption could not be applied to the approval of a subdivision map, which by definition anticipates some future development). Moreover, under CEQA, "a categorical exemption shall not be used for an activity where there is a reasonable possibility that the activity will have a significant effect on the environment due to unusual circumstances." CEQA Guidelines § 15300.2(c) Exceptions; emphasis added. In this case, there are several `unusual circumstances' within the meaning of CEQA Guidelines § 15300.2(c) that would apply. For example, as explained in Section III above, the site's location within and adjacent to the Sacramento River corridor is cited as deserving of increased protection by the Redding General Plan. Therefore, the Project site location adjacent to lands identified for preservation constitutes an `unusual circumstance'. In another example, the Project site has a rich and unique character with an abundance of natural and biological resources immediately adjacent to the Project site. (see Appendix 1) The riparian areas immediately adjacent to the Project site are recorded as Cornell University eBird Hotspots "Turtle Bay Bird Sanctuary" and "Sundial Bridge", which have the third and seventeenth highest bird species counts respectively of any area within Shasta County. They are also the highest ranked such Hotspots in Shasta County that are adjacent to each other (see Cornell eBird Hotspots at https://ebird.or�/hotspot/L168182 and https://ebird.or�/hotspot/L937554). Therefore, the Project site's unique character and proximity to sensitive biological resources constitute an `unusual circumstance' that precludes exemption from CEQA. As discussed above, foreseeable development of the site with more intensive uses and more frequently occurring events as a result of the surplus property designation would result in 2 The CEQA Guidelines also provide an exemption for the sale of surplus public property by government agencies. CEQA Guidelines § 15312. However, as the City seems to acknowledge, this exemption is not available for the designation of surplus property. See The Flanders Foundation v. City Of Carmel—By—The—Sea, (2012) 202 Cal.App.4th 603 . (EIR prepared prior to City deciding whether to sell property with historic resource). S F-I U-1-[:, R�1 I F-I i\L.Y" �;,��--l`GjI::INP,I::RGF:.�R��.�� Kristen Schreder April 14, 2022 Page 9 significant impacts to biological, scenic, recreational, and cultural/tribal/archaeological resources. Therefore, this Project would not be exempt from CEQA. In summary, prior to considering the designation of the Project site as "surplus property" and considering sale of the site for changes in the scope, character or intensity of land uses, the City must analyze the potentially significant environmental impacts of that discretionary action. Proceeding otherwise would violate CEQA. IV. Conclusion Wintu Audubon, Sierra Club Shasta Group, and Shasta Environmental Alliance look forward to a continuing dialogue with the City on this issue and will continue to participate fully in the City's public process for consideration of the proposed project. Very truly yours, SHUTE, MIHALY & WEINBERGER LLP � r�� �..,. Winter King WK:CB Attachment: Appendix 1, Special Status Species of the Turtle Bay Bird Sanctuary, Exploration Park, and Adjacent Riparian Areas cc: Michael Dacquisto, Vice Mayor mdacquisto�citvofreddin�.org Mark Mezzano, Mayor Pro Tempore, nlmezzano�citvofreddin�.or� Julie Winter, Council Member, iwinter(cr�,cityofi-eddin�.or� Erin Resner, Council Member, eresner cr citvofi•eddin�.or� Barry Tippin, City Manager, bti�pin(r,�citvofreddin�.or� Barry DeWalt, City Attorney, bdewalt�citvofreddin�.ot�� Wintu Audubon Sierra Club Shasta Group Shasta Environmental Alliance Mike Lynes, California Audubon S H l f T F=� 11f1 I F-I�LY �"���l�``I�:1 N 13[�RG F:R��.� � � v � � 0 � i v C O V - - O L L � U m �c �a � m 3 3 � " 3 � 3 Z 9 V � v C v �' � V � — _ � = y � ai N . N � = Ol O � j j � � Z N � d C N N U O__ O Vt Vt > � � � T j U T > m f6 �'' T ra v "O }' C C 0 v N � m .y = cN N Ql W Z 'y � U '- N G J t6 t0 v U ~ c .+' V fl- V. 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