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***
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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."
Attachments
^Redding Riverfront SP Figure 1
Resol�ution 2022-042
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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:
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FUND L��`��SION DES����`I'ION INCREASE DECREASE
111 �;427 Non-D��artmental $500 000
lll ���10 Parks $500,000
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THAT aecount titles ant���i`�ri�bers �����ring ac�j����ents by this Resolutian are as follows:
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� � 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)
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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 „ ���������"'"" �
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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. ��,
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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
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' " ' ` I�RISTEN SC EDER Ma or
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ATTEST: ,� ' APPROVED AS TO FORM:
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PAMELA MIZE, �i�����'���'` �� ��,��Y E. DeWA , ity Attorney
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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. Wintu Audubon Board
Winter King, Shute, Mihaly, Weinberger LLC
Jon Livingston,Sierra Club Shasta Group
David Ledger,Shasta Environmental Alliance
Mike Lynes, Audubon California
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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
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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."
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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
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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
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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
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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"
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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
�
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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
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