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HomeMy WebLinkAboutSan Luis Ranch DEIR Public Comment received 1-31-2017 (San Luis Obispo Council of Governments (SLOCOG)) January 30, 2017 City of San Luis Obispo Community Development Department Attn: Doug Davidson, Deputy Director 919 Palm Street San Luis Obispo, CA 93401-3218 Subject: San Luis Ranch Project – Draft Environmental Impact Report (DEIR) Project # SPEC/ANNX/ER 1502-2015 State Clearinghouse #2015101083 Dear Mr. Davidson: The San Luis Obispo Council of Governments (SLOCOG) submits the following comments on the Draft Environmental Impact Report (DEIR) of the San Luis Ranch Project (hereby referenced as “Project”). This letter is organized with comments on the following sections:  Air Quality and Greenhouse Gas Emissions  Land Use and Planning  Transportation and Traffic Air Quality and Greenhouse Gas Emissions Consistency with Sustainable Communities Strategy (SCS) As the Metropolitan Planning Organization (MPO) for the San Luis Obispo region, SLOCOG is required to prepare a Regional Transportation Plan (RTP), which is updated every four years, and includes a Sustainable Communities Strategy (SCS). The SCS (pursuant to SB 375, 2008) must identify a forecasted development pattern and transportation network that will meet greenhouse gas emission reduction targets specified by the California Air Resources Board [ARB] through their RTP planning process (2010 RTP Guidelines, California Transportation Commission). As such, several policies of SLOCOG’s 2014 RTP/SCS reference coordination in land use and transportation planning in the region, and reducing greenhouse gas (GHG) emissions from passenger vehicle travel in order to meet regional GHG targets specified by ARB. Policy OTS 8 (Land Use and Transportation Coordination) states “Facilitate the development and economic vitality of communities in ways that reduce trips and travel distances. Maintain and improve the regional transportation system in a manner which assists development and implementation of local jurisdictions’ general plans that support livable community concepts and efforts.” Policy OTS 13 (Climate Change) states “Develop and implement programs and advocate land uses that will reduce overall vehicle miles traveled, delay, and support alternative vehicle and other programs to attain state-designated greenhouse gas reduction targets for the region.” Policy SCS 4 states “Reduce vehicle miles of travel related emissions by encouraging the use of public transit and other alternative forms of transportation and by supporting and encouraging the adoption of general plans and zoning that promote more compact communities.” In order to implement SB 375, SLOCOG – like other MPOs in California – use scenario planning tools to test policy options for different development patterns to determine which future land use scenarios will allow the region to meet the regional GHG reduction targets set by ARB. SLOCOG developed four future year scenarios (one for future year 2020 and three for future year 2035, with a focus on two variables: (a) share of new housing that is multi-family, and (b) share of new employment located in urbanized areas. Table 1 shows how the four future year scenarios varied. Table 1. Policy differences of 2020 scenario and three 2035 scenarios in 2014 RTP/SCS Scenario Scenario Name Share of new housing that is multi-family (MF) Share of new employment located in urbanized areas Projected GHG emissions per capita 2020 Scenario 1 Near Future Scenario 22% 82% -8.40% 2035 Scenario 1 Business As Usual Scenario 25% 85% -7.90% 2035 Scenario 2 Preferred Growth Scenario 35% 90% -9.43% 2035 Scenario 3 Aggressive Scenario 45% 95% -10.91% In order to develop future year land use scenarios, proposed land use projects with pending entitlements were considered. At the time, the City of San Luis Obispo’s Land Use and Circulation Element (LUCE) considered Special Focus Area 2, with a range of 350 to 500 new housing units. SLOCOG’s 2035 Preferred Growth Scenario assumes 500 housing units (at San Luis Ranch); each of the three 2035 future land use scenarios assumed full build-out of San Luis Ranch, consistent with what was assumed in the City of San Luis Obispo’s Land Use and Circulation Element. None of the future land use scenarios tested more than 500 units at San Luis Ranch. The three 2035 land use scenarios varied on employment allocated to San Luis Ranch area; additionally, only commercial retail and tourist-serving (hotel) employment was assumed for the San Luis Ranch area (no office employment was allocated). Table 2 shows how the three scenarios varied in the level of new growth assigned to San Luis Ranch area. Table 2. New Housing Allocated to San Luis Ranch (Special Focus Area 2) Scenario Scenario Name New housing units New jobs 2035 Scenario 1 Business As Usual Scenario 500 du 340 jobs 2035 Scenario 2 Preferred Growth Scenario 500 du 290 jobs 2035 Scenario 3 Aggressive Scenario 500 du 240 jobs Land Use and Planning Housing choices The Project provides a mix of housing product with a residential density range of 12.5 units per acre to 19.2 units per acre, representing small- and medium-lot single-family detached housing, and single- family attached/condo housing. It is assumed that the affordable housing density bonus units would be constructed as multi-family housing, but this is not clear based on a review of the Draft EIR. This represents a range of housing proposed for this project, and is consistent with SLOCOG’s policy language regarding mix of housing. Policy SCS 7 of the SLOCOG 2014 RTP/SCS states “Support equitable, affordable housing. Expand location- and energy-efficient housing choices for people of all ages, incomes, races and ethnicities to increase mobility and lower the combined cost of housing and transportation.” Over the past nine years, SLOCOG staff has collected building permit data from the eight local jurisdictions in the region, for the time period of 2000 to 2014. The three building permit surveys were conducted in 2007, then in 2011, and most recently in 2015. A key finding was that during the time period, San Luis Obispo has permitted a greater mix of housing than other communities and the region as a whole. Figure 1 shows the share of new housing units permitted by type of unit from 2000 to 2014, including single-family detached (small-, medium-, and large-lot), single-family attached/condo, and multi-family (duplex and apartment units), among other housing units. San Luis Obispo permitted a greater share of MF Apartment units, SF Attached/Condo, and 2nd Units than the region as a whole, and a similar share of SF Detached (Small-Lot) units as the region. The Project proposes a strong mix of housing product, when compared to what has been permitted from 2000 to 2014, as well as compared to the region as a whole. Table 3 shows the distribution of housing types across the four proposed residential land uses (NG-10, NG-23, NG-30, and the affordable housing density bonus units, assumed to be NG-30), and how that compares to housing product types as considered in the San Luis Obispo Regional Building Permit Survey Data Summary Report (2000-2014) (SLOCOG [2016], currently unpublished). Figure 1. Share of New Housing Units by Type, Incorporated Cities (2000 to 2014) Table 3. Distribution of Proposed Housing Types compared to SLOCOG Building Permit Survey *Lot size ranges are not stated in the DEIR; the lot sizes above are estimated based on gross density. **Note: It is assumed that the housing product for affordable housing density bonus units is MF Apartment . As shown in Table 3, the project will provide a greater share of SF Detached (Small-Lot) than what was permitted between 2000 and 2014 (51.7% versus 12.0%). The project also proposes a greater share of SF Attached/Condo than what was permitted between 2000 and 2014 (34.5% versus 20.0%). Although it is not stated in the Draft EIR, it is assumed that the affordable housing density bonus units would be built as MF Apartment. If so, the project proposes a smaller share of MF Apartment than what was permitted between 2000 and 2014 (13.8% versus 28.0%). Proposed Residential Land Uses Number of units Share of units Estimated lot size Housing Product Type (as compared to SLOCOG Building Permit Survey) NG-10 200 34.5%4,000 sq. ft.SF Detached (Small-Lot) NG-23 100 17.2%3,000 sq. ft.SF Detached (Small-Lot) NG-30 200 34.5%2,250 sq. ft.SF Attached/Condo NG-30 80 13.8%not stated*MF Apartment 580 100.0% Clarification of affordable housing density bonus In section 2.5.2 (Land Use Concept), it is not clear from Table 2-1 (Planned San Luis Ranch Specific Plan Area Development) of the location of the 80 affordable housing density bonus units would be located in the San Luis Ranch Project. Additionally, Figure 2-14 (Project Phasing Plan) does not clearly indicate the proposed location of the 80 affordable housing density bonus units. Please update chapter 2.0 Project Description to provide clarity on this matter. Clarification of Surrounding Land Uses (section 2.4.1) In section 2.4.1 (Surrounding Land Uses), in describing the land uses to the north, “Central Coast Plaza Shopping Center” is presumably meant to be “SLO Promenade” (which contains businesses such as Bed Bath and Beyond, Cost Plus, the empty building formerly occupied by Forever 21 until January 2016, and is adjacent to Embassy Suites). The signage at the entrance to this shopping center clearly indicates its name as SLO Promenade. When describing the land uses to the east of US 101, this section does not mention the planned location for the RTA Transit Maintenance Facility, planned adjacent to the Homeless Services Center on Prado Road. Market Absorption for Regional Retail In a review of section 2.5.2 Land Use Concept and Table 2-1 (Planned San Luis Ranch Specific Plan Area Development), the proposed mix of uses includes up to 150,000 square feet of retail commercial, and up to 100,000 square feet of office. Two regional shopping centers are located immediately adjacent and north of the Project site. Two other regional shopping centers are located just west of the Project site, along Los Osos Valley Road. These include the following:  SLO Promenade: This center includes an estimated 256,000 square feet of regional and local retail, with several main anchor businesses and a number of pad buildings. Half of this center’s retail square footage remains vacant. The anchor building, formerly occupied by Forever 21 – and previously Gottschalks – is approximately 120,000 square feet in size, and half of a pad building (formerly occupied by Hometown Buffet – approximately 7,000 square feet) remains empty)1,2.  Madonna Plaza: This center includes an estimated 330,000 square feet of regional and local retail, with several main anchor businesses and a number of pad buildings. This center has experienced a several significant turnovers in retail square footage in the previous decade; most recently, Sports Authority closed in March 2016, leaving a 23,826 square foot retail space vacant3. 1 Lambert, Cynthia & Wilson, Nick (16 November 2015). “Forever 21 in San Luis Obispo to close after holidays”, San Luis Obispo Tribune. Retrieved from: http://www.sanluisobispo.com/news/business/article45154953.html (accessed January 30, 2017). 2 Wilson, Nick (5 February 2016). “Hometown Buffet in SLO closes, employees left scrambling”, San Luis Obispo Tribune. Retrieved from: http://www.sanluisobispo.com/news/business/article58794753.html (accessed January 30, 2017). 3 Ames, Danielle (3 March 2016). “Sports Authority in SLO among 140 to be closed nationwide”, San Luis Obispo Tribune. Retrieved from: http://www.sanluisobispo.com/news/business/article63846367.html (accessed January 30, 2017).  Prefumo Creek Commons: This center, which was constructed in 2011 and 2012, includes an estimated 188,658 square feet of regional and local retail, with several main anchor businesses and two pad buildings. MacSuperstore announced its closure at the end of 2016, leaving its 5,000 square feet of retail vacant4.  Irish Hills West: This center, which was developed over the past 10 to 15 years, includes an estimated 430,000 square feet of local and regional retail, with several anchor buildings, several medium-sized anchor buildings, and several pad buildings. The significant transition at this shopping center in recent years was the closure of Circuit City in early 20095. This location was later occupied by New Frontiers (November 2010), which has since transitioned to a Whole Foods Market. Across the above four regional retail properties within close proximity to the San Luis Ranch Project, there is an estimated 1.2 million square feet of local and regional space. As noted above, an estimated 155,826 square feet of retail remains vacant, representing 13 percent of the total regional retail square footage of these four regional retail properties along Madonna Road and Los Osos Valley Road. Meanwhile, there is a nationwide trend towards a preference for online shopping (e-commerce) over shopping in brick-and-mortar stores. The National Retail Federation estimated that 108.5 million Americans shopped online over the Thanksgiving weekend in 2016, well above the 99.1 million who shopped in stores6. Late in the 2016 holiday shopping season, the federation estimated that holiday sales will hit nearly $656 billion, which encompasses $117 billion in e-commerce activity, nearly 18 percent of holiday season sales7. After a disappointing holiday shopping season, several well-established national brands announced store closures across the country. In January 2017, Macy’s announced closures of 68 of its stores nationwide, and plans to close about 100 stores (15% of its store base)8. Sears Holding Corporation is also struggling financially nationwide. Also in early January 2017, Sears announced plans to close 150 stores (108 Kmart stores and 42 Sears stores – 10% of the Sears store base) by April 2017; although no Sears stores are scheduled for closure in California at this time9. 4 Ames, Danielle. (28 November 2016). “MacSuperstore in SLO is closing at end of the week”, San Luis Obispo Tribune. Retrieved from: http://www.sanluisobispo.com/news/business/article117505293.html (access January 30, 2017). 5 No author. Retrieved from: http://www.slideshare.net/finance22/circuit-city-stores-store-closing-list-11609- updated-information-2909-1045am-et (January 30, 2017). 6 Wahba, Phil. (27 November 2016). “About 10 Million More Americans Shopped Online Than In Stores Over Black Friday Weekend” Fortune. Retrieved from: http://fortune.com/2016/11/27/black-friday-nrf-shopping/ (accessed January 30, 2017). 7 Soergel, Andrew. (20 December 2016). “As Online Sales Boom, Is Brick -And-Mortar on the Way Out?” U.S. News and World Report. Retrieved from: http://www.usnews.com/news/articles/2016-12-20/with-online-sales- booming-is-brick-and-mortar-on-the-way-out (accessed January 30, 2017). 8 Peterson, Hayley. (4 January 2017). “Macy’s is closing 68 stores – here’s where they will shut down”, Business Insider. Retrieved from: http://www.businessinsider.com/list-of-macys-stores-closing-2017-1 (accessed January 30, 2017. 9 Peterson, Hayley. (4 January 2017). “Sears is closing 150 stores – here’s the full list”, Business Insider. Retrieved from: http://www.businessinsider.com/list-of-sears-and-kmart-stores-closing-2017-1 (accessed January 30, 2017). However, adding an additional 150,000 square feet of regional retail in a struggling retail landscape may lead to retail cannibalization of existing – and adjacent – regional retail properties. SLOCOG’s 2014 RTP/SCS includes a number of policies and strategies related to economic vitality and economic competitiveness, especially as it relates to reducing trips, trip distances, and travel distances. Policy SCS 2 of the SLOCOG 2014 RTP/SCS states “Facilitate the development and economic viability of communities in ways that reduce trips and travel distances.” SLOCOG suggests the City or project applicant conduct a comprehensive regional retail market analysis to determine the need for additional regional-serving retail space in the San Luis Obispo market, given the current nationwide conditions and trends in the retail shopping landscape. SLOCOG recommends this study be completed before moving forward with approval of the San Luis Ranch Project in its current design. Transportation/Traffic Prado Road Extension, Overcrossing, and Interchange As noted in our EIR scoping letter of November 17, 2015, the 2014 RTP/SCS recommends construction of an overcrossing and interchange at Prado Rd. (see “References” section at the end of this letter). The inclusion of the Prado Road overpass and northbound ramp reconstruction in Phase 2 fulfills this 2014 RTP/SCS recommendation. Also as noted in the scoping letter, anticipated funding constraints may limit SLOCOG’s ability to contribute to highway improvement projects in the near/mid-term. During its most recent programming cycle, SLOCOG received no new Statewide Transportation Improvement Program (STIP) funding from the state to allocate toward regionally-significant or land-use necessitated highway capacity and access improvements. Due to the uncertainty of the fate of pending legislation in the California legislature, it is uncertain how much near-term state and federal funding SLOCOG will receive, and for what purposes (e.g. maintenance or capacity-increasing). SLOCOG will continue to work with its member jurisdictions to program projects according to their funding priorities, SLOCOG policies, and the limits of funding. SLOCOG is hopeful that, with more robust infrastructure funding at the federal and state levels for future programming cycles, that a regional share of the Prado Rd. project could be defined and compete for SLOCOG discretionary funding. As is noted in the DEIR, the ultimate design of the Prado Rd. overcrossing and-or interchange is being reviewed as part of the PSR/PDS process involving the City, Caltrans, and SLOCOG. Appendix L indicates that Dalidio/Prado and the overcrossing would include two vehicular travel lanes in each direction. The Draft San Luis Ranch Specific Plan (Fig. 6.13) also indicates the Prado Road West Class I (and-or Class II) bike facilities on the overcrossing that are recommended in the City Bicycle Transportation Plan. Fig. 6.4 indicates that pedestrian accommodations would also be provided on the overcrossing. The SLOCOG 2014 RTP/SCS includes an overcrossing with only two auto lanes (one in each direction). The 2014 RTP/SCS (Chapter 4) provides the following policy: HSR 7. Coordinate with Caltrans and local jurisdictions to include intermodal strategies with improvements to state highways and regionally significant routes including bike lanes, pedestrian access, public transit, shuttle stops, and park-and-ride lots. US 101 Auxiliary Lanes The DEIR notes some significant and unavoidable impacts to the US 101 mainline under cumulative-plus- project conditions (e.g. Impact T-10, p. 4.12-102). The 2014 RTP/SCS (see the appendix of this letter) recommends the construction of auxiliary lanes. We do not see any discussion of auxiliary lanes in the DEIR. Please note if they were considered as a part of the Draft EIR. Modal split The City has ambitious goals in its Circulation Element (Table 1) to achieve 20 percent bike, 12 percent transit, and 18 percent walking/carpool/other forms mode splits. The Draft San Luis Ranch Specific Plan (DEIR Appendix B) states: San Luis Ranch will feature enhanced transit facilities and a new transit center that will increase the accessibility of transit to the area. A key purpose of transit amenities is to de-emphasize the use of private automobiles as a primary mode of transportation for the neighborhood. (Sec. 6.3 – intro) Pedestrian and bicycle amenities will be included throughout the Specific Plan Area so as to promote walking and bicycling to nearby daily-need amenities. (Sec. 6.4 – intro) San Luis Ranch will contribute to the City’s existing bicycle network with several notable improvements…Both safety and circulation aspects for cyclists will be greatly enhanced throughout the Plan Area. (Sec. 6.4.2) The proposed project accords with these multimodal priorities with a substantial level of investment in multimodal connections. Furthermore, there is the potential to implement transportation demand management (TDM) strategies, as discussed further. Given the above project characteristics and potential features, it is surprising that almost all external person trips (95-97%) are assumed to be auto trips (App. L, pp. 42-43). Even when one accounts for internal capture, it is evident that the external mode split for alternative modes could also be robust. For example, Fig. 6.8 of the Specific Plan shows how many external destinations are within a 10-minute walk. The planned Class I connections to Madonna Rd. and across Prado Rd. provide low-stress bike connectivity to other parts of the city. Travel demand management (TDM) strategies Pursuant to our Regional Transportation Plan policies, our Transportation Demand Management (TDM) Program shall “support projects and programs that integrate transportation choices in their development and/or operations” (Maximizing Systems Efficiency, Policy 10, 2014 RTP/SCS). Additionally, 2014 RTP/SCS MSE Policy 3 states “Assist local jurisdictions in developing communities in ways that reduce the demand on the roadway system by coordinating residential, commercial and industrial development in ways that reduce the need to drive”. Our scoping letter suggested that the EIR should consider transportation demand management (TDM), including encouragement and education about non-single-occupancy-vehicle travel modes, as a potential mitigation measure. We have not discovered any TDM programs or projects proposed for the San Luis Ranch development. Transportation demand management is a set of strategies, programs, services, and physical elements that influence travel behavior by mode, frequency, time, route, or trip length in order to help achieve highly-efficient and sustainable use of transportation facilities. To affect meaningful travel behavior change and encourage the widespread utilization of alternatives to single-occupant vehicles (SOV), residents and other travelers must first understand the options available in the multimodal transportation system – how they work, how to use them, and the benefits they offer. This requires a level of information and support that demystifies travel options and makes them rational and desirable alternatives to the car. Measures of Effectiveness for TDM programs should be two-fold: a reduction in peak-period vehicle trips and a reduction in overall weekly vehicle trips. In order to achieve this, SLOCOG/SLO Regional Rideshare asks that this development be required to develop a TDM Plan to reduce trips generated by on-site residential uses and on-site office uses, and construction activities. The trip reduction plan shall have a measured baseline of vehicle trips from which reductions shall be determined at the time of the future trip generation analyses. Also required, as part of an ongoing TDM program is:  Identification of a Site Transportation Coordinator(s), for both the residential and commercial components of the project who maintains and updates an on-site trip reduction bulletin board(s) in any common areas posting information such as carpool, vanpool, and car share opportunities, transit schedules, bus routes, and the availability of on-site long term bike parking. The City shall be notified of Site Transportation Coordinator’s name and contact information.  An annual survey of both residential and commercial occupants in order to receive feedback on travel and commute patterns, their likelihood of using alternative transportation modes, and the effectiveness of the program meeting its goals.  Distribution of materials approved by the City should be done in the following manner:  Owner-occupied units. Upon a residential dwelling being sold or offered for sale, the Applicant must notify and offer to the buyer or prospective buyer, as soon as it may be done, materials describing public transit, ridesharing, and non-motorized commuting opportunities available in the vicinity of the project, including a map showing location of on-site bicycle parking, transit stops, bicycle routes, and a list of retail and service destinations within walking distance. Such information must be transmitted no later than close of escrow;  Rental units. Upon a residential dwelling being rented or offered for rent, the Applicant must notify and offer to the tenant or prospective tenant, materials describing public transit, ridesharing, and non-motorized commuting opportunities in the vicinity of the development including a map showing location on-site bicycle parking, transit stops, bicycle routes, and a list of retail and service destinations within walking distance. The materials must be provided no later than the time the rental agreement is executed. As the region’s primary manager of TDM, SLO Regional Rideshare is available to coordinate and work free of charge with occupants and/or the developer on implementation on all TDM programs and plans. * * * Thank you for the opportunity to provide input. Sincerely, Jeff Brubaker Geoffrey Chiapella Transportation Planner Transportation Planner Appendix – References SLOCOG 2014 Regional Transportation Plan and Sustainable Communities Strategy (2014 RTP/SCS) http://www.slocogconnectingcommunities.com/ 2014 RTP/SCS project references Prado Rd., Froom Ranch Way, Bob Jones Trail: Prefumo Creek Connection 1. “Reconstruct key interchanges including the Prado Road interchange…” (US 101 Improvement Strategy #11, p. 4-12) 2. “Few parallel routes and frontage roads exist along the west side of US 101 through San Luis Obispo. Interchange/over-crossing concerns occur at Los Osos Valley Rd, Prado Road, and Santa Rosa St.-SR 1.” (p. 4-21, emphasis added) 3. “Prado Rd. interchange/over-crossing: A new interchange or overcrossing at Prado Rd. has been proposed for construction to serve expanded commercial and residential development. It is anticipated that this new facility will relieve congestion at the Madonna and Los Osos Valley Rd. interchanges and route traffic to and from the Airport Area via the Prado Rd. extension. This project is also identified in the US 101 Corridor Mobility Master Plan.” (p. 4-22) 4. US 101 / Prado Rd. I/C and NB auxiliary lane as a constrained, land-use-necessitated, long- term project (Fig. 4-41) 5. CEN-MHWY-1003: Prado Rd. overcrossing at US 101; US 101 NB/SB auxiliary lanes: Broad St. to Marsh St. [with bike-ped connection] as an unconstrained project 6. CEN-MHWY-1402: US 101 / Prado Rd. I/C and NB auxiliary lane as a constrained project in Central County (App. A, Table 4-3, p. A-6) 7. CEN-RORS-1002: Prado Rd. bridge widening [over San Luis Obispo Creek] as a non-highway, regional Tier 1 route of regional significance in Central County (App. A, Table 4-14, p. A-20) 8. CEN-RORS-1003: Prado Rd. extension: South Higuera St. to Broad St. [with bike lanes] as a non-highway, regional Tier 1 route of regional significance in Central County (App. A, Table 4-14, p. A-20) 9. The US 101 CMMP recommends the completion of the Prado Rd. interchange as a medium- to long-term improvement (executive summary, pp. 7 and 9) 10. CEN-RORS-1013: Froom Ranch Way extension: end of Froom Ranch Way to Dalidio Dr. 11. CEN-AT1-1014: Bob Jones Trail: Prefumo Creek bike path connector [Madonna Rd. to US 101] US 101 CMMP: US 101 Corridor Mobility Master Plan Executive summary available in Appendix G at above link