HomeMy WebLinkAbout2006-05-17; Planning Commission; Resolution 60691 PLANNING COMMISSION RESOLUTION NO. 6069
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A RESOLUTION OF THE PLANNING COMMISSION OF THE
3 CITY OF CARLSBAD, CALIFORNIA, APPROVING A
COASTAL DEVELOPMENT PERMIT TO ESTABLISH A
4 5-YEAR PROGRAM THAT WOULD ALLOW FOR THE
, PLACEMENT OF UP TO 150,000 CUBIC YARDS (CY) PER
YEAR OF OPPORTUNISTIC BEACH FILL (SAND) ALONG
6 THE ENCINAS BEACH PORTION OF THE SOUTH
CARLSBAD STATE BEACH, LOCATED ON THE WEST SIDE
7 OF CARLSBAD BOULEVARD AND SOUTH OF PALOMAR
AIRPORT ROAD, IN LOCAL FACILITIES MANAGEMENT
8 ZONE 22.
9 CASE NAME: CARLSBAD OPPORTUNISTIC BEACH FILL
PROGRAM
10 CASE NO.: CDP 06-02
11 WHEREAS, City of Carlsbad, "Applicant," has filed a verified application
12 regarding property owned by California Department of Parks and Recreation, "Owner,"
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described as
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A Parcel of land being Rancho Agua Hedionda portion of 14.22
15 acres in Lot H of Map 823, and in Section 20, Township 12S,
I x- Range 4W, San Bernardino Meridian in the City of Carlsbad,
County of San Diego, State of California, according to the
17 official plat
18 ("the Property"); and
19 WHEREAS, said verified application constitutes a request for a Coastal
20 Development Permit, as provided by Chapter 21.201 of the Carlsbad Municipal Code, and as
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shown on Exhibit "A," dated May 17,2006, attached hereto; and
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23 WHEREAS, the Planning Commission did on the 17th day of May 2006, hold a
24 duly noticed public hearing as prescribed by law to consider said request; and
25 WHEREAS, at said public hearing, upon hearing and considering all testimony
^)f\ZD and arguments, if any, analyzing the information submitted by staff, and considering any written
27 comments received, the Planning Commission considered all factors relating to CDP 06-02 -
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CARLSBAD OPPORTUNISTIC BEACH FILL PROGRAM.
1 NOW, THEREFORE, BE IT HEREBY RESOLVED by the Planning
2
Commission as follows:
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A) That the foregoing recitations are true and correct.4
B) That based on the evidence presented at the public hearing, the Planning
Commission hereby APPROVES CDP 06-02 - CARLSBAD
6 OPPORTUNISTIC BEACH FILL PROGRAM, based on the following
findings and subject to the following conditions.
7
Findings;8
That the proposed beach fill project is in confbrmance with the Certified Local Coastal
Program (LCP) and all applicable policies in that the project will help to reduce sand
10 erosion along the Oceanside Littoral Cell shoreline, which is consistent with Policy
4-1 (a) of the LCP Mello II Segment that states the City should pursue measures that
address the causes and cures of beach shoreline erosion.
1 f\
2. The proposal is in conformity with the public access and recreation policies of Chapter 3
of the Coastal Act in that although the project will impact public access to the beach
fill site during construction, the access restrictions would be limited and temporary,
14 and placement of sand on the beach is essential to ensuring the quality of the beach
continues to satisfy the Coastal Act's public access and recreation policies. The
placement of sand on the beach will enhance the opportunities for recreational use
. of the site.16
, 7 3. The project is consistent with the provisions of the Coastal Resource Protection Overlay
Zone (Chapter 21.03 of the Zoning Ordinance) in that the project will adhere to the
lg City's drainage and water quality protection standards, including the Standard
Urban Storm Water Mitigation Plan (SUSMP) to avoid increased urban runoff,
19 pollutants, and soil erosion. The project includes the construction of a temporary access
ramp (from beach fill material) over the existing coastal slope (8- to 10-foot-high fill
slope that elevates Carlsbad Boulevard above the level of the beach). The Geologic and
Biological Reconnaissance (September 2, 2005) conducted for the project determined
that construction of the ramp would not impact the stability of the existing slope,
22 and would actually have a buttressing effect that would provide temporary
protection from high waves. As proposed and conditioned, the project will not
impact coastal resources, and does not conflict with any requirement of the Coastal
Resource Protection Overlay Zone.
25 Conditions:
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1. If any of the following conditions fail to occur; or if they are, by their terms, to be
27 implemented and maintained over time, if any of such conditions fail to be so
implemented and maintained according to their terms, the City shall have the right to
revoke or modify all approvals herein granted, and deny or further condition issuance of
all future permits. No vested rights are gained by Applicant or a successor in interest by
the City's approval of this Coastal Development Permit.
PC RESO NO. 6069 -2-
2. Staff is authorized and directed to make all corrections and modifications to the Coastal
7 Development Permit document(s) necessary to make them internally consistent and in
conformity with final action on the project. Development shall occur substantially as
3 shown in the approved Exhibits. Any proposed development different from this approval
shall require an amendment to this approval.
4
, 3. The applicant shall comply with all provisions of federal, state, and local laws and
regulations applicable to the beach fill program.
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4. The applicant shall ensure that each beach fill project complies with the provisions and
7 requirements specified in the Carlsbad Opportunistic Beach Fill Program, Exhibit
"A," dated May 17,2006, attached hereto, and on file in the Planning Department.8
g 5. Construction operations during each beach fill project shall be sequenced to avoid heavy
vehicle activity near the outer edge of the road embankment. The fill placement and
10 access ramp removal operation shall be monitored to avoid making notches or other cuts
into the slope. Any minor impact to the road embankment that may unavoidably occur
11 shall be repaired (e.g., by recompacting the fill material).
12 6. Applicant shall exercise special care during the construction phase of each beach fill
13 project to prevent offsite siltation. Erosion control shall be provided in accordance with
City Standards, including the City of Carlsbad Standard Urban Storm Water
14 Mitigation Plan Storm Water Standards (SUSMP) to the satisfaction of the City
Engineer.
15
, , 7. This Coastal Development Permit is granted for a period of 5 years from May 17,2006,
to May 17, 2011. This permit may be revoked at any time after a public hearing, if it is
17 found that the use has a substantial detrimental effect on surrounding land uses and the
public's health and welfare, or the conditions imposed herein have not been met. This
18 permit may be extended for a reasonable period of time not to exceed 5 years upon
written application of the permittee made no less than 90 days prior to the expiration date.
The Planning Commission may not grant such extension, unless it finds that there are no
2Q substantial negative effects on surrounding land uses or the public's health and welfare.
If a substantial negative effect on surrounding land uses or the public's health and welfare
21 is found, the extension shall be denied or granted with conditions that will eliminate or
substantially reduce such effects. There is no limit to the number of extensions the
22 Planning Commission may grant.
23 8. This approval is granted subject to the adoption of the project Mitigated Negative
24 Declaration and Mitigation Monitoring and Reporting Program, and approval of
SUP 04-13, and is subject to all conditions contained in Planning Commission
25 Resolutions No. 6067 and No. 6068 for those other approvals incorporated herein by
reference.26
27 9. Prior to approval of any beach fill project processed pursuant to the Carlsbad
Opportunistic Beach Fill Program, the Applicant shall apply for and obtain approval of
28 a Coastal Development Permit issued by the California Coastal Commission or its
successor in interest, which substantially conforms to this approval. A signed copy of the
PC RESO NO. 6069 -3-
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Coastal Development Permit must be submitted to the Planning Director. If the approval
is substantially different, an amendment to SUP 04-13 and CDP 06-02 shall be required.
PASSED, APPROVED AND ADOPTED at a regular meeting of the Planning
Commission of the City of Carlsbad, California, held on the 17th day of May 2006, by the
following vote, to wit:
AYES:
NOES:
Chairperson Montgomery, Commissioners Baker, Cardosa,
Dominguez, Segall, and Whitton
ABSENT: Commissioner Heineman
ABSTAIN:
MARTELL B. MONTGOMERY, Mrperson
CARLSBAD PLANNING COMMISSION
DON NEU
Assistant Planning Director
PCRESONO. 6069 -4-
Exhibit "A"
CARLSBAD OPPORTUNISTIC BEACH FILL PROGRAM
SUP 04-13/CDP 06-02
May 17,2006
A. General
The project consists of establishing a program for the City of Carlsbad to pursue opportunities for
obtaining suitable sand to place on South Carlsbad Beach for erosion control, recreational benefits, and
restoration. The program is designed to place opportunistic beach fill on the City's beach to supplement
on-going beach nourishment activities in the region.
Opportunistic beach fill is material that becomes available as a surplus from construction projects and is
therefore available at no or relatively low cost compared to costs of material used primarily for beach
enhancement or nourishment. Examples of opportunistic beach fill are the by-products of excavation for
upland development, transportation projects, wetland restoration, flood control projects, and harbor and
channel dredging
The purpose of the program is to:
• Renourish the Oceanside Littoral Cell (a littoral cell is a reach of shoreline in which all sediment
transport processes are related, and may contain several sand sources and sinks);
• Provide on-going maintenance of the large-scale beach nourishment project in North County
associated with regional beach-fill efforts;
• Improve protection to coastal structures and enhance beach recreation opportunities in the City;
and
• Restore sandy beach habitat.
The objective of the program is to capitalize on opportunities to obtain beach-quality sand from upland
construction projects when it comes available by obtaining one permit from each permitting agency for an
extended period of time (5 years) for beach placement, without having to reapply for individual permits
for each placement operation. The sand material would be deposited at a specific location in South
Carlsbad State Beach if it is determined to be beach-compatible, rather than having the applicant dispose
of it at an inland site.
The program would be monitored over time so that it may be modified, with agency consent, to maintain
minimal environmental impacts while maximizing nourishment of the littoral cell. This program
proposes similar criteria to those proposed for the Opportunistic Programs in the City of Oceanside, City
of San Clemente, and the Beach Erosion Authority for Clean Oceans and Nourishment representing the
Counties of Santa Barbara and Ventura.
B. Project Location and Setting
The project site, referred to as the "South Carlsbad receiver site", is located along the Encinas Beach
portion of the South Carlsbad State Beach, as shown on Figures 1 and 2. The South Carlsbad receiver site
is located west of Carlsbad Boulevard, south of Palomar Airport Road, and north of the mouth of the
Encinas Creek. This beach is narrow and backed by an existing fill slope embankment of Carlsbad
Boulevard.
During the winter months, the beach consists of sand and cobbles. In the summer and fall, the sand
moves from the offshore bar back onto the beach covering the cobbles. There is no development along
this site, but the beach is public with a parking area located off of Carlsbad Boulevard, approximately 650
feet south of the mouth of Encinas Creek.
Page 1
Carlsbad Opportunistic Beach Fill Program
(D
South Carlsbad
Receiver Site
Map created l>yCarbt»d GIS D
Location Map Figure 1
The South Carlsbad receiver site is located within the limits of South Carlsbad State Beach. Surrounding
development consists of:
• North of the site - continuation of Carlsbad State Beach and Palomar Airport Road
• South of the site - continuation of Carlsbad State Beach, public parking lot, and State Beach
campground
• Bordering the east side of the site - Carlsbad Boulevard
• East of Carlsbad Boulevard/south of Palomar Airport Road/north of Encinas Creek - timeshare
resort, and residential development
• East of Carlsbad Boulevard/south of Encinas Creek - undeveloped with natural vegetation.
• West of the site - Pacific Ocean
The South Carlsbad receiver site is located on a low tide terrace, which lies in front of coastal cliffs
between Agua Hedionda and Batiquitos Lagoons. The project site comprises the flat, rocky, shallow part
of the shoreline.
Page 2
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Carlsbad Opportunistic
Beach Fill Program
Location Map of Opportunistic
Beach Site in Carlsbad
Figure
2
Carlsbad Opportunistic Beach Fill Program
C. Background
The proposed project is related to a previous beach nourishment project implemented in 2001 by the San
Diego Association of Governments (SANDAG) called the Regional Beach Sand Project (RBSP). That
project placed over 2 million cy of beach-quality sand on 12 beach receiver sites from Oceanside to
Imperial Beach. The project site was one of those sites, and received 158,000 cy of sand placed along
2,000 feet of beach length in June/July 2001.
The potential environmental impacts of the RBSP were evaluated in the Final Environmental Impact
Report/Environmental Assessment (EIR/EA) for the RBSP. The EIR/EA concluded that the project
would not have any significant effects on the environment, but SANDAG was required to implement a
short-term (construction) and long-term (5 years) monitoring program to verify that conclusion, as well as
to provide additional data regarding actual beach nourishment sand transport compared to coastal
engineering models. Monitoring was conducted during construction for turbidity, spawning grunion, and
underwater archaeology resources, and no adverse construction impacts were identified. Post-
construction monitoring of lagoons and offshore biological resources (kelp, rocky intertidal habitat, and
subtidal habitat) has confirmed no adverse impacts and has provided extensive information about marine
resources and sand transport.
Additional monitoring at specific locations was sponsored by individual jurisdictions. The City of
Encinitas sponsored biological monitoring at six locations (three that received sand as part of the RBSP,
and three that did not). The monitoring occurred for three years after the sand placement, and found,
overall, an improvement in biological resource use of beach habitat at receiver sites.
As stated above, the project site is the same beach location that received 158,000 cy of sand in June/July
2001 as part of the RBSP. Key differences between this project and the RBSP are: 1) the source(s) of
sand, 2) sand characteristics, and 3) method of transport.
D. Sand Quantities and Qualities
Government resource agencies establish criteria for sand placement for all beach nourishment projects in
California. These agencies include:
• U.S. Army Corps of Engineers (USACE),
• U.S. Fish and Wildlife Service (USFWS),
• U.S. Environmental Protection Agency (USEPA),
• NOAA Marine Fisheries Service (NMFS),
• California Department of Fish and Game (CDFG),
• California Coastal Commission (CCC),
• California State Lands Commission (CSLC), and
• California Regional Water Quality Control Board (CRWQCB).
These agencies were consulted on several occasions during the early phases of project design to
determine the appropriate sand qualities and quantities.
The project consists of placing a maximum of 150,000 cubic yards per year (cy/yr) of sand on the South
Carlsbad receiver site. The maximum proportion of fine-grained particles (or fines, defined as silts and
clays passing through the number 200 sieve) is 25% with the remainder 75% sand during the winter
season (September 15 to March 15). The South Carlsbad receiver site is more suitable for placement of a
higher percentage of fines than a typical beach nourishment project because it is located adjacent to a
creek mouth, which historically delivers more fines to the coast during the rainy (winter) season. Initial
beach fill volume is limited to 30,000 cy.
Page 4
Carlsbad Opportunistic Beach Fill Program
During the spring and late summer placement period, a more stringent fines content is proposed. The
maximum fines content proposed during the Spring and Late Summer placement window is 15%, with
the remainder 85% sand. It is also proposed to limit initial beach fills during this time to approximately
20,000 cy. No sand placement is proposed for the period between Memorial Day and Labor Day.
The rate of sand placement on the beach is designed to replicate nature as closely as possible. Natural
sediment delivery to the coast occurs during the wet season (fall and winter); therefore, up to 100% of the
sand placement is proposed to occur in the fall and winter seasons, between September 15 and March 15.
Coastal watersheds naturally yield sediment from rain runoff in the wet season and the coastal zone is
acclimated to this seasonal turbidity pattern.
No more than one-third of sand material will be placed on the beach in spring and summer months (see
table below), when natural sediment delivery to the coast is lower. This season has the highest beach
usage for recreation but is also the most active construction season. Restricting all placement to avoid
summer months could result in substantial missed opportunities. Therefore, a limited amount of sand
placement with a lesser percentage of fines is proposed for the spring and summer months (excluding the
highest summer recreation period between Memorial Day and Labor Day). The table below outlines the
proposed maximum fines content and volumes during each seasonal placement window.
TABLE 1
PROPOSED LIMITATIONS OF SAND PLACEMENT QUANTITIES
Season
Fall/Winter
Sept 15 -Mar 15
Spring
Mar 1 5 - last Monday in May (Memorial Day)
Summer
Memorial Day - first Monday in Sept (Labor Day)
Late Summer Option
Labor Day - Sept 1 5
Maximum Fines
Content
25%
15%
—
15%
Maximum
Annual Volume1
1 50,000 cy
40,000 cy
...
10,000 cy
Initial Maximum
Beach Fill Volume
30,000 cy
20,000 cy
—
5,000 cy
1 The cumulative maximum quantity of all sand in a calendar year, regardless of season, is 150,000 cy.
Allowing a higher percentage of fines during winter for this program is helpful because it offers the City
flexibility to consider a broader range of opportunistic beach-fill sources. Certain sand sources may have
a high percentage of fines, but may consist of very high-quality sand that would be beneficial to the
beach. Material with relatively high fines content would be placed below the Mean High Water (MHW)
line to allow the fines to be winnowed away by the rising tide and deposited offshore, leaving the sand
behind on the beach.
It is proposed that the program start with relatively small projects (up to approximately 30,000 cy),
followed by monitoring. Other criteria in determining suitable beach sand include that the material:
• Cannot be suspected of containing hazardous chemicals based on an EPA Tier I assessment and
appropriate testing;
• Must be free of trash and debris based on visual inspection;
• Must reasonably match the color of natural beach sand after exposure to the marine environment;
• Must be less than 10% manufactured sand; and
• Must not form a hardpan after placement.
Although sand color is not an engineering or environmental factor, it must be considered for aesthetic
reasons, hi July 1996, a private developer placed excavated sandy material over clean white sand at the
South Carlsbad receiver site, referred to for that project as the Ponto Beach site. The material was placed
above the reach of the tides and was not initially exposed to reworking by waves. While above the reach
PageS
Carlsbad Opportunistic Beach Fill Program
of the tides, it formed a soil-colored (red) hardpan and was unsightly and uncomfortable to local beach
users. In April 1997, earthmoving equipment pushed the material into the water and the fines dispersed
leaving the beach-colored sand behind. If the City finds acceptable beach material that is significantly
darker-colored than the beach sand, it will be placed below the MHW line, within reach of the tides and
waves. As mentioned above, the City will require that the color reasonably match the color of natural
beach sand after exposure to the marine environment.
To determine that the material characteristics are suitable for beach placement, the City will require
sampling of the material, and will analyze it against a checklist of the above-listed criteria prior to placing
it on the beach. Any sample not meeting these pre-determined City standards would be rejected.
E. Beach Fill Design Options
There are three different beach fill design options for the Carlsbad beach fill program: 1) placement
directly into the surf zone; 2) placement as a beach berm; or 3) placement as a sand dike along the toe of
the bluff. The three design options are described as follows:
1. Surf Zone Placement
Beach fill will be placed below the MHT line, directly into the surf zone, if the material is darker colored
than the existing beach sand. Sand will be delivered to the beach and pushed by bulldozers to the water's
edge. At low tide, the material will be pushed as far seaward as possible and left in a long, linear dike
parallel to the coast so that it will be reworked by waves during the following rising tide (see Figure 3).
The darker-colored clays will be winnowed out of the material by waves and currents and carried offshore
and sand will be left behind. Surf zone placement will likely be the design used most often for sand
placement. The berm and dike design options will only be used when there is beach quality sand that will
visually blend in with the natural beach sand and will not form a hardpan.
2. Beach Berm
Beach fill may be placed as a layer over the existing beach as a berm. The beach-berm design is shown in
Figures 4 and 5. The berm would be a level surface extending a certain distance from the back of the
beach toward the ocean, then sloping gradually into the water. The elevation, width, length, and slope of
the berm will vary for each sand placement opportunity, depending upon the quantity of material to be
placed and its qualities. The geometry of the berm will depend on the quantity of material and the
condition of the beach at the time of material placement. An example of potential berm dimensions,
using the estimated initial fill quantity of 30,000 cy with 25% fines (the anticipated norm during
fall/winter) would be a berm that is 1,600 feet long by 100 feet wide, with a fill depth (height) of 5 feet on
average.
3. Sand Dike along the Bluff Toe
Sand could also be placed as a dike along the bluff toe if appropriate. The sand dike design option could
be constructed if the City chose to apply the sand to the sea more gradually than would otherwise occur.
The sand dike concept is shown in Figure 3. The material would be piled up along the back portion of the
beach and extended along the lower bluff. The dike would be narrower and longer than the beach berm
design. A typical dike could reach up to +12 feet MLLW or higher, be only 20 to 30 feet wide, and slope
more steeply to the beach at 5:1 (H:V).
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Carlsbad Opportunistic
Beach Fill Program
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Encinas Beach Typical Section
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4
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Carlsbad Opportunistic
Beach Fill Program
Encinas Beach Fill Plan
and Profile Locations
Figure
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LOCATION MAP
LEGEND
NOT TO SCALE
PROJECT NAME CARLSBAD
TRUCK ROUTES
FIGURE
6
CARLSBAD OPPORTUNISTIC
BEACH FILL PROGRAM
Maximum footprint of temporary truck ramp
to the beach site.Fig
7
Carlsbad Opportunistic Beach Fill Program
F.Construction Operations
Beach fill activities will occur on short notice and when material becomes available. Trucks will haul
material from construction sites along designated routes to the deposition site as shown in Figure 6.
1.Beach Access
For each opportunistic beach fill, a temporary truck ramp would be constructed adjacent to the west side
of Carlsbad Boulevard, north of the Encinas Creek Bridge and culvert structures. Although there is
existing vehicle access to the beach from the parking lot located south of the Encinas Creek Bridge,
access to the parking area would require trucks to travel south on Carlsbad Boulevard and cross the bridge
(no access to the parking area from northbound travel lanes). Trucks hauling a load of sand would exceed
the weight capacity of the bridge (due to the bridge's age and structural stability), and therefore, will be
prohibited from crossing the bridge. Trucks will be required to access the beach north of the bridge.
Carlsbad Boulevard north of the bridge is at a higher elevation than the beach; therefore, the construction
of a temporary truck ramp is necessary to provide access to the beach.
The ramp would be constructed by creating a wedge of fill material (opportunistic sand dumped from the
road shoulder and/or with existing beach sand) over the existing slope. The ramp would allow dump
trucks, carrying sand, and other vehicles to access the beach from Carlsbad Boulevard. The ramp would
be approximately 75 feet wide (from north to south), and would have an approximate height of 8 to 10
feet, depending on beach level (see Figure 7). Fill would be placed to raise the level of the ramp slightly
above the level of the existing grade at the top of the slope.
The ramp would be removed once each beach fill project is complete. When the ramp is removed,
portions of the material can remain, if desired by the City, to provide added protection to the existing
roadway embankment. There is no native or sensitive plant species within the project area, and temporary
access ramp will not result in a negative impact to the stability of the existing slope (roadway
embankment).
2.Truck Route
The trucks would drive south on Carlsbad Boulevard, exit onto the ramp and drive down to the beach.
The trucks would dump their load of material on the beach, where earth-moving equipment would then
distribute the sand to the appropriately selected beach placement footprint. The trucks would then egress
the site via the same ramp and head south on Carlsbad Boulevard. The estimated number of truck trips is
shown in Table 2.
TABLE 2
PROPOSED MAXIMUM NUMBER OF TRUCK TRIPS AND FREQUENCY
Season
Fall/Winter
Spring/
Late Summer
Maximum volume
of sand placed
weekly (cy)
20,000
10,000
Maximum number
of weekly truck
trips projected1
1,428
714
Maximum number
of daily truck
trips projected2
238
119
Maximum number
of hourly truck
trips projected3
29.8
14.9
Minimum time
between trips
(minutes)
2
4
1 Assumes a twin trailer belly-dump truck holding 14 cy total.
2 Assumes a 6-day workweek, Monday through Saturday.
3 Assumes an 8-hour workday.
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Carlsbad Opportunistic Beach Fill Program
Trucks will be provided a dedicated lane for dumping sand. There is an existing 6-foot bike lane adjacent
to the unpaved shoulder on the west side of the roadway. Carlsbad Boulevard also has two 12-foot
through lanes and a paved 10-foot shoulder on the east side of the road. In order to accommodate the
truck operations, the bike lane will be closed and the shoulder will be used for truck queuing. To allow
for queuing of trucks and dumping procedures, approximately 450 feet will be coned off along Carlsbad
Boulevard. Flagmen will direct traffic during construction operations to ensure traffic safety. This is a
typical traffic control plan outline. However, for each project, a specific traffic control plan will be
developed for approval by the City Engineer.
G.Monitoring Program
A monitoring program is part of the Carlsbad Opportunistic Beach Fill Program. The monitoring
program will involve grunion, turbidity, beach profiles and surfing conditions, as follows:
TABLE 3
OVERVIEW OF MONITORING PROGRAM
Project Phase
Pre-Project
Baseline
During
Construction
Post-
Construction
Post-Project
Type of Monitoring
Beach profiles
Surf conditions
Grunion
(if appropriate season)
Turbidity
Surf conditions
Grunion
(if appropriate season)
Beach profile
Surf conditions
Beach profile
Timing/Duration
30 days prior (profile CB-0775)
14 days prior, 3 times per week (one day on a weekend)
Predicted grunion run closest to project initiation (2 to 3 weeks
and immediately prior to construction)
prior,
Daily during construction
5 times per week during construction
During predicted runs
Within 14 days after construction (profile CB-0775)
For at least 14 days, but need not exceed 30 days after construction
Over 1 year following construction; all profiles surveyed in fall
and spring (April/May)
(Oct)
1.Grunion Monitoring
The grunion spawning season is from March 1 to August 30 and grunion spawn during middle-of-the-
night spring high tides. The eggs incubate in the sand and hatch after approximately 2 weeks, when the
juvenile fish return to the sea during the subsequent spring high tides. Because the South Carlsbad
receiver site is a sandy beach, it provides suitable grunion spawning habitat. While grunion are not listed
as threatened or endangered, efforts are recommended to minimize impacts to this managed fish species.
This project will actually improve grunion spawning by adding sand to the beach. As a precaution,
grunion will be monitored before construction, and if present, during construction. No post-construction
monitoring is required for grunion. The presence of grunion should not result in a halt to construction,
due to the availability of a larger sandy area for spawning immediately up- and down-coast. The project
shall be allowed to proceed with modifications as needed to accommodate spawning.
A grunion monitor must be present to observe grunion runs two to three weeks prior to construction
during a predicted grunion run (according to the grunion calendar produced by the California Department
of Fish and Game), and immediately prior to construction. If grunion are not present during their
predicted runs, no further monitoring is required. If grunion are present during predicted runs, beach
nourishment will only occur above the spring high tide line/kelp line or in the nearshore until the
spawning season is over. As an alternative, grunion monitoring could continue throughout the sand
placement period, and if they do not spawn during a predicted run then sand could be placed below the
spring high tide line.
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Carlsbad Opportunistic Beach Fill Program
2. Nearshore Reefs and Biological Monitoring
Monitoring of nearshore reefs or biology is not recommended for the South Carlsbad receiver site because
previous environmental analysis performed for the San Diego Regional Beach Sand Project show no
sensitive resources in the area. This is one significant consideration in selecting the South Carlsbad
receiver site for this program.
3. Turbidity
Turbidity will be monitored throughout construction to qualify the effect on ocean water clarity from the
project. Conditions in the area are typically clear, with occasional storms causing turbidity. The project
will also cause turbidity, but the condition will be short-lived and should diminish immediately when
construction activities are halted. Turbidity will be monitored by an observer from a vantage point (such
as a bluff top landward of the placement site) noting the extent of turbid conditions. The observer will
map the area of turbidity each day on a base map and photograph the turbidity in the ocean. A map will
be created by the observer, and they will document all other pertinent environmental conditions such as
waves, wind, and weather. If monitoring indicates excessive turbidity (greater than ambient beyond one-
half mile offshore at or down-coast of the placement site) for a prolonged period, assumed to be 5 days,
then placement should be halted or modified to reduce turbidity. This judgment should be made by the
project engineer in consultation with the City and regulatory staff assigned to the project.
4. Beach Profiles
Beach profiles will be monitored to quantify sand accretion or loss at the South Carlsbad receiver site. A
licensed surveyor experienced with the survey methods will survey the beach profiles. The survey is to
provide data that enables the City to determine the sand gain or loss at the placement site. Existing beach
profiles used for regional monitoring and for recent monitoring of the Regional Beach Sand Project are
suitable for monitoring of the City's program without the need to establish new beach profiles. There are
three established profiles that will be used for this project (see Figure 5). Tasks for beach profiling
include:
a. Utilize the one existing beach profile transect within the beach fill footprint that is
designated as CB-0775. Utilize the two existing beach profiles adjacent to the site, with
one being up-coast of the site at CB-0780 and the other down-coast of the site at CB-
0760. All beach profiles should be surveyed each fall (October) and spring (April/May).
Profile CB-0775, however, should also be surveyed more frequently at the time of each
project. It should be surveyed within 30 days prior to construction, and within 14 days
after construction to record pre- and post-construction conditions, respectively.
b. Record beach and seabed elevation along the profiles from the back of the beach out to
the depth of 30 feet relative to mean lower low water. Survey equipment to be used
includes:
i. Standard survey equipment (level, Global Positioning System or GPS, and rod)
for work on land; and
ii. A survey boat with a fathometer and GPS for work on the water to tie into the
land profile.
c. Produce receiver site profiles to compare pre-project with post-project profiles for
interpretation and reporting.
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Carlsbad Opportunistic Beach Fill Program
5. Surf Conditions
Monitoring of surfing is intended to provide qualitative information to understand if the project causes
negative impacts to surfing at the South Carlsbad beach. This monitoring is not required to be technical
nor precise, but rather to simply obtain a sense from observations and periodic interviews/questioning of
surfers if the program is problematic to the activity. If so, possibly more detailed data can be obtained to
verify concerns. If not, projects should be able to continue without modification. Simple counts of the
number of surfers in the water during the prime time for surfing in the morning should roughly indicate if
changed conditions from the project affected surfing.
General surfing conditions should be observed and noted over a period of 14 days prior to construction
and for at least 14 days after construction (no longer than 30 days after construction). The frequency of
observations should be 3 times per week with 1 day falling on a weekend. More frequent observations
should be made during construction, such as 5 times per week. Observations can be relatively short in
time, possibly for 15 minutes at some point between the hours of 6 a.m. and 9 a.m. Observations and
notes should be recorded on data recording forms specifying the general conditions:
a. month/date/time;
b. approximate wave height and direction estimated by the eye;
c. tide from a tide book;
d. wind as roughly estimated by the observer;
e. water temperature obtained from lifeguards, newspaper, or the observer;
f. qualitative water clarity by the observer; and
g. number of surfers in the water
Short interviews would be conducted periodically (once during most visits) with local surfers to ascertain
effects of the project that may not be able to be determined from observations. For instance, asking how
frequently a person surfs that location and why they surf there rather than elsewhere should help solicit
their feelings and experience about the site.
H. Additional Project Design Features
In addition to the monitoring program specified above, which would document beach and offshore
conditions before, during, and after project construction, the following design features would be
implemented to minimize adverse effects to the general public:
1. Truck operation shall be limited to the hours of 8:00 a.m. to 4:00 p.m., Monday through
Saturday (fall/winter) and Monday through Friday (spring/summer) with no activity
during holidays.
2. A flagman shall keep pedestrians a safe distance from the truck, notify beach users of the
presence of the truck, and ensure that a clear and safe path is maintained. This system
will be specified in the traffic control plan required to be prepared for each beach fill
project.
3. Public streets used for hauling the material to the project site shall be cleaned via street-
sweeper every third day of truck delivery to the project site.
4. Trucks shall only use haul routes approved by the city, and shall be specified in the traffic
control plan required to be prepared for each beach fill project.
5. A Spill Prevention, Containment and Countermeasures Plan shall be prepared by the
contractor prior to each beach fill project. The plan shall specify fueling procedures,
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Carlsbad Opportunistic Beach Fill Program
equipment maintenance procedures, and containment and cleaning measures to be
followed in the event of a spill. At a minimum, the plan shall include:
a. Use and refueling of equipment as necessary;
b. Handling and storage of construction and maintenance fluids (oils, antifreeze,
fuels). Fluids shall be stored in closed containers (no open buckets or pans) and
disposed of promptly and properly away from permeable areas to prevent
contamination of the site.
c. Immediate control, containment, and cleanup of fluids released because of spills,
equipment failure (broken hose, punctured tank, etc.), or refueling, per federal
and state regulations. All contaminated materials shall be disposed of promptly
and properly to prevent contamination of the site. To reduce the potential for
spills on the beach during refueling, refueling of portable equipment shall occur
within a contained area. Where that is not possible, barriers shall be placed
around the site where the fuel nozzle enters the fuel tank. The barriers shall be
such that spills shall be contained and easily cleaned up. Someone shall be
present to monitor refueling activities to ensure that spillage from overfilling,
nozzle removal, or other action does not occur.
L Public Agencies Whose Approval Is Required (i.e., permits, financing approval or participation
agreements):
Implementation of the Carlsbad Opportunistic Beach Fill Program will require approval and permits from
a variety of local, state, and federal agencies, as follows:
1. City of Carlsbad - Approval of Mitigated Negative Declaration. Special Use Permit
(SUP), and Local CDP.
The City must approve the environmental determination made pursuant to CEQA (as indicated in this
document, a Mitigated Negative Declaration). The project site contains a special flood hazard area -
Zone VE (coastal flood with velocity hazard - wave action). A SUP is required by the City of Carlsbad
for the placement of fill material in a special flood hazard area. Also, the portion of the project that is
located landward of the mean high tide line is subject to City approval of a local CDP, which can be
appealed to the CCC.
2. California Coastal Commission (CCC) - Coastal Development Permit
The proposed program is located within the Coastal Zone (both seaward and landward of the mean high
tide line). The part of the project located seaward of the mean high tide line is subject to the approval of a
coastal development permit (CDP) from the CCC. The part of the project that is located landward of the
mean high tide line is subject to approval of a CDP from the City of Carlsbad.
3. California Department of Parks and Recreation (CDPR) - Encroachment Permit
The project site is owned by the CDPR and an encroachment permit from CDPR is necessary for access
to the State beach.
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Carlsbad Opportunistic Beach Fill Program
4. California State Lands Commission (CSLC) - Lease of State Land
The CSLC has jurisdiction over certain tidal zones and submerged lands, pursuant to Section 630.3
(Division 6) of the California Public Resources Code. This jurisdiction includes those areas located
seaward of the mean high tide line. The placement of beach fill material below the mean high tide line
requires a lease agreement with the CSLC.
5. Regional Water Quality Control Board (RWOCB) - Section 401C Certification
Any project in California that proposes placing fill materials into waters of the U.S. requires a Section
401C Certification from the RWQCB. Since the program involves placing sand on the beach below the
mean high tide line, a certification is needed from the RWQCB.
6. U.S. Army Corps of Engineers (USAGE) - Sections 10 and 404 Permit
The proposed program involves placing sand on a beach receiver site. Section 10 of the River and
Harbors Act and Section 404 of the Clean Water Act require permits from the USAGE for transporting
and placing fill material into waters of the U.S.
3. Process to Implement Individual Opportunistic Beach Fill Projects After Program
Approval
After the City and other agencies approve the Carlsbad Opportunistic Beach Fill Program (COBFP), the
process to implement each opportunistic beach fill project is as follows:
1. A beach fill opportunity is identified (typically a developer would notify the City when
excess fill material from a construction project is available, or City staff identifies it as part of reviewing
development project submittals).
2. The City would either review existing data about the material or conduct an initial
screening test of the fill material to determine if the fill has the potential to meet the criteria to be placed
on the beach (see Section "D", above).
a. The initial screening test would be a limited sampling of the fill material to
determine its potential as beach fill.
b. More stringent testing would be conducted after it is determined that the fill
material has the potential to meet the criteria for beach fill. This testing is more costly than the initial
testing, and requires USAGE approval of a Sampling and Analysis Plan (SAP) prior to the testing.
3. If the fill material passes the initial screening test, the City will submit a SAP to the
USAGE for approval.
a. Upon USAGE approval of the SAP, testing and analysis of the fill material would
be conducted per the SAP.
4. If the fill material is found per the SAP testing to meet all the criteria to be placed on the
beach, an application shall be submitted to the Planning Department for a Consistency Determination by
the Planning Director.
a. The application shall include information that demonstrates how the project
complies with the approved COBFP, including sand quality and quantities, project design (i.e. fill
placement in the surf zone, or as a beach berm or sand dike), construction operations (project schedule,
beach access, truck route/operations), and project monitoring.
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Carlsbad Opportunistic Beach Fill Program
b. The public shall be notified of the proposed beach fill project and requested
Consistency Determination, as follows:
i. Written notice shall be provided to all property owners within 300 feet of
the project property at least 15 days prior to a decision on the application.
ii. Any person so notified may file written comments or a written request to
be heard within 10 days after the mailing of the notice. If a written request to be heard is filed, an
informal hearing with the Planning Director will be scheduled, and written notice will be provided to the
applicant and the requestor at least 5 days prior to the hearing. The hearing would not be a formal public
hearing.
c. To approve a Consistency Determination application, the Planning Director shall
make a written finding that the beach fill project is consistent with the approved COBFP.
d. The Planning Director's decision on the Consistency Determination application
may be appealed to the Planning Commission, pursuant to Carlsbad Municipal Code Section 21.54.140.
5. After the project is determined to be consistent with the COBFP, and at least 30 days
prior to project construction, the City will submit notification to and obtain authorization to proceed with
the project as required by other permitting agencies (i.e. CCC, CSLC, RWQCB, and USAGE), and
undertake pre-construction monitoring for grunion, beach profiles, and surfing conditions.
6. A minimum of 2-weeks prior to and during construction of the beach fill project a sign
shall be posted at the site (in a location visible from the public right-of-way) notifying the public of the
dates and times that the beach fill activities will occur.
7. After obtaining authorization from the permitting agencies, the beach fill project will be
constructed as approved.
8. After the beach fill project is completed, a Post Discharge Report will be prepared and
submitted to the resource agencies, which will include all of the information collected by the City for the
project, including all preparation testing, volume of material placed at the site, transportation and
construction details, finalized project schedule, and monitoring results.
9. At the end of each year, an assessment of the effects (both beneficial and adverse) from
all beach fill projects conducted during the year per the COBFP will be presented to the Planning
Commission and other permitting agencies. This analysis will serve as the basis for any modifications
that can be made to optimize the program.
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