HomeMy WebLinkAboutSS2 - Offers to Dedicate Public Access for Open Space Ocean & Bay0
•
ITEM ss2
TO: Members of the Newport Beach City Council
FROM: Dave Kiff, Assistant City Manager
SUBJECT: Newport Beach Area "Offers to Dedicate" (OTDs) Public Access To and
Along Recreational Open Space, Ocean and Bay
RECOMMENDED Provide direction to City Staff on 19 OTDs in Newport Beach.
ACTION:
BACKGROUND: The people of California approved the Coastal Conservation Initiative (Proposition
20) in 1972. In 1976, the State Legislature wrote and approved implementing
legislation to Proposition 20 that became the California_Coastal Act. The Act:
• Sets forth a Coastal Zone all along California's 1,100 miles of shoreline -
roughly a line between the shoreline and the first major inland public road;
• Established a commission of 12 members called the California Coastal
Commission;
• Directs the Commission to regulate residential, commercial, and recreational
activity within the Coastal Zone via Coastal Development Permits (CDPs) to
protect and enhance public access and services to coastal visitors;
• Authorizes the Commission to approve Local Coastal Programs (LCPs) which
allow local governments to act on behalf of the Commission using
Commission- approved policies when considering coastal development.
• Sets forth policies which:
• Protect and expand public access
• Protec4 enhance, and restore environmentally sensitive habitat areas (ESHAs)
• Protect the scenic beauty of coastlines and seascapes;
• Establish urban -rural boundaries that "avoid wasteful urban sprawl"
• Provide for the environmentally - sensitive expansion of ports and coastal -
dependent industrial uses.
An Emphasis on Access. The Act's overriding intent was to protect and expand
public access to California's coastal resources:
"Development shall not interfere with the public's right of access to the sea where
acquired through use or legislative authorization, including, but not limited to, the use of
dry sand and rocky coastal beaches to the first line of terrestrial vegetation. (Public
Resources Code §30211)
"(a) Public access from the nearest public roadway to the shoreline and along the coast
shall be provided in new development projects except where (1) it is inconsistent with
public safety,militanj security needs, or the protection of fragile coastal resources, (2)
adequate access exists nearby, or (3) agriculture would be adversely affected. Dedicated
accessenays shall not be required to be opened to public use until a public agency or
private association agrees to accept responsibility for maintenance and liability of the
accessevay" (Public Resources Code §30212).
The Coastal Commission views coastal access as an issue of physical supply. The •
Commission describes the supply of access as:
• Lateral access (access acros> a beach);
• Vertical access (access from the upland street or bluff to the beach);
• Trails above the coast (along the top of a bluff); or
• Upland trails that lead to the coast.
This is not to say that mandating or creating access is appropriate in every case.
The Coastal Commission writes that:
"a (region's) access program cannot view the issue of supply in isolation of a number of
other factors, including:
• the availability of transit .'o beaches,
• parking availability,
• providing other necessary support facilities, such as restroonu and picnic areas;
addressing user demands and conflicts;
• and maintenance of a dive rsity of coastal recreational experiences.
Impacts to any one of these variables may ultimately affect the availability and use of the
physical supply of access. For example, without adequate parking or alternative
transportation, users will have difficulty reaching an access site. Similarly, a lack of
adequate support facilities or a sire that is perceived as over - crowded may make a site less
desirable for some users."
The Commission and local governments mitigate impacts on the physical supply
of public access from new development by requiring the person requesting a •-
CDP to make an Offer- to- Dedi;ate (OTD) a public access easement. OTDs are
generally required for development between the first public road and the sea.
The Commission and LCPs generally require the use of OTDs as follows:
• Lateral easements compensate for the impacts to public use when development
encroaches onto a public beach or impacts existing public access;
• Vertical easements compensate when development would block access to the beach
from the upland road or bluff.
Generally, when the Commission or local government requires an OTD for
mitigation of a development pr aject, the condition language requires the
applicant to record the OTD pr or to the Commission's issuance of the CDP.
OTDs expire 21 years from the sate that the OTD is recorded.
The easements themselves do not ensure public access. To ensure public access,
a local government or an "acceptable" non - governmental organization (NGO)
must accept a recorded OTD ar d ultimately provide for and manage the
accessway. Most LCPs encourage, but do not require, local governments to
accept OTDs.
Newport Beach's OTDs. Since the Commission began requiring OTDs as a part
of the CDP process, apparently none of the 20 OTDs within the city limits have
been accepted by any public entity or NGO. Importantly:
• One OTD - a 25' lateral shoreline easement at 3709 Ocean Boulevard,
appears to have expired in November 2001. .
a
• Another OTD - a 5' walkway easement between the building and the
bulkhead line - expires on February 13, 2002.
•
Once expired, the access easement goes away as the land reverts to the private
property owner's control. Here are the OTDs in Newport Beach:
Accepting an OTD. To accept an OTD, a local government must adopt a
resolution which:
• Finds that acceptance of the OTD is exempt from the California
Environmental Quality Act (CEQA);
. • Accepts the specific easement using its recorded name; and
• Is recorded itself with the County Clerk- Recorder.
Newport Beach ^ .
"Offe-rs to Dedicate" Access
# Address
I Street Address (Neighborhood)
Type of OTD
Frontage
Council
District
Expires by
503
East Edgewater (Balboa Peninsula)
Lateral -- Area between
Bay
1
09/26!06
building and bulkhead
309
Palm Street (Balboa Peninsula)
Lateral -- Area between
Bay
1
09/26/06
building and bulkhead
2800
Lafayette Street (Cannery Area)
Lateral — 5' between building
Bay
1
02/13/02
and bulkhead'
701
Lido Park Drive (Cannery Area)
Lateral
Bay
1
03/21/09
Lateral -- 10' wide walkway
2901
West Coast Highway (Mariners Mile)
Bay
3
02/15106
along Bulkhead
2431
West Coast Highway (Mariners Mile)
10' Vertical to Bay
Bay
3
06122108
2431
West Coast Highway (Mariners Mile)
10' Lateral along bulkhead
Bay
3
06/22/08
2439 -2507
West Coast Highway (Mariners Mile)
Vertical -- 5' to Bay
Bay
3
01/04/06
2439 -2507
West Coast Highway (Mariners Mile)
Vertical -- 10' to Bay
Bay
3
01104/06
1353
Bayside Drive - "Parking Lot'
Vertical - 10' wide
Bay
6
01/04/06
1137
Bayside Drive - Cal Rec Building
Vertical - 10' wide
Bay
6
01/04/06
1801
Bayside Drive - Balboa Yacht Club
Vertical - 10' wide
Bay
6
01!04/06
2615
Cove Street (China Cove)
Lateral - seawall to mean
Bay
6
04/14104
high tide
Al"
a(
. ,,9h afe11 In
344 -352
Hazel Drive (CDM)
25' Trail in Buck Gully
Gully
6
08/16115
111
Shorecliff Road (CDM)
Lateral - bluff base to mean
Ocean
6
06/04/05
high tide line
107
Milford Drive (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
01/30/07
high tide line
4639
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
10/29/07
high tide line
4645
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
10/29/07
high tide line
4651
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
10127/07
high tide line
-- About to expire
Accepting an OTD. To accept an OTD, a local government must adopt a
resolution which:
• Finds that acceptance of the OTD is exempt from the California
Environmental Quality Act (CEQA);
. • Accepts the specific easement using its recorded name; and
• Is recorded itself with the County Clerk- Recorder.
Once accepted, the local government can decide whether, how, and when to •
provide any capital improvement or maintenance that assures open access along
the easement.
POLICY 1 - Should the City Council accept any or all of the 19 available OTDs?
QUESTIONS:
1A -- If not, what other agency or non -profit is likely to do so? Is it more
appropriate for a non -profit agency to accept OTDs than the city?
1B - If s_o how should the Cihj:
• Platt, budget for, and consi ruct a public improvement so that the OTD
becomes an accessible accessway?
• Maintain the accessway once it is open?
• Address the City's liability for the accessway?
. Advertise or "sign" the accessway for the public?
2 - Since the Coastal Commission requires Local Coastal Programs (LCPs) to
address public access and CITES within the LCP, what direction should the City
Council give the LCP Committee about OTDs?
ATTACHMENTS: Attachment A - How the OTD Process Works
Attachment B - Maps of the 19 OTDs (by address) in Newport Beach •
•
0
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How the OTD Process Works
Property Owner
Proposes Significant New
Development within the Coastal
Zone. Applies to Coastal
Commission (or, if within a
jurisdiction with LCP, applies to
Coastal Commission Staff
jurisdiction) for a Coastal
Studies the area to see if the new
Development Permit (CDP).
development would impact public
access to the beach. If so, staff
recommends that the
Commission condition the CDP
on the property owner's granting
and recording of an OTD.
Property Owner
Records OTD on property title
with County Clerk- Recorder.
OTD expires 21 years after date
of recordation.
Coastal Commission
Approves CDP. Executive
Director signs off on CDP after
ED sees the recorded OTD.
State Coastal Conservancy
Keeps a record of all OTDs and
encourages local governments
and NGOs to accept them
within the OTDs' terms.
Local Government or NGO
Examines OTDs within
jurisdiction. If appropriate,
accepts the OTD via resolution.
Records resolution with County
Recorder. If appropriate,
constructs and maintains
accessway on easement. If not
accepted within 21 -year term,
OTD goes away and property
owner maintains control over
parcel.
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Newport Beach Area
"Offers to Dedicate"
#Address
Street Address (Neighborhood)
Type of OTD
Frontage
Council
District
Expires by
503
East Edgewater (Balboa Peninsula)
Lateral -- Area between
Bay
1
09/26/06
building and bulkhead
309
Palm Street (Balboa Peninsula)
Lateral -- Area between
Bay
1
09/26/06
building and bulkhead
2800
Lafayette Street (Cannery Area)
Lateral -- 5' between building
Bay
1
02/13/02
and bulkhead"
701
Lido Park Drive (Cannery Area)
Lateral
Bay
1
030/09
2901
West Coast Highway (Mariners Mile)
Lateral -- 10' wide walkway
Bay
3
02/15/06
along Bulkhead
2431
West Coast Highway (Mariners Mile)
10' Vertical to Bay
Bay
3
06122/08
2431
West Coast Highway (Mariners Mile)
10' Lateral along bulkhead
Bay
3
06/22/08
2439 -2507
West Coast Highway (Mariners Mile)
Vertical -- 5'to Bay
Bay
3
01/04/06
2439 -2507
West Coast Highway (Mariners Mile)
Vertical — 10' to Bay
Bay
3
01/04106
1353
Bayside Drive - "Parking Lot"
Vertical - 10' wide
Bay
6
01/04106
1137
Bayside Drive - Cal Rec Building
Vertical - 10' wide
Bay
6
01104/06
1801
Bayside Drive - Balboa Yacht Club
Vertical - 10' wide
Bay
6
01/04106
2615
Cove Street (China Cove)
Lateral - seawall to mean
Bay
6
04/14/04
high fide
:')•L
Y. :f. qr: • -. •;d• •..l'.
_ �
.• l..rt
WI'Ny (�. it F'.
.:kfiK h {Uy�Jtq ii3i"�
344 -352
Hazel Drive (CDM)
25' Trail in Buck Gully
Gully
6
08/16/15
111
Shorecliff Road (CDM)
Lateral - bluff base to mean
Ocean
6
06/04/05
high fide line
107
Milford Drive (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
01/30/07
high fide line
4639
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
10/29/07
high tide line
4645
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
10129/07
high tide line
4651
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
10127/07
high fide line
— About to expire
d�
ITEMSS2
Supplemental Information
TO: Members of the Newport Beach City Council
FROM: Dave Kiff, Assistant City Manager
SUBJECT: Newport Beach Area "Offers to Dedicate" (OTDs) Public Access To and
Along Recreational Open Space, Ocean and Bay
SUPPLEMENTAL Four issues need to be addressed that were not covered in the Staff Report that
INFORMATION: the City Clerk distributed on Wednesday:
1 - 701 Lido Park Drive OTD. This 10' lateral access OTD all along the bayward
edge of the property to the bulkhead line expires on March 21, 2009. I have
updated the OTD Chart (Attachment C) and attached drawings of the
easement area (Attachment D).
2 - Maybe the City HAS guaranteed protection of the public accessways in
other manner. City staff and staff to the State Coastal Conservancy (SCC)
have had gentle disagreements in recent months over whether or not some of
the public accessways provided by the 20 Commission - recognized OTDs
actually have been protected for the public by the City when the City required
direct easements on the same property during parcel map approval.
Dick Hoffstadt of the Department of Public Works did a review of the 20
OTDs shown in my staff report and says that the City has required the
property owners to record easements on 5 of the 20 OTD areas - not including
one lateral accessway where the Commission suggested a vertical OTD. I
have incorporated Mr. Hoffstadt's findings on the updated OTD Chart
(Attachment C). SCC staff believe that the City's method of acceptance -
whereby we have recorded easements with parcel maps - may be:
"...satisfactory to SCC so long as the City's acceptance of your own OTD protected the
easement in perpetuity, and could not be rescinded by the City Council - as was the specific
concern with (2800 Lafayette). Since a parcel map could be rescinded in the future, that was
the issue w /that mechanism for securing the easement..."
The SCC is open to reviewing the City's easement recordation method and the
easement area protected in the coming months.
The Council may wish to consider asking the City Attorney and the SCC
representative in attendance at the Study Session (Ms. Carrie Bluth) more
about this important issue.
3 - Easements at 3709 Ocean and 2800 Lafayette. The SCC reports that it has
accepted the OTDs at 3709 Ocean and 2800 Lafayette already (you will recall
that the Ocean OTD would, have expired in November 2001 and the Lafayette
OTD was set to expire next month). The Conservancy did so because they
believed that the City wou.:d not act in time to secure the easements. The
Conservancy wishes to transfer these easements to the City soon.
4 - Aerial Photos. Scott Watson of our MIS Department has done an admirable
job in using the City's new digitized aerial photography system to show the
OTD and easement areas..[ will have slides of each easement area for the
Study Session based on Scott's work.
ATTACHMENTS: Attachment C - Revised OTD Chart
Attachment D - Drawings of :701 Lido Park OTD
Please note that Attachments A and B are in the original staff report.
Attachment C
r® Beach
r r Dedicate"
Access
StreetAddress (tyeighborhood)
I
Type of OTD Frontage
Council Already a Public
Expires by
LL. L
District Access Easement?
503
East Edgewater (Balboa Peninsula)
Lateral Area between
Bay
1 PW says Yes
09/26106
building g and bulkhead
309
Palm Street (Balboa Peninsula)
Lateral -- Area between
Bay
1
No
09!26/06
building and bulkhead
2800
Lafayette Street (Cannery Area)
Lateral -- 5' between building
Bay
1
PW says Yes
02/13/02
and bulkhead
SCC accepted OTD
701
Lido Park Ddve (Cannery Area)
Lateral - 10' wide along W
Bay
1
No
03121/09
Lido Channel
2901
West Coast Highway (Mariners Mile)
Lateral — 10' wide walkway
Bay
3
PW says Yes
02/15/06
along Bulkhead
2431
West Coast Highway (Mariners Mile)
10' Vertical to Bay
Bay
3
PW says Yes
06122/08
2431
West Coast Highway (Mariners Mile)
10' Lateral along bulkhead
Bay
3
PW says Yes
06122/08
2439 -2507
West Coast Highway (Mariners Mile)
Vertical -- 5' to Bay
Bay
3
No
01/04/06
2439 -2507
West Coast Highway (Mariners Mile)
Vertical -- 10' to Bay
Bay
3
No
01/04/06
1353
Bayside Drive - "Parking Lot"
Vertical - 10' wide
Bay
6
No
01/04/06
1137
Bayside Drive - Cal Rec Building
Vertical - 10' wide
Bay
6
City easement different
01/04/06
- provides lateral access
1801
Bayside Drive - Balboa Yacht Club
Vertical - 10' wide
Bay
6
No
01/04/06
2615
Cove Street (China Cave)
Lateral - seawall to mean
Bay
6
No
04/14/04
high tide
3709
Ocean Boulevard (CDM)
Lateral -- 25' inland from
Ocean
6
SCC accepted OTD
11/01/01
"daily high water line"
344 -352
Hazel Drive (CDM)
25' Trail in Buck Gully
Gully
6
No
08116/15
111
Shorecliff Road (CDM)
Lateral - bluff base to mean
Ocean
6
No
06104/05
high tide line
107
Milford Drive (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
No
01/30/07
high tide line
4639
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
No
10129/07
high t
ti line
4645
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
No
10/29/07
high tide line
4651
Brighton Road (Cameo Shores)
Lateral - bluff base to mean
Ocean
6
No
10/27/07
high tide line
COAS ?AL COMM; 4159045235; JAN -16.02 11:40AM; PAGE 26/35
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