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HomeMy WebLinkAboutCD Tiscornia Marsh - East Canal Street____________________________________________________________________________________ FOR CITY CLERK ONLY Council Meeting: 10/01/2018 Disposition: Resolution 14592 Agenda Item No: 7.b Meeting Date: October 1, 2018 SAN RAFAEL CITY COUNCIL AGENDA REPORT Department: Community Development & Community Services Prepared by: Paul Jensen, Director Susan Andrade-Wax, Director City Manager Approval: ______________ TOPIC: TISCORNIA MARSH – EAST CANAL STREET SUBJECT: REQUEST FOR CITY ENDORSEMENT OF MEASURE AA APPLICATION FOR TISCORNIA MARSH HABITAT RESTORATION & SEA LEVEL RISE ADAPTATION PROJECT LOCATED NORTH OF EAST CANAL STREET. MARIN AUDUBON SOCIETY, APPLICANT AND PROPERTY OWNER; CITY OF SAN RAFAEL, PROPERTY OWNER. APNS 009-142-01 & 009-032-06. CASE NO. P18-015. RECOMMENDATION: Adopt a resolution authorizing the Mayor to sign a letter endorsing the Measure AA application by Marin Audubon Society BACKGROUND: Tiscornia Marsh & Environs The Tiscornia Marsh site covers 20 acres of tidal marsh and bay lands located north of East Canal Street. The property, which is owned by Marin Audubon Society (MAS), is bound to the: a) south by a shoreline levee, Schoen Park (small City-owned park/playground) and Canal Street; b) west by the Albert J Boro Community Center and Pickleweed Park; c) east by the San Rafael Bay; and d) north by the San Rafael Creek. The neighboring Albert J. Boro Community Center and Pickleweed Park cover approximately 15 acres, which includes an active community center, community park and an expansive playfield. Included in the City-owned holdings is an undeveloped, four-acre diked salt marsh, which is located north of the large playfield. Although subject to flooding in the winter months, this diked salt marsh is enclosed by a perimeter level and contains a well-used, informal pedestrian trail, which loops through the area. The Tiscornia Marsh and environs, or surrounding area, are presented in the attached Site Area Map (Attachment 1). The Tiscornia Marsh has experienced considerable erosion along its bayward edge, which is attributed to direct wave action from the Bay. Over the last 30 years, approximately three acres of the tidal marsh has been lost to this erosion, which has dramatically impacted habitat for species, such as the Ridgway’s SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 2 rail and salt marsh harvest mouse. Under current conditions, it is expected that this erosion will continue and will likely increase as sea level rises. The second critical issue for this general area is flooding. The adjacent Canal neighborhood is low-lying and is currently at risk of coastal flooding (as well as sea level rise). Measure AA In June 2016, the voters of the nine Bay Area counties approved Measure AA, a parcel tax measure. The tax measure is a $12.00 per year tax on every parcel in the Bay Area. The purpose of Measure AA is to generate $500 million over a 20-year period for critical tidal marsh restoration projects around the San Francisco Bay. The goal is to improve water quality, restore habitat for wildlife, protect communities from flooding, and increase shoreline public access. Applications for Measure AA funds for local restoration projects are initiated annually. The first call for applications was made last year. In response to the first call, the City of San Rafael applied for the Spinnaker Point diked marsh restoration project, but the City was not successful in securing the funds. A second call for applications has been made and must be filed on October 26, 2018. Project Description The Marin Audubon Society is applying for Measure AA funds to advance a conceptual design developed by Environmental Science Associates (ESA), their consultant team. Funded by a grant from the Marin Community Foundation, the consultant team initially developed and assessed several alternatives, which resulted in the selection of a preferred alternative: restoring a portion of the San Rafael shoreline that encompasses: a) the 20-acre Tiscornia Marsh; b) the City-owned, four-acre diked salt marsh immediately north of Pickleweed Park; and c) a portion of the levee and trail fronting Schoen Park and Pickleweed Park. The site setting is shown in Attachment 1. A conceptual design for the restoration was completed in July 2018 (Attachment 2), which was supported by funding from the Marin Community Foundation. The goals of the conceptual design phase are to: •Identify a nature-based approach for sea-level rise adaptation for Tiscornia Marsh and the Canal community that provide this segment of the San Rafael shoreline with an adaptation solution consistent with City-wide strategies to be developed over the long term; and •To raise awareness of climate change and sea-level rise issues within the adjacent Canal Community and other residents. The preferred conceptual design alternative involves: •Restoring 10 to 15 acres of marsh in front of the existing site. •Raising a 300-to-400 foot stretch of levee adjacent to Schoen Park, and constructing a low-sloping ecotone on the Bay side of the levee to mitigate future erosion hazards and provide a better range of upland habitat for species at the site. •Setting back the existing levee encircling the diked property north of Pickleweed Park and building a new setback levee adjacent to the northern edge of the park playfield that would connect with existing adjacent levees. As stated, the conceptual design would have the following beneficial impacts to the City: •To maximize flood protection for the Canal community and minimize impacts to the existing marsh, the levee in front of Schoen park would be raised and realigned, with an expected encroachment of 20 to 30 feet into Schoen Park. •Setting back the existing levee in the parcel north of Pickleweed Park would involve opening the City-owned parcel to tidal action (to restore the isolated marsh that exists there now) and would SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 3 lead to realignment of the existing public trail on a new setback levee running along the northern boundary of the soccer field at Pickleweed Park. •Where possible, the east-facing levee fronting Pickleweed Park could be improved by raising low areas and providing a flatter Bay-side ecotone slope where possible. •The project would expand public access by extending the Bay Trail on top of the levee and would support improvement of the children’s playground. Three aspects of the conceptual design would take place on City-owned property and require support from the City: 1.Encroachment of improved levee onto Schoen Park parcel: For the raised flood protection levee, the project design team assessed three footprints, ultimately choosing an alignment that would preserve the existing marsh and provide the most long-term flood protection to the community. However, this design would encroach onto City-owned property near Schoen Park by 20 to 30 feet (Attachment 4). The total fill footprint would be approximately 80 feet wide. The toe of the ecotone would meet the edge of the existing marsh, which is closest to the levee at the west end and further from the levee at the east end. Under this alternative, the expanded levee would likely require removal of three mature pine trees within the playground. This alternative would also necessitate removing or reconfiguring the playground to accommodate the fill area. 2.Restoration of City-owned diked pickleweed marsh: The preferred alternative includes construction of a new setback levee along the north side of the soccer field to maintain or improve existing levels of flood protection for the Al Boro Community Center, Pickleweed Park, and the Canal neighborhood from coastal flooding. After constructing the setback levee, the existing dike would be lowered and breached, effectively opening this segment to tidal action and restoring a large amount (3 to 4 acres) of tidal wetland. In addition to the expected habitat benefit, this alternative would allow for improvement of a greater distance of levee (1,000 feet from 400 feet) in front of the Canal Community. 3.Potential Improvements to East-Facing Levee along Pickleweed Park: The existing levee along the eastern edge of Pickleweed Park is located outside of the MAS property on Tiscornia Marsh. However, if the design aspects described above are adopted, it may be beneficial to improve portions of this levee, by raising the levee crest in low areas and creating a flatter, ecotone slope on the Bay side where space allows. In addition to the habitat and flood protection benefits that this action would provide, it would provide a clear benefit to the community by connecting the improved levee sections described above, creating a single, contiguous levee improvement from the northwestern edge of Pickleweed Park to the eastern edge of Schoen Park (approximately 1,600 feet of improved levee). The Marin Audubon Society is seeking a letter of Measure AA application support/endorsement from the City Council. The grant funding that Marin Audubon Society seeks is to take the conceptual design to the next design level and to complete the documents/studies needed to complete environmental (CEQA) review. ANALYSIS: The project presents an excellent opportunity to combine habitat restoration with sea level rise adaptation. Staff presents the following comments on the plan and Measure AA application: SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 4 Relationship with San Rafael General Plan 2020 The conceptual design plan has been reviewed for consistency with the pertinent policies and programs of the San Rafael General Plan 2020. The following are the key policies and programs: Parks/Open Space, Conservation and Water land use designations. The conceptual design, which proposes to enhance existing natural resources would be consistent with the purpose and allowed uses set forth in these land use designations. Policy CON-1, Protection of Natural Resources. As proposed, the conceptual design would promote the protection and enhancement of wetlands, diked bay lands and the public shoreline. Policy OS-3, Open Space Use. As proposed, the conceptual design would promote the protection and preservation of the natural value of open space and wildlife habitat areas, while continuing to provide recreational use. Policy OS-4, Access to Open Space. The conceptual design proposes to enhance and expand the public access along the shoreline. Specifically, the conceptual design would widen and raise the shoreline levee north of Canal Street, which would improve the public access path. Further, the conceptual plan proposes to install a new levee with a public pedestrian path around the northern and northeastern edge of the Pickleweed Park playfields. . Review by Park & Recreation Commission On September 20, 2018, the Park & Reaction Commission reviewed the conceptual design and the Measure AA application. The Commission voted (5-0-2) to recommend to the City Council support of the conceptual plan. The Commission recommended to MAS representatives to include additional amenities in and around Bay Trail, such as picnic benches, seating, and fitness stations. Relationship to BayWAVE Vulnerability Assessment In 2016, the County of Marin Department of Public Works completed the Marin Bay Waterfront Adaptation and Vulnerability Evaluation, which is known as BayWAVE. BayW AVE recognizes Southeast San Rafael as an area of critical resources, high density residences, and businesses that are at risk to sea level rise. At this time, an adaptation plan/program has not been developed for BayWAVE but is underway as the second phase of this assessment. However, the measures that are presented in the conceptual design (wetland restoration, retreat and levee reinforcement) are the type of adaptation measures envisioned by the BayWAVE effort. Climate Change – Sea Level Rise White Paper (2014) In January 2014, the City completed Climate Change – Sea Level Rise, San Rafael, CA – White Paper (white paper). This white paper was prepared as a first step in responding to the City’s Climate Change Action Plan (CCAP), which called for a need to address sea level rise. While the white paper (link) is not a technical study, it provides basic information on San Rafael’s low-lying areas that are vulnerable to projected sea level rise (presented in Appendix A of white paper). The Southeast San Rafael shoreline, which extends from the mouth of the San Rafael Creek to the Richmond-San Rafael Bridge was identified as a critical area of concern. The white paper also identifies opportunity areas for potential adaptation (presented in Appendix B of white paper). The Tiscornia Marsh is part of the outboard bay lands and mudflats identified as an opportunity area for employing measures such a “horizontal levee” or “living shoreline.” Further, the diked marshland north of the Albert J. Boro Community Center was identified as a potential opportunity area for “possible retreat and return to tidal marsh.” Lastly, the concept proposes to reinforce and raise a SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 5 portion of the shoreline levee. So, combining the City properties with the restoration of the contiguous Tiscornia Marsh is not only logical but wise for long-range adaptation planning. Relationship to Climate Change Action Plan The current San Rafael Climate Change Action Plan (CCAP) was adopted by the City in 2009. In 2011, the CCAP was incorporated into the General Plan 2020 resulting in the addition of a Sustainability Element. The CCAP is currently being updated by a working group composed of community members and sustainability advocates. Although this update is not yet completed, the working group has expressed the importance of ensuring that there is adaptation planning moving forward. The Tiscornia Marsh project would be consistent with this intent. Relationship to Resilient by Design In early 2017, the Resilient by Design – Bay Area Challenge (RbD) was launched as a collaborative research and design project to initiate innovative solutions to adapting to sea level rise for the Bay Area region. The “Central San Rafael Reach,” which encompasses the low-lying Southeast San Rafael area was chosen as one of the 10 study areas. The Bionic Team (team of technical consultants) was selected and assigned to study the Central San Rafael Reach. On August 20, 2018, the Bionic Team presented its RbD findings and recommendations to the City Council. The proposed Tiscorina Marsh restoration/adaptation project would reinforce the Bionic Team’s short- and mid-term recommendations for this portion of the study area. Specifically, the Bionic Team recommends: a) reinforcing and protecting the Albert J Boro Community Center site by raising the elevation of the center site; b) returning the diked marsh to tidal action; and c) creating a new levee along the northern border of the play fields, which would also serve as a new public shoreline path. Future Review Process & Actions If the Marin Audubon Society is successful in securing Measure AA funds, a more detailed plan for restoration and adaptation will be prepared, along with supportive studies for CEQA review. At that stage in the process, the project will require City review for land use and design approvals (Use and Environmental and Design Review Permits), as well as environmental clearance. ENVIRONMENTAL REVIEW: At this time, the project involves a request for Measure AA funds to complete a more detailed plan for restoration. The current request is akin to a planning or feasibility study, which qualifies for a statutory exemption under California Environmental Quality Act (CEQA) Guidelines Section 15262. If the Measure AA funds are granted, a more detailed plan for this restoration/adaptation project will be developed, which will be subject to environmental review. The City will serve as the lead agency in completing the environmental review. COMMUNITY OUTREACH: A courtesy notice of this meeting was mailed to surrounding property owners and to key stakeholders, including Shore-up Marin, Sustainable San Rafael, Sustainable Marin, County of Marin, and local environmental organizations. As part of this initial conceptual review process, the Marin Audubon Society, in coordination with Shore- up Marin, held a community meeting earlier this year at the Albert J. Boro Community Center. The community meeting was attended by approximately 75 Canal neighborhood residents and business owners. SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 6 FISCAL IMPACT: Support and endorsement of the Measure AA application would have no fiscal impact on the City of San Rafael. Should the Measure AA funds be awarded to this project, the next level of planning would be fully funded. The Marin Audubon Society would take the lead in seeking funds for ultimate permitting and construction. Although the preferred conceptual design plan includes restoration of City-owned land north of Pickleweed Park, it is not expected that City funds will be requested or needed to support permitting and construction. OPTIONS: The City Council has the following options to consider on this matter: 1.Adopt resolution as recommended by staff, which endorses the Measure AA application and includes the diked marsh owned by the City; 2.Adopt resolution with modifications. 3.Direct staff to return with more information. 4.Take no action. RECOMMENDED ACTION: Adopt resolution. ATTACHMENTS: 1.Resolution 2.Site Area Map 3.Preferred Alternative 4.FEMA 2016 Flood Insurance Map 5.Footprint and cross-section for improved levee in the vicinity of Schoen Park RESOLUTION NO. 14592 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN RAFAEL APPROVING AND AUTHORIZING THE MAYOR TO SIGN A LETTER OF ENDORSEMENT AND SUPPORT FOR THE MARIN AUDUBON SOCIETY’S MEASURE AA APPLICATION TO FUND THE TISCORNIA MARSH HABITAT RESTORATION & SEA LEVEL RISE ADAPTATION PROJECT (CANAL ST.) WHEREAS, in 2016, the voters of the nine Bay Area counties approved Measure AA, a parcel tax measure. The purpose of Measure AA is to generate $500 million over a 20-year period to fund critical marsh restoration projects around the San Francisco Bay; and WHEREAS, Marin Audubon Society owns the Tiscornia Marsh, which is a 20-acre tidal marsh and bay lands located north of East Canal Street, and east of the Albert J Boro Community Center and Pickleweed Park. Over the past 30 years, Tiscornia Marsh has experienced considerable erosion along the bayward edge; and WHEREAS, in 2017, Marin Audubon Society received a grant from Marin Community Foundation to develop a nature-based design concept to address sea level rise at the Tiscornia Marsh site; and WHEREAS, on behalf of Marin Audubon Society, Environmental Science Associates (ESA), environmental consultants developed and assessed several conceptual design alternatives. The preferred conceptual design presents a restoration of Tiscornia Marsh and raising the shoreline levee and path. Included in the preferred conceptual plan is the City-owned, four-acre diked salt marsh located north of the Pickelweed Park playfields; and WHEREAS, the preferred conceptual design plan would be; a) consistent with the policies and programs of the San Rafael General 2040 that support the protection and enhancement of open space; b) implement sea level rise adaptation supported by the City’s Climate Change Action Plan, Marin BayWAVE, and the City’s Sea Level Rise White Paper; and WHEREAS, on September 20, 2018, the Park & Recreation Commission reviewed the preferred conceptual design plan and Measure AA application. On a 5-0-2 vote, the Commission recommended to the City Council support for this conceptual design plan and application; and WHEREAS, at a regular City Council meeting held on October 1, 2018, the Tiscornia Marsh restoration and adaptation project and Measure AA application was presented, public comment was accepted, and the City Council discussed the report findings and recommendations. NOW, THEREFORE, BE IT RESOLVED that the City Council hereby authorizes the Mayor to sign, on behalf of the City Council, a letter of endorsement and support for Marin Audubon Society’s Measure AA application to the Measure AA application to fund the Tiscornia Marsh Habitat Restoration and Sea Level Rise Adaptation Project. I, Lindsay Lara, Clerk of the City of San Rafael, hereby certify that the foregoing Resolution was duly and regularly introduced and adopted at a regular meeting of the San Rafael City Council held on the 1st day of October 2018 by the following vote to wit: AYES: NOES: ABSENT: Councilmembers: Bushey, Colin, Gamblin, McCullough & Mayor Phillips Councilmembers: None Councilmembers: None _____________________________ LINDSAY LARA, City Clerk