A governmental entity with beachfront property within its borders must adopt a local coastal program. A local coastal program or any amendments thereto are subject to approval by the California Coastal Commission (the commission). Public Resources Code section 21080.5, subdivision (a), which is part of the California Environmental Quality Act (Pub. Resources Code, § 21000 et seq.), permits the Secretary of the Resources Agency (the secretary) to certify an administrative agency's regulatory program. The secretary's certification extends to the preparation of written documentation supporting an environmental decision. Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3), and California Code of Regulations, title 14, section 15252, subdivision (a) of the Guidelines for Implementation of the California Environmental Quality Act (Guidelines) specify certain procedural substantive requirements for a certified program's environmental documentation with reference to a local coastal program as well as other planning decisions. Once the secretary certifies a local coastal program, written documentation supporting the commission's approval may be used in lieu of an environmental impact report. The secretary has certified the commission's review process for approving a local coastal program amendment.
The only undeveloped beachfront property (the subject property) in the City of Malibu (the city) on Broad Beach is owned by Malibu Bay Company
In response, plaintiffs, Deane Earl Ross and the Ross Family Trust, filed a mandate petition challenging the commission's certification, with the aforementioned view corridor modification, of the city's local coastal program amendment. The trial court granted plaintiffs' mandate petition, in part, finding noncompliance with the procedural and substantive requirements imposed for environmental impact reports by the California Environmental Quality Act. The commission, the city and the developer appeal from that portion of the judgment partially granting plaintiffs' mandate petition. As to that portion of the judgment denying their mandate petition, plaintiffs have appealed.
In the published portion of this opinion, we conclude the commission reasonably resolved conflicting city development standards concerning buffers in environmentally sensitive habitat areas. Further, largely applying Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3), and Guidelines section 15252, we resolve questions about the adequacy of the commission's review, approval and modification of the amendment to the city's local coastal program. We conclude the commission complied with Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3), and Guidelines section 15252, subdivision (a). Thus, the mandate petition should have been denied in its entirety.
The administrative record reveals that the developer owns a 2.08-acre beachfront parcel in the city, located at the eastern end of Broad Beach between Pacific Coast Highway and the ocean. The subject property is approximately 200 feet wide at its northern boundary along Pacific Coast Highway and narrows to approximately 186 feet at its southern border along the beach. The property is the last undeveloped parcel on Broad Beach in a developed residential area. There are beachfront residences on both sides of Broad Beach Road. The subject property is undeveloped except for a narrow access driveway, landscaping, and gated fencing at the northern end of the property. The subject property is zoned for single-family medium density (one unit per 0.25 acre) in the city's local coastal program. The "Local
The subject property is part of a larger coastal dune ecosystem at Broad Beach. The coastal dune community fronting homes along Broad Beach is part of the southern foredunes, which are considered environmentally sensitive habitat areas in the city's local coastal program. (We will later clarify the concept of an environmentally sensitive habitat area.) Dunes range from lightly to heavily impacted with non-native plants between the beach and most of the homes. The subject property has been disturbed over time: beginning with the construction of Pacific Coast Highway; its use as a boat storage and launching site; and then its use as a construction staging ground.
On July 29, 2005, the developer applied for issuance of a coastal development permit, tentative parcel map, general plan amendment, and zoning text amendment. The developer sought to subdivide the 2.08-acre, 200-foot-wide beachfront property into four separate lots. Each proposed lot was more than 0.50 acre with a lot width ranging from 48 to 50 feet. The four proposed lots did not meet the local coastal program's minimum lot width requirement of 80 feet for the single-family medium-density zoning district. The developer also requested the Local Implementation Plan portion of the local coastal program be amended so as to create a new zoning district allowing for a lot width of 45 feet.
The city staff reviewed the developer's application and prepared a draft mitigated negative declaration to satisfy California Environmental Quality Act requirements. On June 8, 2006, the city published a notice of intent to adopt the draft mitigated negative declaration for the project. Plaintiffs, who own a parcel next to the subject property, and other residents objected to the project and the draft mitigated negative declaration. Plaintiffs argued that the proposed amendment to the local coastal program would constitute illegal "spot" zoning. They also argued that the project violated the local coastal program and land use plan regulations relating to the protection of environmentally sensitive habitat areas.
On September 5, 2006, the city planning commission conditionally approved a coastal development permit, proposed tentative parcel map and draft mitigated negative declaration. The planning commission recommended the
The city staff analyzed the single-family medium-density zoned beachfront properties to determine if the new lot width standard would allow for an increase in development density. The city staff found of the 733 single-family medium-density zoned beachfront parcels within its boundaries, the majority were nonconforming, with an average lot width of 50 feet. At Broad Beach, the average lot width was only 48 feet.
The city staff found only five parcels meeting both the lot size and width minimum requirement which could be subdivided under the new proposed lot width standard; one of which was the subject property. The other four parcels were already developed with single-family homes. Two of the four developed parcels were created by lot mergers or ties of three and four lots and could not be further subdivided under the local coastal program. The city staff determined only two developed parcels could potentially use the draft local coastal program amendment to create an additional lot each, if demolition of the existing homes and subdivision were requested. To subdivide, the owners of these two developed parcels would be required to apply for a coastal development permit and the city would need to conduct environmental review under the California Environmental Quality Act on those lots. The city staff determined the draft local coastal program amendment would have negligible direct and cumulative impacts on aesthetics, biological resources and land use and planning.
As part of the draft mitigated negative declaration, the city staff evaluated potential impacts to environmentally sensitive habitat areas. Dune environmentally sensitive habitat areas are not designated on the land use plan environmentally sensitive habitat areas overlay map. Thus, the city staff is required to conduct a site-specific biological study to determine the extent of dune environmentally sensitive habitat areas and their buffers on the property pursuant to Local Implementation Plan sections 4.3.A and 4.6.1.G. The developer submitted a dune environmentally sensitive habitat areas restoration plan for the subject property by its biologist, Edith Read. The restoration plan would restore the dune features to within 20 feet of the stringline. The plan recommended a 10-foot seaward buffer from the stringline. The restoration plan specified removal of nonnative plants; planting of native dune
In response to plaintiffs' contention the least damaging alternative would be to allow the site to be developed under existing zoning regulations that would allow for two (rather than four) buildable lots, the city staff conducted an alternatives analysis. The city staff compared view corridors and development footprints for one, two, three and four lots on the subject property. The city staff concluded that four lots resulted in the greatest viewing area, the smallest development footprint and the least environmentally damaging option.
On December 8, 2006, plaintiffs submitted additional comments and documents to the city including a report prepared by Rincon Consultants on the biological constraints to development of the subject property. The Rincon Consultants report found the property contained environmentally sensitive habitat areas. The Rincon Consultants report concluded development could adversely affect habitat for certain rare, threatened and endangered species, including the western snowy plover, a bird, and the globose dune beetle.
On January 22, 2007, the city council adopted an ordinance approving the local coastal program amendment conditioned on the commission's certification. The city council also adopted a resolution denying plaintiffs' appeal; adopted a revised mitigated negative declaration; and conditionally approved the tentative parcel map and the coastal development permit for the subject property. On March 6, 2007, the city submitted the proposed local coastal program amendment and related documents to the commission for certification of the local coastal program amendment.
On May 29, 2008, the commission staff issued a report. The report recommended the commission approve the city's proposed local coastal program amendment with suggested modifications. The report also recommended that the commission adopt a modified version of the local coastal program amendment which would add a new "Malibu Bay Company Overlay District" to the Local Implementation Plan. The new overlay district would include conditions for view corridors, dune restoration, rear setback and an open space conservation easement.
The commission staff report discussed the city staff's review of the 733 single-family medium-density zoned beachfront lots. The commission staff
The staff report analyzed the impact of the proposed development on the ocean views from the public roadways. The commission staff report noted, "[The local coastal program] view corridor provision requires that buildings occupy a maximum of 80 percent of a site's lineal frontage, while the remaining 20 percent of the lineal frontage is maintained as a contiguous view corridor, except on lots 50 feet or less in width, in which case the view corridor may be split into two 10 percent view corridors on either side of the residence." Thus, reducing the minimum lot width standard proposed in the city's local coastal program amendment would increase the number of smaller-sized parcels which in turn would create smaller view corridors. The commission staff report proposed that "[n]o less than 20 percent of the linear frontage of each created parcel of the subdivision" be maintained as one contiguous public view corridor. In addition, the commission staff report proposed mitigation measures including removal of fencing that is not visually permeable; vegetation over two feet in height; and existing obstructions between Pacific Coast Highway and the onsite access road.
The commission staff report also analyzed impacts to biological resources on the subject property, including dune environmentally sensitive habitat areas. The commission staff report reviewed various biological reports of the onsite dune community submitted by the developer's consultants, surveys of
The commission staff report also reviewed the biologists' opinions on the necessity of a buffer between the environmentally sensitive habitat areas and any development on the subject property. In an April 10, 2008 letter to the commission, the city's biologist, Dave Crawford, concurred with the conclusions of the dune habitat assessment by one of the developer's biologists. Mr. Crawford stated that he and the city's environmental review board have established a standard buffer policy for dune habitat on beachfront property. The standard buffer policy requires development go no further seaward than the stringline in conjunction with a dune restoration plan. This was because the remnant dunes in Malibu are highly disturbed and have limited function and value. This policy has been in effect for numerous projects along Broad Beach Road. According to Mr. Crawford, "The majority of the dunes remaining in Malibu support predominately non-native and invasive ice plant, that not only out-competes (and often eliminates) the native dune vegetation, but over-stabilizes the dunes, thus resulting in an unnatural condition that prevents the natural `movement' of the dunes and reduces their value as native habitat." By allowing development consistent with the stringline standard, Mr. Crawford explained the city can require projects to incorporate dune restoration plans that over time will improve the remnant dune biological functions and values.
Dr. Engel disagreed with the opinion of the developer's consultants and Mr. Crawford that no buffer was necessary inland from the stringline. She noted: "Generally, the [c]ommission protects environmentally sensitive habitat, such as southern foredunes, with buffers or set-backs. Set-backs are necessary to insure that development will not significantly degrade the [environmentally sensitive habitat areas]." Dr. Engel recommended a 25-foot
The commission staff report rejected the no buffer recommendation made by the city's biologist, Mr. Crawford, and the developer's consultants. But, the commission staff report also did not accept Dr. Engel's 25-foot buffer recommendation. The commission staff report found that a five-foot buffer from designated environmentally sensitive habitat areas "would be both equitable and protective of the biological integrity of the on site dune [environmentally sensitive habitat areas]" especially after implementation of the dune restoration plan. The commission staff report explained: "Given the proximity of dune [environmentally sensitive habitat areas] on the property and assuming a [25-foot] buffer is applied, it is possible to site future development for four separate parcels without building in [environmentally sensitive habitat areas] or [the environmentally sensitive habitat areas] buffer. This is consistent with the land division and [environmentally sensitive habitat area] policies of the Malibu [land use plan]. However, because dune [environmentally sensitive habitat areas are] situated essentially up to the `stringline' across about three quarters of the property, a [25-foot] buffer would significantly reduce the amount of buildable area for most of the newly created parcels. The [c]ommission recognizes that the subdivision will accommodate infill development and it is important to consider what would be both equitable and most protective of coastal resources. If [environmentally sensitive habitat areas] and a [25-foot environmentally sensitive habitat areas] buffer were strictly delineated for siting future development of newly created parcels, the result would be much smaller available development area than is allowed by the existing development pattern along this densely developed stretch of Broad Beach. However, providing no buffer in exchange for restoration (as was determined sufficient by the [c]ity and the applicant's biological consultants) is inconsistent with [land use plan] section 3.23, which requires buffer areas around [environmentally sensitive habitat areas] to serve as transitional habitat and provide distance and physical barriers to human intrusion in order to preserve the biological integrity of the [environmentally sensitive habitat areas]."
The commission staff report also analyzed view corridor and development alternatives with 50-, 100- and 200-foot lot widths. The commission staff report stated: "Future subdivision of the subject property as a result of the
On May 29, 2008, the commission issued a public notice of a June 11, 2008 public hearing in Santa Rosa to all relevant parties. The public notice stated that commission staff recommended the approval of the city's local coastal program amendment with modifications. The staff report and notice were posted on the commission's Web site the same day. Plaintiffs obtained a copy of the staff report from the commission's Web site on May 30, 2008. On June 6, 2008, plaintiffs submitted written comments on the local coastal program amendment.
On June 9, 2008, the commission staff issued an addendum to the May 29, 2008 staff report. The addendum made minor changes to the prior commission staff report and responded to public comments including those of plaintiffs. The addendum noted, "The proposed [45-foot] width will result in lots that are substantially similar to the existing pattern of development along Broad Beach." Although the 45-foot width standard would apply to all beachfront parcels zoned single-family medium density, the subject property was the only vacant site that would be affected by the proposed modification of the lot width standard. Two other properties could be affected by the new 45-foot width standard only if the existing development were to be demolished. The June 9, 2008 addendum further stated, "The overlay district for [the subject property] reflects the landowner's agreement to incorporate more strict development standards regarding view corridors, habitat restoration and open space easements than required by the Malibu [local coastal program]." The addendum responded to comments relating to the environmentally
The addendum also addressed comments regarding view resources by recommending the revision of the city's Local Implementation Plan section 6.5. The commission staff recommended amending the city's Local Implementation Plan section 6.5 which is labeled, "Development Standards" to include a new provision mandating broader view corridors. The proposed Local Implementation Plan section 6.5.E.6 provides: "New subdivisions of beachfront residential parcels, where structures cannot be sited or designed below road grade, shall ensure no less than 20% of the lineal frontage of each newly created parcel shall be maintained as one contiguous public view corridor (even if the resultant lots are 50 feet or less in width). The view corridors of the newly created parcels shall be contiguous to the maximum extent feasible in order to minimize impacts to public views of the ocean. This requirement shall be a condition of permit approval for the subdivision of a beachfront property." This proposed revision guaranteed 20 percent of the lineal frontage of each newly created parcel would be maintained as one contiguous public view corridor even if the resultant lots were 50 feet or less in width.
The addendum also attached written disclosures of ex parte communications received by certain members of the commission; a June 9, 2008 report from one of the developer's consultants entitled "Second Botanical Evaluation of Primrose/Lupine Area"; and a June 9, 2008 supplemental memorandum from Dr. Engel. In her supplemental memorandum, Dr. Engel clarified her dune landscape terminology and the definition of environmentally sensitive habitat areas in the Coastal Act. She also explained her reasons for including the primrose/lupine area as a component of overall dune environmentally sensitive habitat areas. Dr. Engel again recommended a 25-foot buffer be imposed. Dr. Engel agreed that the developer had proposed to restore the disturbed southern foredune environmentally sensitive habitat areas and had incorporated a number of best management practices into its design. She agreed these measures would help maintain the ecological functions of the southern foredune community. But Dr. Engel concluded these measures did not vitiate the need to set back development from the very edge of the environmentally sensitive habitat areas.
At the June 11, 2008 meeting, the commission considered the city's proposed local coastal program amendment. The commission heard testimony
During the commission's deliberations, Commissioner Ben Hueso expressed concern that the local coastal program amendment might cause a change in residential density that had not been subject to environmental review. Mr. Douglas replied that there were only two other properties that might be affected; thus, the commission staff did not think the local coastal program amendment would increase density, either individually or cumulatively within the city. As to the buffer for environmentally sensitive habitat areas, Commissioner Mary Shallenberger questioned what fair and equitable meant in the context of the Coastal Act. Commissioner Shallenberger stated that in the future when there is a single lot left in any local government jurisdiction, the commission might not be able to utilize the best science as recommended by its biologist. Instead, she indicated the commission may have to compromise and impose conditions consistent with existing permits. In response, Mr. Douglas stated that the issue of fairness and equity is always considered by the commission and is applied from time to time where other properties or areas are similarly situated. Mr. Douglas explained the commission staff's rationale: "[I]n this case, when you look at the other approvals in the City of Malibu, that there were no buffer setbacks required before, we didn't [appeal] those approvals in the past, and therefore this is a case of first impression. So, we felt that treating this party, in as much similarly to others situated in the same way made sense, but the additional factor was that the restoration that we are getting here was of such importance that we felt both the equity issues, in terms of how others had been treated—and this is the first time that we are requiring this kind of a buffer—and the restoration component warranted the requirement of a 5-foot buffer to avoid a direct impact on the [environmentally sensitive habitat areas]."
At the conclusion of the June 11, 2008 hearing, the commission adopted the staff report. The commission conditionally certified the local coastal program amendment with the staff's recommended modifications. On November 10, 2008, the city approved an ordinance adopting the local coastal program amendment with the commission's proposed modifications. On January 7, 2009, the local coastal program amendment became effective when the commission concurred with Mr. Douglas's determination that the city had accepted the modifications proposed on June 11, 2008.
On February 6, 2009, plaintiffs filed a verified mandate petition challenging the commission's approval of the local coastal program amendment asserting claims based on noncompliance with the Coastal Act and the California Environmental Quality Act. Plaintiffs alleged three causes of action: the commission violated numerous land use plan policies of the city; the commission's certification of the local coastal program amendment violated the California Environmental Quality Act; and the city's adoption of the local coastal program amendment was contrary to the land use plan and constituted impermissible "spot" zoning.
On February 2, 2010, the trial court issued a decision granting the mandate petition in part. As to plaintiffs' challenge of the appropriate buffer for environmentally sensitive habitat areas, the trial court found the commission could use common sense and principles of equity to consider the appropriate buffer provided its conclusion was supported by scientific evidence. The trial court found Mr. Crawford's no buffer conclusion supported the commission's imposition of a five-foot buffer if the city had consulted with the Department of Fish and Game as required under Local Implementation Plan section 4.6.1.G. Because there was no evidence that the Department of Fish and Game was consulted, the commission staff report did not constitute substantial evidence to support the five-foot buffer requirement. As will be noted, the trial court, in response to the developer's new trial motion, reversed the finding that there was insufficient "consultation" with the Department of Fish and Game.
The trial court rejected plaintiffs' argument that the local coastal program amendment violated the city's "Land Use Plan Policy" 5.35 because the 45-foot lot width of the proposed lots was less than the 50-foot average parcel width for the city's 733 single-family medium-density zoned beachfront lots and the 48-foot average of Broad Beach properties. The city's Land Use Plan Policy 5.35 requires, "The minimum lot size in all land use designations shall not allow land divisions, except mergers and lot line adjustments, where the created parcels would be smaller than the average size of surrounding parcels." The trial court found the local coastal program amendment would result in four lots, each greater than 0.50 acre on the subject property, while the parcels on each side of the property were 0.25 and
The trial court also rejected plaintiffs' contention that the local coastal program amendment violated the city's Land Use Plan Policy 6.18's requirement of "one contiguous view corridor" of at least 40 feet (20 percent of the property's lineal frontage). The trial court found the city's Land Use Plan Policy 6.18 requires that 20 percent of the lineal frontage for a particular lot be available for a contiguous view corridor, not 20 percent of the undivided parcel. Thus, once the property is divided into four lots, the developer could have provided for three 10-foot corridors between four houses with 2 five-foot perimeter corridors and still complied with the city's Land Use Plan Policy 6.18. The trial court ruled substantial evidence supported the commission's conclusion that two 20-foot view corridors met the requirements of Land Use Plan Policies 6.5 and 6.18.
The trial court ruled the commission failed to comply with various provisions of the California Environmental Quality Act. The commission argued it was a responsible, and not the lead, agency under the California Environmental Quality Act. The trial court rejected this contention. The trial court ruled the commission was the lead agency. The trial court found that under Public Resources Code section 30514, the commission must certify the proposed local coastal program amendment. Absent commission certification, the local coastal program amendment could not take effect. And according to the trial court, the commission does not share approval authority with the city. Hence, in the trial court's view, the commission is a lead, not a responsible, agency.
The trial court found the city and the commission were required to, but did not, consider the cumulative impacts of the local coastal program amendment. The trial court agreed the commission was not required to conduct cumulative impact analysis for two developed lots that were previously tied. This was because it was unlikely that the two parcels would be untied and subdivided in the future given the local coastal program policies that restricted potential development of these tied lots. However, the trial court ruled the city and the commission should have performed an environmental impact analysis on the two developed lots that could be feasibly subdivided in the future. The trial court ruled, "It may be that the [c]ity biologist would apply the same [environmentally sensitive habitat areas] analysis to these two lots—that no dune [environmentally sensitive habitat areas] protection is required beyond the stringline—the court cannot assume that to be true. [Dr.] Engel also may have a different opinion. Moreover, the report fails as an
Further, the trial court ruled the commission staff report failed as an informational document due to inadequate analysis of the alternatives of a wider view corridor and fewer lots in the subdivision of the subject property. The trial court noted the city considered alternatives by comparing view corridors and development envelopes for one, two, three and four lots on the subject property and concluded, "[F]our lots resulted in the smallest development footprint and greatest viewing area and was the least environmentally damaging alternative." But the commission staff report did not expressly state it relied on the city's alternatives analysis. The trial court also found: "[T]here is no analysis of the view corridors for the other two lots affected by the [local coastal program] amendment, and whether different development envelopes would mitigate view impacts from those lots. The [c]ommission did impose [Local Implementation Plan] [s]ection 6.5(E), which would prevent a reduction in view corridor for those two lots, but provides no analysis of the view corridors and development envelopes [for] those two lots."
The trial court also agreed with plaintiffs' argument that the commission did not provide adequate notice and time for public review of the staff report. The commission argued it complied with its regulations by mailing notice of the meeting and posting the staff report on May 29, 2008, 13 days prior to the June 11, 2008 hearing. The 13-day notice of the hearing and circulation of the staff report by the commission exceeded the regulations' requirement of a minimum of seven days for the report and 10 days for the hearing notice. But, the trial court ruled the commission's regulations failed to comply with the 30-day public review period required under Public Resources Code section 21091, subdivision (a). The trial court also found that the 13-day review period was unreasonable because the issues concerned a zoning amendment that affected more than the subject property, they were biological in nature, and the commission released the staff report addendum just two days before the hearing. The trial court further held plaintiffs did not have to show prejudice: "Although lack of adequate notice usually requires prejudice in other contexts, and there is no evidence that [plaintiffs] or any other member of the public was prejudiced by the actual notice and period for comment on the staff report, full compliance with the letter of [the California Environmental Quality Act] is essential to its public purpose and a failure to provide the full [30-day] period by itself warrants setting aside the [commission's] decision."
An "aggrieved person," which includes anyone who appears at a public hearing of the commission in connection with the decision or action appealed, may file a mandate petition seeking judicial review under Code of Civil Procedure section 1094.5. (Pub. Resources Code, § 30801; see La Costa Beach Homeowners' Assn. v. California Coastal Com. (2002) 101 Cal.App.4th 804, 814 [124 Cal.Rptr.2d 618].) The trial court's responsibilities are as follows: "In reviewing an agency's decision under Code of Civil Procedure section 1094.5, the trial court determines whether (1) the agency proceeded without, or in excess of, jurisdiction; (2) there was a fair hearing; and (3) the agency abused its discretion." (McAllister v. California Coastal Com. (2008) 169 Cal.App.4th 912, 921 [87 Cal.Rptr.3d 365]; see La Costa Beach Homeowners' Assn. v. California Coastal Com., supra, 101 Cal.App.4th at p. 814; Code Civ. Proc., § 1094.5 subd. (b).) Code of Civil Procedure section 1094.5, subdivision (b) defines any abuse of discretion thusly, "Abuse of discretion is established if the respondent has not proceeded in the manner required by law, the order or decision is not supported by the findings, or the findings are not supported by the evidence." (See McAllister v. California Coastal Com., supra, 169 Cal.App.4th at p. 921; La Costa Beach Homeowners' Assn. v. California Coastal Com., supra, 101 Cal.App.4th at p. 814.)
The agency's findings and actions are presumed to be supported by substantial evidence. (McAllister v. California Coastal Com., supra, 169 Cal.App.4th at p. 921; Desmond v. County of Contra Costa (1993) 21 Cal.App.4th 330, 335-336 [25 Cal.Rptr.2d 842].) A person challenging an administrative determination bears the burden of showing the agency's findings are not supported by substantial evidence. (Desmond, at p. 336; Al Larson Boat Shop, Inc. v. Board of Harbor Commissioners (1993) 18 Cal.App.4th 729, 740 [22 Cal.Rptr.2d 618] ["plaintiff in a [California Environmental Quality Act] action has the burden of proving otherwise"].) When reviewing the agency's determination, the court examines the whole record and considers all relevant evidence, including that which detracts from the administrative decision. (McAllister v. California Coastal Com., supra,
Plaintiffs challenge the trial court's ruling that the commission complied with the various Coastal Act provisions. They argue the local coastal program amendment does not conform to the policies of the certified land use plan regarding the protection of dune environmentally sensitive habitat areas and the minimum lot size requirement.
Public Resources Code section 30108.6 identifies the components of a local coastal program: "`Local coastal program' means a local government's (a) land use plans, (b) zoning ordinances, (c) zoning district maps, and (d) within sensitive coastal resources areas, other implementing actions, which, when taken together, meet the requirements of, and implement the provisions and policies of, this division at the local level." (See Yost v. Thomas, supra, 36 Cal.3d at p. 566.) The term "land use plan[]" in Public Resources Code section 30108.6 is defined in Public Resources Code section 30108.5 as follows, "`Land use plan' means the relevant portions of a local
The city did not implement a local coastal program after its incorporation. Thus, the Legislature enacted Public Resources Code section 30166.5
The city's Local Implementation Plan contains specific standards for various types of environmentally sensitive habitat areas. Section 4.6.1 of the city's Local Implementation Plan
Plaintiffs argue the five-foot buffer, as certified by the commission on November 10, 2008, fails to conform to the city's Land Use Plan Policy 3.23. Plaintiffs assert the city's Land Use Plan Policy 3.23 requirement must be imposed for all environmentally sensitive habitat areas. The commission, the city and the developer argue there is no requirement of a 100-foot buffer for dune environmentally sensitive habitat areas because of the provisions of Local Implementation Plan section 4.6.1.G. And they argue there is substantial evidence to support the five-foot buffer requirement. We agree with the commission, the city and the developer.
Plaintiffs argue we should apply the 100-foot buffer in the city's Land Use Plan Policy 3.23 to all environmentally sensitive habitat areas. This application, plaintiffs argue, must be made without regard to those areas specified in the city's Local Implementation Plan section 4.6.1. Such an interpretation would render the city's Local Implementation Plan section 4.6.1 superfluous and inoperable. Moreover, the city's Local Implementation Plan section 4.6.1, with its differing treatment of various environmental conditions, is more specific than the broad 100-foot requirement in the city's Land Use Plan Policy 3.23. Further, in the case of environmentally sensitive habitat areas other than stream/riparian, wetlands, woodland, coastal bluff, coastal sage scrub, and chaparral environments, Local Implementation Plan section 4.6.1.G provides a specified case-by-case method for determining the appropriate buffer.
Finally, the commission has interpreted the city's Land Use Plan Policy 3.23 in conjunction with Local Implementation Plan section 4.6.1. The commission's interpretation of the city's Land Use Plan Policy 3.23 is entitled to deference. As we have previously explained, the commission drafted and simultaneously certified the city's land use plan and Local Implementation Plan. As noted, we grant broad deference to the commission's interpretation of the local coastal program it prepared. (Albertstone v. California Coastal Com. (2008) 169 Cal.App.4th 859, 864 [86 Cal.Rptr.3d 883]; Trancas Property Owners Assn. v. City of Malibu (1998) 61 Cal.App.4th 1058, 1061-1062 [72 Cal.Rptr.2d 131].)
The commission challenges the ruling that it failed to comply with specified provisions of the California Environmental Quality Act. The city and the developers join in the commission's arguments. Plaintiffs contest the trial court's ruling on one of their claims under the California Environmental Quality Act.
The secretary approved the commission's certified regulatory program, including the statutes and regulations relating to the preparation, approval and certification of the local coastal programs on May 22, 1979. The secretary's certification under Public Resources Code section 21080.5 included the commission's approval of local coastal program amendments. (San Mateo County Coastal Landowners' Assn. v. County of San Mateo (1995) 38 Cal.App.4th 523, 552, fn. 18 [45 Cal.Rptr.2d 117].) The secretary's certification of a regulatory program can be challenged in court subject to a 30-day statute of limitations. (Pub. Resources Code, § 21080.5, subd. (h); Laupheimer v. State of California (1988) 200 Cal.App.3d 440, 459 [246 Cal.Rptr. 82].) Failure to do so renders the commission's certification free from subsequent collateral attack. (Pub. Resources Code, § 21080.5, subd. (h); Elk County Water Dist. v. Department of Forestry & Fire Protection (1997) 53 Cal.App.4th 1, 10 [61 Cal.Rptr.2d 536]; Laupheimer v. State of California, supra, 200 Cal.App.3d at pp. 458-459.)
As explained previously, once the secretary certifies a regulatory program, as occurred here, an administrative agency is exempted from the requirements
The substantive and procedural components for environmental documentation used in a certified regulatory program, which are pertinent to this appeal, are those specified in Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3), and Guidelines section 15252, subdivision (a). Although we refer to them in footnote 8, ante, for clarity purposes, we reiterate here the relevant requirements imposed by Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3): "To qualify for certification pursuant to this section, a regulatory program shall require the utilization of an interdisciplinary approach that will ensure the integrated use of the natural and social sciences in decisionmaking and that shall meet all of the following criteria: [¶] . . . [¶] (2) The rules and regulations adopted by the administering agency for the regulatory program do all of the following: [¶] . . . [¶] (B) Include guidelines for the orderly evaluation of proposed activities and the preparation of the plan or other written documentation in a manner consistent with the environmental protection purposes of the regulatory program. [¶] . . . [¶] (D) Require that final action on the proposed activity include the written responses of the issuing authority to significant environmental points raised during the evaluation process. [¶] . . . [¶]
Further, Guidelines section 15252, subdivision (a) provides: "(a) The document used as a substitute for an [environmental impact report] or negative declaration in a certified program shall include at least the following items: [¶] (1) A description of the proposed activity, and [¶] (2) Either: [¶] (A) Alternatives to the activity and mitigation measures to avoid or reduce any significant or potentially significant effects that the project might have on the environment, or [¶] (B) A statement that the agency's review of the project showed that the project would not have any significant or potentially significant effects on the environment and therefore no alternatives or mitigation measures are proposed to avoid or reduce any significant effects on the environment. This statement shall be supported by a checklist or other documentation to show the possible effects that the agency examined in reaching this conclusion."
We apply the pertinent provisions of Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3), and Guidelines section 15252, subdivision (a) in evaluating plaintiffs' procedural and substantive challenges to the commission's approval of the city's local coastal program amendment. Some of the parties' briefing relies on statutory and regulatory requirements for review of an environmental impact report. No doubt, there is an overlap between the requirements of a substitute document prepared for use in a certified regulatory program and those applicable to the preparation of an environmental impact report. We need not describe in detail how the requirements for a negative declaration or an environmental impact report, on one hand, and a certified program substitute document, on the other, differ or are the same. Rather, we apply the statutory and regulatory requirements specified in Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3), and Guidelines section 15252, subdivision (a). We hold the commission's documentation complies with the relevant substantive and procedural requirements applicable to a certified regulatory program substitute document.
The trial court relied on Ultramar, Inc. v. South Coast Air Quality Management Dist. (1993) 17 Cal.App.4th 689, 702-703 [21 Cal.Rptr.2d 608], in imposing the 30-day review period for the staff report. Ultramar involved a certified regulatory program adopted by the South Coast Air Quality Management District. Rather than prepare an environmental impact report, the South Coast Air Quality Management District regulations permitted the agency to draft an abbreviated environmental assessment. (Id. at pp. 696-697.) The South Coast Air Quality Management District adopted the California Environmental Quality Act "implementation guidelines" which thereby included the Public Resources Code section 21091, subdivision (a) 30-day period for review of a draft abbreviated environmental assessment. (17 Cal.App.4th at pp. 696-700, 702-703.) Our colleagues in Division One of this appellate district held that since the South Coast Air Quality Management District's own certified program adopted the California Environmental Quality Act implementation guidelines, compliance with the Public Resources Code section 21091, subdivision (a) 30-day review period was mandatory. (17 Cal.App.4th at pp. 702-703.) (The term "implementation guidelines" did not refer to the regulatory provisions in the Guidelines.) Rather, the Court of Appeal explained that the secretary expected the same rules would apply to environmental impact reports and environmental assessments by the South Coast Air Quality Management District. (17 Cal.App.4th at p. 699.)
The trial court also relied on Joy Road Area Forest & Watershed Assn. v. California Dept. of Forestry & Fire Protection (2006) 142 Cal.App.4th 656, 667-668 [47 Cal.Rptr.3d 846]. In Joy Road, the Department of Forestry and Fire Protection approved a timber harvest plan without complying with the notice and recirculation requirements under Public Resources Code sections 21092 and 21092.1. (142 Cal.App.4th at p. 667.) The Court of Appeal held the Department of Forestry and Fire Protection's certified regulatory program
As discussed previously while synthesizing the trial court's California Environmental Quality Act analysis (see p. 920, ante), the trial court ruled the words "reasonableness" and "at least" in California Code of Regulations, title 14, section 13532 permitted it to make a case-by-case determination as to the reasonableness of the notice. The trial court found the 13-day comment period was not reasonable because the issues concerned a zoning amendment that affected more than the subject property; the issues were biological in nature; and the commission released the staff report addendum just two days before the hearing. Plaintiffs contend the evidence supports the trial court's ruling that the 13-day review period was unreasonable. In addition, plaintiffs argue the 13-day review period was not reasonable because the staff report discussed or referenced numerous biological reports and other documents, many of which had not previously been made available to the public.
We also respectfully disagree with the trial court's reasonableness ruling. We are required to defer to the commission's interpretation of its own regulations. Courts must defer to an administrative agency's interpretation of a statute or regulation involving its area of expertise unless the challenged construction contradicts the clear language and purpose of the interpreted provision. (Reddell v. California Coastal Com. (2009) 180 Cal.App.4th 956, 968 [103 Cal.Rptr.3d 383]; Alberstone v. California Coastal Com., supra, 169 Cal.App.4th at p. 866; Divers' Environmental Conservation Organization v. State Water Resources Control Bd. (2006) 145 Cal.App.4th 246, 252 [51 Cal.Rptr.3d 497].) In addition, a case-by-case determination of reasonableness under California Code of Regulations, title 14, section 13532 without deference to the agency's interpretation would create unwarranted uncertainty in connection with many local coastal program amendment approvals. Such
We conclude the staff report was available for a reasonable time for review and comment. The 13-day review period is nearly twice the period required by California Code of Regulations, title 14, section 13532. And there is no evidence the public did not have adequate time to comment on the staff report. As noted, the trial court found there was no evidence that plaintiffs or other members of the public were prejudiced by the 13-day review period for the staff report. Although the addendum was issued only two days before the commission's public hearing, the addendum is not subject to the notice requirement under Code of Regulations, title 14, section 13532. In the addendum, the commission responded to public comments; recommended modification of the view corridors in response to public comments, and discussed additional biological information specific to the subject property's proposed subdivision.
The commission contends the trial court erred in requiring compliance with provisions of the California Environmental Quality Act that apply only to lead agencies. The commission argues it was the responsible, not the lead, agency. The commission reasons the city was the first public agency to review the project. The commission asserts the city is the only agency involved in review of the project that has general governmental powers. The commission argues as the responsible agency, it does not have to comply with California Environmental Quality Act provisions regarding public review requirements; response to public comments; alternatives analysis; and cumulative impact analysis. These requirements, the commission notes, only specifically apply to the preparation, review and certification of environmental documentation by lead agencies.
The trial court ruled the commission failed to respond to plaintiffs' comments on cumulative impacts. We disagree. For purposes of Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3), and Guidelines section 15252, subdivision (a), the commission adequately responded to plaintiffs' comments on the cumulative effects of adoption of the local coastal program amendment. Plaintiffs commented that the local coastal
The June 9, 2008 staff report addendum also addressed comments regarding view resources. The staff recommended the addition of section 6.5.E.6 to the city's Local Implementation Plan to require "no less than [20 percent] of the lineal frontage of each newly created parcel . . . be maintained as one contiguous public view corridor" even if the new lots were 50 feet or less in width. Thus, the commission responded to plaintiffs' general comments about land use and environmentally sensitive habitat areas. Further, the commission added Local Implementation Plan section 6.5.E.6 in response to plaintiffs' specific comment about the view corridor impacts. In addition, the commission also considered the city's responses to plaintiffs' comments.
Plaintiffs also generally commented that the mitigated negative declaration failed to adequately discuss potential cumulative impacts to biological resources, view corridors, land use, parking, traffic and hydrology and water quality. Plaintiffs argued the local coastal program amendment allowed for great density as lots could be combined and then readjusted to form additional buildable parcels along the entire coastline. The city staff's responses to these general comments are found in the November 28, 2006 report. Authored by an assistant planner, the report explained the city staff's methodology for identifying the lots which would be affected by the local coastal program amendment and stated that the development pattern would be consistent with existing patterns and parcel widths. The report further stated cumulative impacts were negligible because mitigation measures would be imposed on the subject property and the local coastal program amendment applied to only two other recently developed lots in the city. The city and the commission adequately responded to plaintiffs' comments regarding cumulative impacts during the local coastal program amendment process. No violation of the content requirements imposed by Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3) or Guidelines section 15252, subdivision (a) occurred.
The trial court found the commission's staff report failed as an informational document on the alternatives of a wider view corridor and whether fewer lots should result from the subdivision of the subject property. The trial court noted that the city considered alternatives by comparing view corridors and development envelopes for one, two, three and four lots on the subject property. The trial court further stated that the city found that four lots resulted in the smallest development footprint; provided the greatest viewing area; and was the least environmentally damaging alternative. Despite acknowledging the city's foregoing analysis, the trial court ruled, "[The commission] staff report does not even say that it is relying on the [c]ity's analysis of alternatives . . . ." As previously noted, the trial court also found: "[T]here is no analysis of the view corridors for the other two lots affected by the [local coastal program] amendment, and whether different development envelopes would mitigate view impacts from those lots. The [c]ommission did impose [Local Implementation Plan] [s]ection 6.5(E), which would prevent a reduction in view corridor for those two lots, but provides no analysis of the view corridors and development envelopes [for] those two lots." The commission, city and the developer contend the commission adequately considered alternatives to the project. We agree.
The commission staff report considered reasonable alternatives to the local coastal program amendment. The commission staff report considered alternatives to the proposed four-lot configuration. The commission staff report discussed a potential layout of the subject property with two lots with 100-foot widths; one lot with a 200-foot width; as well as lot configurations with different view corridors. The commission found that under the local coastal program amendment, as initially proffered by the city, smaller view corridors on either side of subdivided parcels could occur which would impact visual resources. To mitigate this problem, the commission considered the alternative of requiring greater view corridors for lots that could be subdivided under the local coastal program. As noted, the commission required amendment to the city's Local Implementation Plan section 6.5.E, which as ultimately certified, mandates larger view corridors for subdivided parcels where the resultant lots are 50 feet or less in width.
In addition, the city submitted its alternatives analysis to the commission. The commission considered the city's alternatives analysis as part of the local coastal program amendment process. The city compared view corridors and development footprints for one, two, three and four lots on the subject
As noted, plaintiffs appealed from that portion of the judgment which did not favor them. Plaintiffs contend the trial court erred in accepting the commission's unsupported conclusion that the local coastal program amendment would allow for subdivision of no more than three lots. We evaluate this contention in the context of whether the commission staff report complies with the requirements imposed in Public Resources Code section 21080.5, subdivision (d)(2)(B), (D), (F) and (3), and Guidelines section 15252, subdivision (a). As noted, in the revised initial study and mitigated negative declaration, the city council found only two developed lots which could potentially, under the local coastal program amendment, be subdivided to create an additional parcel each in the event of the demolition of the existing single-family homes. To subdivide, the owners of these two developed parcels would be required to apply for coastal development permits and environmental review under the California Environmental Quality Act. The city staff's discussion concerning the two currently developed lots in the revised initial study and mitigated negative declaration was part of the analysis as to why the local coastal program amendment would have negligible direct and cumulative impacts on aesthetics, biological resources and land use and planning.
The commission staff report relied on the city staff's analysis of the number and location of the lots, other than the subject property, that could be affected by the local coastal program amendment. The commission staff report discussed in depth the city staff findings incorporated into the mitigated negative declaration The commission staff report cited to the following analysis by the city staff: the categorization of parcels as either vacant or developed; the evaluation of both the lot width and size; the finding that only 16 lots, which have lot widths of at least 90 feet, could be potentially subdivided under the local coastal program amendment's 45-foot lot width standard; of the 16 lots, four parcels could not be divided because they do not have the minimum required acreage; another eight lots could not be subdivided under Local Implementation Plan section 10.4.R because they would require shoreline protection devices; the conclusion that only four developed
In the face of this evidence, plaintiffs argue there is no legal or factual basis to conclude that the two previously tied or merged lots could not be subdivided under the local coastal program amendment. And plaintiffs argue the commission, itself, should be required to conduct environmental review on these two lots. Plaintiffs also contend the local coastal program amendment could have additional environmental impacts associated with the creation of new lots because developed adjoining properties could potentially merge and subdivide into more parcels. Plaintiffs conclude this part of their analysis by arguing the trial court should have required review of all lots in the city that could be divided. We disagree.
No provision of law required the commission to speculate on the environmental impacts of the two previously tied parcels or on lots that could be created in the future through purchase of developed adjoining properties that could be merged and subdivided. Moreover, the two previously tied lots are unlikely to be subdivided because they were tied through a covenant and there is no evidence the city would allow redivision of those lots. (Civ. Code, §§ 1460, 1465 [a covenant running with the land binds successors]; Citizens for Covenant Compliance v. Anderson (1995) 12 Cal.4th 345, 352-355 [47 Cal.Rptr.2d 898, 906 P.2d 1314] [same].) In addition, any future subdivision of already developed lots would require a coastal development permit. The future subdivided lots would need to comply with all the requirements of the local coastal program, including provisions regarding minimum lot size, protection of coastal resources including environmentally sensitive habitat areas, and restrictions on mergers and subdivisions.
The commission, city and developer argue it was error for the trial court to require further environmental analyses on the two developed lots that could potentially be subdivided under the local coastal program amendment. They
In response to the developer's request for a coastal development permit, the city and commission obtained information on the existing views; proposed view corridors; and dune environmentally sensitive habitat areas for the subject property. The commission properly considered the secondary effects that could follow from the local coastal program amendment of the lot width standard. The commission staff report found the local coastal program amendment, as initially submitted by the city, would increase the number of smaller sized lots. This would in turn result in smaller view corridors. Because the local coastal program amendment could have a significant adverse effect on visual resources, the commission lessened these view impacts to below a level of significance by requiring the adoption of Local Implementation Plan section 6.5.E.6. As noted, this amendment created larger view corridors from Pacific Coast Highway to the ocean. New Local Implementation Plan section 6.5.E.6 requires a minimum of 20 percent of the lineal frontage of each newly created parcel be maintained as one contiguous public view corridor even if the lots are 50 feet or less in width.
In addition, the commission staff report also discussed the general conditions of dune environmentally sensitive habitat areas in the city. The commission staff report indicated the dunes range from lightly to heavily impacted and were invaded by nonnative plants. According to the city's biologist, Mr. Crawford, the remnant dunes in Malibu are highly disturbed and have limited function and value. Mr. Crawford stated, "The majority of the dunes remaining in Malibu support predominately non-native and invasive ice plant, that not only out-competes (and often eliminates) the native dune vegetation, but over-stabilizes the dunes, thus resulting in an unnatural condition that prevents the natural `movement' of the dunes and reduces their value as native habitat."
In light of the foregoing environmental analysis, the commission was not required to conduct site-specific biological reports on the two developed lots that might someday subdivide. It is unreasonable to require the commission, city or developer to conduct a biological assessment on developed private property it does not own and for which there is no reason to expect will be subdivided. Should these two developed lots be subdivided in the future, their owners would need to obtain coastal development permits, which would require site-specific environmental impact analyses, including reviews of environmentally sensitive habitat areas on the lots. No further discussion was necessary.
The judgment is reversed insofar as it granted the mandate petition. The judgment is affirmed in all other respects. Upon remittitur issuance, the trial court is to deny the mandate petition in its entirety. The California Coastal Commission, City of Malibu and Malibu Bay Company shall recover their costs incurred on appeal from plaintiffs, Deane Earl Ross individually and as cotrustee of the Ross Family Trust.
Kriegler, J., and Kumar, J.,
