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HomeMy Public PortalAbout4m-VisualResourcesNOVEMBER 2008 TRUCKEE RAILYARD DRAFT MASTER PLAN EIR IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) 397 M. VISUAL RESOURCES This section evaluates the effects of the implementation and buildout of the Draft Master Plan on views of the development within Master Plan Area from specific viewpoints in the vicinity of the site as well as project consistency with visual resource policies of the Town of Truckee General Plan. The analysis considers the existing visual quality of the Plan Area and vicinity and relevant policies. Photographs of the Plan Area and vicinity, shown in Figures IV.M-1a through IV.M-1d, accompany the text to provide a clear example of existing conditions. 1. Setting The following section includes a description of the existing aesthetic resources and visual character of the Master Plan Area and its surroundings, as well as views in the vicinity of the site. Views to and through the site are provided in Photos V.M-1 through IV.M-4 and in photos included within the text of this section. a. Local Context. The Town of Truckee is a mountain community with a rich history of railroad usage and related industry dating back to the mid-1800’s. This past provides a distinct “sense of place” to this small town in the foothills of the Sierra Nevada Mountains. Travelers passing through the town are typically en-route to the mountains on Highway 80 and may stop in Truckee to enjoy its retail amenities and historic Downtown. The buildings in Truckee are generally one- to two- stories in height, with a few structures massing upwards to three or four stories in height. Many architectural elements are reminiscent of the Town’s evolution, such as Late 19th Century/Late Victorian, Frontier Commercial and craftsman style workmanship. These styles are evident in taller buildings, such as the Truckee Hotel and the Sierra Tavern, both four stories in height. The Master Plan Area is located at the eastern edge of Downtown, and provides an opportunity to increase and extend the Downtown, as well as the accompanying pedestrian environment created by the century-old pattern of smaller, narrow, interconnected streets. b. Visual Character of the Project Site. Existing land uses primarily include the Railyard (a railroad operations building, balloon track and storage tracks), homes along Trout Creek Road, Tahoe Tree Company, Tahoe-Truckee Lumber View of Master Plan Area looking west from Glenshire Drive. Truckee Railyard Master Plan EIR Existing Views of Master Plan Area and Surrounding Land Uses SOURCE: LSA ASSOCIATES, INC., 2007 \\Sau1-sr\On-Site\2007\1407542 Truckee Railyard Master Plan EIR\Documents\Admin EIR\Figures FIGURE IV.M-1a View of Master Plan Area from the North View of lumberyard within Master Plan Area Truckee Railyard Master Plan EIR Existing Views of Master Plan Area and Surrounding Land Uses SOURCE: LSA ASSOCIATES, INC., 2007 \\Sau1-sr\On-Site\2007\1407542 Truckee Railyard Master Plan EIR\Documents\Admin EIR\Figures FIGURE IV.M-1b View of landscaping business, Tahoe Tree Company, within Master Plan Area View of Trout Creek and houses along Trout Creek Road within Master Plan Area Truckee Railyard Master Plan EIR Existing Views of Master Plan Area and Surrounding Land Uses SOURCE: LSA ASSOCIATES, INC., 2007 \\Sau1-sr\On-Site\2007\1407542 Truckee Railyard Master Plan EIR\Documents\Admin EIR\Figures FIGURE IV.M-1c View of Sierra Pacific Utility Yard, adjacent to Master Plan Area View of homes across railroad tracks and East River Street, adjacent to Master Plan Area Truckee Railyard Master Plan EIR Existing Views of Master Plan Area and Surrounding Land Uses SOURCE: LSA ASSOCIATES, INC., 2007 \\Sau1-sr\On-Site\2007\1407542 Truckee Railyard Master Plan EIR\Documents\Admin EIR\Figures FIGURE IV.M-1d View of homes along Church Street, adjacent to Master Plan Area View looking west down Donner Pass Road, adjacent to Master Plan Area TRUCKEE RAILYARD DRAFT MASTER PLAN EIR NOVEMBER 2008 IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES 402 C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) Company, a glazier, a card-lock fueling facility, and Trout Creek. The site’s visual character is currently defined by its vast openness, with existing operations consisting primarily of vacant land and grade-level improvements (such as tracks). The openness of the railyard operations combined with the termination of Donner Pass Road and Church Street at the site’s edge give the Master Plan Area the “end of Downtown” character. Land uses surrounding the site include an electrical substation, civic, residential and commercial uses to the west and northwest (Church Street and Commercial Row); U.S. Forest Service land to the north; residences and industrial uses and a general contract- ing operation (Pombo’s) to the south (East River Street); and State Highway 267 to the east. Natural elements surrounding the Master Plan Area include numerous mature ever- green trees, the Truckee River, and Trout Creek. These natural elements provide view corridors across the parcels and in the surrounding open space. Public utility lines are on and adjacent to the Plan Area, suspended overhead and weave in and out of the mature tree canopy. c. Views from the Project Site. Views from the Master Plan Area echo the variety and eclectic development that is Down- town Truckee. (1) Views to the South. To the south of the Plan Area, views of the railroad tracks, undulating topography, and smaller scale residential fill the landscape along East River Street. View of existing railyard operations. View of looking southeast across Master Plan Area. View of looking south from Master Plan Area. NOVEMBER 2008 TRUCKEE RAILYARD DRAFT MASTER PLAN EIR IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) 403 Mature trees are located along the Truckee River and on private property. View corri- dors provide a vista of the distant Sierras. (2) Views to the East. Vast and dramatic views of the distant Sierra mountains dominate the background views to the east. Foreground views include open space, railroad tracks, the 267 bypass, and a portion of Trout Creek as it bends in a southeasterly direction. (3) Views to the West. The western portion of the Plan Area gives way to the views of Truckee’s Downtown Core. The view slightly northwest of the Master Plan Area includes commercial shops and residences (some of which have been converted to offices and commercial uses) along Church Street and E Street. The northwest view also offers a view of the Sierra Pacific electrical substation. (4) Views to the North. Views north of the Master Plan Area include a landscaped slope between Trout Creek and Glenshire Drive, Donner Pass Road right-of- way and Forest Service property on the north side of Donner Pass Road. d. Streetscapes The historic character of Truckee is evident along the old Downtown streets. Visually, the character of streets adjacent to the Master Plan Area (i.e., Donner Pass Road and Church Street) evokes the area’s railroad-based past with masonry and wood constructed buildings set alongside the property line. View looking east from Master Plan Area. View looking north from Master Plan Area. View looking west from the western-most portion of the Master Plan Area. TRUCKEE RAILYARD DRAFT MASTER PLAN EIR NOVEMBER 2008 IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES 404 C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) Standard urban improvements such as sidewalks, curbs, gutters, and utility lines located in underground conduits are not provided in all portions of Downtown. Instead, overhead utility lines parallel the streets and several streets are without sidewalks. e. Scenic Vistas and Highways. The Town of Truckee General Plan identifies vistas of mountains, open space areas, the Truckee River, the historic Town Center, and Donner Lake as scenic resources. There are no State-designated Scenic Highways in Truckee. Both I-80 and SR-89 are eligible to be State Scenic Highways, but are not officially designated.1 The Town of Truckee General Plan designates two scenic corridors including the entire length I-80 within Town limits, except the south side of the interstate in the Downtown, and the SR-89 North, between Prosser Dam Road and the Town limits. The Town General Plan includes goals and policies to protect prominent views of scenic vistas and enhance the scenic quality of development (new and existing) within the Town’s landscape. f. Relevant General Plan Policies The Town of Truckee General Plan provides aesthetic resource and visual character policies applicable to the Master Plan Area. Applicable policies from the Town of Truckee General Plan are provided below. Land Use Element Policies P2.1: Protect views of hillsides, prominent slope exposures, and ridge and bluff lines through a clustering requirement for residential development that concentrates development on the most level and least visible portions of hillside sites. P2.4: Ensure that new development in Truckee’s lowland areas, including its forested areas and meadowlands, and the Truckee River Valley, contributes to and enhances the scenic quality and visual harmony of the built environment that comprises the Truckee townscape. P2.5: Preserve the scenic qualities of the Truckee River and other natural waterways through setback standards, as identified in the Conservation and Open Space Element, and by ensuring that new development respects and enhances the aesthetic qualities and natural environment of these river corridors and waterways. 1 California Scenic Highway Mapping System website: http://www.dot.ca.gov/hq/LandArch/s cenic/cahisys3.htm. View of streetscape along Truckee’s Commercial Row. NOVEMBER 2008 TRUCKEE RAILYARD DRAFT MASTER PLAN EIR IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) 405 P2.7: Require electric, telecommunications and cable television facilities serving new development to be installed underground wherever possible. Where undergrounding is impractical, above ground antennae and telephone and high voltage transmission lines shall be located out of significant scenic vistas. P4.1: Recognize and preserve views of the night sky as an important natural and scenic resource in Truckee. P4.2: Require light fixtures to be designed and sited so as to minimize light pollution, glare, and light trespass into adjoining properties. P4.3: Encourage the removal, replacement or retrofit of light fixtures that contribute to light pollution. P5.5: Enhance physical connections between adjacent uses and between different parts of Truckee. P5.1: Ensure that planning and development decisions are oriented towards the maintenance of Truckee’s unique character, reflecting the following considerations: ƒ Identification of specific types of centers, residential neighborhoods, employment districts, corridors and gateways. ƒ Respect for the quality, character and context of existing development within these different areas of the town. ƒ Ensuring that new development enhances the desired character of each of these areas. ƒ Discouraging new architecture that directly mimics or is derivative of the buildings of the historic Downtown. ƒ Encouraging the retrofit or rehabilitation of existing buildings to more closely comply with Town policies, standards and guidelines for high quality architecture and design. ƒ Consideration of the relationship of the built environment to the qualities and context of the landscape and natural environment in which it is situated. P5.2: Require all new development to incorporate high quality site design, architecture, and planning so as to enhance the overall quality of the built environment in Truckee and create a visually interesting and aesthetically pleasing town environment. P6.2: Preserve Downtown’s rich legacy of historic buildings and sites, and ensure that new development respects the character and context of those resources. P6.4: Require buildings to be located closer to the street, where appropriate, and for off-street parking areas to be located to the rear of commercial buildings, where feasible. Ultimate building locations must accommodate snow removal and snow storage, and should maximize solar orientation. TRUCKEE RAILYARD DRAFT MASTER PLAN EIR NOVEMBER 2008 IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES 406 C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) Community Character Element Policies P1.1: Utilize the mechanisms and strategies identified in the Conservation and Open Space Element of the General Plan as a tool to actively protect open space in Truckee, including that containing or contributing to the town’s scenic mountain qualities. P1.2: Ensure that all new development, occurring at all scales and densities, maximizes the provision of all types of open space, including scenic open space that contributes to and enhances the town’s community character. P3.1: Regulate the visual appearance and location of development within identified buffer areas along Interstate 80 and Highway 89 North in order to protect the visual quality of these corridors and the views that are available from them. P3.4: Require preservation of existing vegetation on sites along I-80 to screen existing and new development visible from Interstate 80. Where necessary, require additional landscaping to screen buildings and other facilities. Accommodation shall be made to permit visibility of signage for approved Highway Commercial uses in areas where such uses are specifically permitted. Conservation and Open Space Element Policies P1.5: Adhere to the following criteria for open space preserved through direct actions of the Town, through open space and clustered development requirements and incentives, and through the development review process: ƒ Provide the maximum possible degree of community benefit, as expressed through the Vision for Truckee and the guiding principles, goals and policies of the General Plan. ƒ Preserve open space that, to the greatest possible extent, occurs in large blocks and is contiguous and connected. ƒ Provide the greatest possible level of public access while respecting private property rights, sensitive habitat values, and safety concerns. ƒ Provide maximum benefit in terms of habitat preservation. ƒ Enhance the overall character of Truckee as a scenic, mountain community. Economic Development Element Policies P7.1: Land use, urban design, open space and community facilities in Truckee shall reinforce the preservation and enhancement of the Town’s natural capital. NOVEMBER 2008 TRUCKEE RAILYARD DRAFT MASTER PLAN EIR IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) 407 2. Relevant Railyard Draft Master Plan Policies The Draft Master Plan includes specific polices related to aesthetics and visual character. New development within the Master Plan Area would be subject to the following aesthetic and visual character policies within the Draft Master Plan: Policies 1.d: Require a mix of building forms and uses to increase the diversity of uses in Downtown Truckee. 1.h: Develop the Railyard Master Plan Area in phases from the existing Downtown toward the east to support the economic feasibility of redeveloping the Railyard. 1.j: Design and allow for building uses to evolve over time to accommodate shifting market demand and community context. 1.l: Support redevelopment in transitional areas adjacent to the Railyard Master Plan Area that is consistent with the Master Plan Goals and Policies. 2.a: Create a street and sidewalk that is physically connected to the existing Downtown, surrounding neighborhoods, and Trout Creek and visually connected to the natural features including the Truckee River and surrounding mountains. 3.a: Enhance Truckee’s Downtown as a destination by incorporating the unique mountain town character into the design of the Railyard Master Plan Area and creating visual and physical connections to the natural amenities within the area. 3.b: Facilitate a seamless interface between the Railyard Master Plan Area and the existing Downtown through well-designed street and sidewalk improvements, building forms and uses. 3.c: Preserve and enhance public views of the mountains, Trout Creek, and Truckee River through the Railyard development. 3.d: Require visually appealing architecture, streetscapes and human scale building design including porches, awnings, cornices, and large ground floor windows to enhance the public realm, encourage pedestrian travel, facilitate community interaction, and promote public safety. 3.g: Create unique neighborhoods through diversity of building types with numerous building variations along a single block and recognize that the organic and somewhat random nature of development in the existing Downtown has created the unique character of Truckee. 3.h: Create a sense of arrival to the existing downtown and the Railyard Master Plan Area. 3.i: Require development in the Industrial Heritage (IH) District to reflect the heritage of the old lumber mill, the railyards, and the industrial history of the area. 3.j: Require the construction of unique and quality projects that express individual character while complementing surrounding buildings and require a similar level of architectural detailing on all building elevations visible from the public realm, where appropriate. 3.k: Create a pleasant pedestrian environment by buffering pedestrians from vehicular traffic with street trees landscaping, where appropriate and consistent with Truckee’s character. 3.l: Design for the winter climate with attention to microclimate conditions and create enjoyable year- round public places. TRUCKEE RAILYARD DRAFT MASTER PLAN EIR NOVEMBER 2008 IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES 408 C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) 4.c: Take advantage of the east-west aspect of the Railyard Master Plan Area to provide solar access (southern exposure) for streets, buildings, and public places. 3. Impacts and Mitigation Measures This section analyzes impacts related to aesthetic resources and visual character that could result from implementation of the proposed project. The subsection begins with the criteria of significance, which establish the thresholds for determining whether an impact is significant. The latter part of this section presents the impacts associated with the proposed project. Mitigation measures are recommended, as appropriate. a. Criteria of Significance. Development of the proposed project would have a signifi- cant effect on aesthetic resources and visual character if it would:2 ƒ Have a substantial adverse effect on a scenic vista. ƒ Substantially damage scenic resources, including, but not limited to, trees, rock outcroppings, and historic buildings within a State scenic highway. ƒ Substantially degrade the existing visual character or quality of the site and its surroundings. ƒ Create a new source of substantial light or glare which would adversely affect day or nighttime views in the area. The significance criteria identified above are based on Section 15065 and Appendix G of the CEQA Guidelines. b. Less-Than-Significant Visual Quality Impacts. The discussion below describes the less-than-significant impacts to visual quality resulting from implementation of the Draft Master Plan. (1) Scenic Vistas and Scenic Resources. The Town of Truckee General Plan identifies several scenic resources that are visible from the Master Plan Area including vistas of mountains, open space areas, Trout Creek and the historic Town Center. As shown in photos within this section, the views of mountains to the east and Downtown to the west are uninterrupted by buildings or structures. Buildout of the Master Plan Area would alter views of these vistas from and through the Master Plan Area. The vistas of mountains to the east would not be lost; however, the foreground view from the Master Plan Area toward the mountains would be modified as new structures are built within the Master Plan Area. The existing views of Trout Creek would be altered as the balloon track is relocated and new structures are developed in the Master Plan. Views to and through the Master Plan Area from Downtown would change with the realignment of Donner Pass Road (to continue 2 2007 CEQA Guidelines, Appendix G. NOVEMBER 2008 TRUCKEE RAILYARD DRAFT MASTER PLAN EIR IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) 409 through the Master Plan Area), the balloon track relocation further east and new construction within the Master Plan Area. However, these changes would not significantly alter the background views of the mountains and Downtown. The Draft Master Plan recognizes the sensitivity of development within the Master Plan Area as it relates to protecting and preserving the Town’s scenic vistas and resources. Development within the Master Plan Area would be subject to the several goals and policies within the Railyard Draft Master Plan and the Town’s General Plan (included within this section). Though the current views would change, the goals and polices of the General Plan and the Draft Master Plan would ensure that new development within the Draft Master Plan would not significantly degrade views of scenic vistas. Compliance with these goals and polices would ensure that no significant impacts on scenic vistas and scenic resources would result. (2) Scenic Highways. As mentioned previously, there are no State-designated highways in Truckee. However, the Town of Truckee General Plan designates two scenic corridors including the entire length I-80 within Town limits, except the south side of the interstate in the Downtown, and SR-89 North between Prosser Dam Road and the Town limits. Development within the Master Plan Area would be visible from I-80. Development projects within the Master Plan Area must comply with the Town’s General Plan policies for development along these corridors (see Community Character Element policies P3.1 and P3.4 above). Compliance with these policies would result in less-than-significant impacts on the Town’s designated scenic corridors. (3) Visual Character. Development within the Master Plan Area would change the character of the Master Plan Area by allowing a mixture of commercial, residential, parks and extending streets at the juncture where Commercial Row meets the relatively undeveloped railyard property. The Railyard Draft Master Plan recognizes the importance of transitioning development from historic Downtown to new development with the Master Plan Area. The Draft Master Plan includes several policies, development standards and design guidelines for new development within the Master Plan Area, which explicitly call for building design and streetscape improvements that are respectful of historical architecture in the vicinity. The Master Plan Area had historically been occupied by the railyard and sawmill, but has been virtually vacant for nearly two decades following the removal of the majority of buildings and features associated with those uses. The development standards and guidelines for the Downtown Extension area, the Industrial Heritage area, and the Trout Creek area contain specifications for the form, massing, block design, and streetscape of the new development, which will be reminiscent of the diversity of uses and historical appearance of the Downtown Character Area without reproducing existing architectural styles. Additionally, the westernmost portion of the Master Plan Area is within the Town’s Historic Preservation Overlay District, and the Draft Master Plan’s guidelines and standards for the Downtown Extension District were inspired by the Commercial District Character Area of the Downtown Specific Plan to ensure that new development is consistent with the TRUCKEE RAILYARD DRAFT MASTER PLAN EIR NOVEMBER 2008 IV. SETTING, IMPACTS AND MITIGATION MEASURES M. VISUAL RESOURCES 410 C:\JOB\RRM\Truckee\PublicReviewDraft_Oct08\4m-VisualResources.doc (11/3/2008) established character. Specific standards and guidelines include buildings built to the sidewalk, shop-front windows, awnings, and arcades, as appropriate. Architecturally, the Downtown Extension area would conform to the development standards and guidelines specifically designed to create visually compatible and pedestrian-friendly transitions from Commercial Row and Church Street into the new development. Implementation of the standards and guidelines within the Draft Master Plan, together with goals and polices of the Truckee General Plan and the Draft Master Plan, would ensure that future development within the Master Plan Area would be of high quality architectural design, site design, and building orientation that is appropriate for the historic Downtown interface. Therefore, implementation and buildout of the Master Plan Area would not substantially degrade the character or quality of the Master Plan Area and its surroundings. Visual simulations will be provided as part of the town’s review of future projects within the Master Plan Area. c. Significant Visual Resources Impacts. No significant visual resource or visual character impacts would result from the implementation of the Draft Master Plan. (1) Light and Glare. Long-term light and glare impacts resulting from the development of the Master Plan Area would include new sources of light from street lamps, residences, commercial uses and additional use of vehicles. Street lighting would be installed along all collector and local streets, and lighting may also be installed in parks and trails as required for safety and security. Impact VIS-1: Implementation and buildout of the Master Plan Area would result in sources of light and glare. (S) Development within the Master Plan Area must comply with the Town’s General Plan policies for protecting the night sky and reducing light and glare in new developments (Community Character Element policies P4.1 and P4.2 above) and compliance with these policies would result in less-than-significant impacts related to light and glare. Additionally, the Develop- ment Code includes standards for exterior lighting3; however, the Draft Master Plan does not incorporate these standards. The following mitigation measure would reduce potential impacts resulting from new sources of light and glare to a less-than-significant level: Mitigation Measure VIS-1: Prior to adoption of the Draft Master Plan, the Town Development Code standards for exterior lighting (Section 18.30.060) shall be incorporated in the Draft Master Plan. (LTS) 3 Town of Truckee, 2000. Development Code, Section 18.30.060. November 6.