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Planning and Building Department, Economic Development Division, recommending the Board take the following actions related to the program-level Environmental Impact Report for the El Dorado County Broadband Fiber Project (State Clearinghouse 2024081255):
1) Adopt and authorize the Chair to sign Resolution 071-2025 certifying the Final Environmental Impact Report pursuant to the California Environmental Quality Act, comprised of the Draft Environmental Impact Report dated March 2025 and the Final Environmental Impact Report dated May 2025; adopting the Findings of Fact; adopting a Mitigation Monitoring and Reporting Plan; and approving the Project as described in the Final Program Environmental Impact Report; and
2) Authorize staff to proceed with filing the Notice of Determination.
FUNDING: Program Environmental Impact Report: Discretionary Transient Occupancy Tax - 100% / El Dorado County Fiber Project: Grants - 100%. (California Public Utilities Commission Federal Funding Account Grant [Awarded]; Broadband Equity, Access, and Deployment Grant [Applied]).
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DISCUSSION / BACKGROUND
Project Description
The El Dorado County Broadband Fiber Project (Project) is a County-wide effort that proposes to expand access to fiber optic broadband technology throughout the unincorporated and incorporated (City of Placerville and City of South Lake Tahoe) areas of the County. The Project would consist of installation of fiber optic lines either underground or in buried conduits, overhead on existing or newly constructed utility poles, or a combination of both. It is anticipated that the depth of excavation for buried conduits would be five (5) feet, and the maximum height of new utility poles would be 100 feet. Although a majority of the Project would be built within the typical roadway cross-section within the Project areas or the California Department of Transportation’s (Caltrans’) public right-of-way (ROW), there is potential that infrastructure could be constructed on private and federal lands and could connect to existing conduit or utility poles located within public or private utility easements. Additionally, there is potential for the Project to utilize existing conduit where only installation of fiber optic line would be required; however, the Environmental Impact Report (EIR) prepared for the Project assumes that new ground disturbance would be required for the entire Project.
Through implementation of the Project, the County intends to meet the following objectives:
*Promote the construction of a broadband network in unincorporated and incorporated areas of the County of El Dorado;
*Enable an increase in telework and telecommuting, with a correlated decrease in vehicle miles traveled (VMT);
*Improve public health and safety through enhancing telemedicine, enabling faster emergency response, enhanced communication between emergency services, and access to critical information during disasters or emergencies;
*Streamline the environmental review process for individual fiber projects that are implemented in the County of El Dorado by identifying known environmental and cultural assets to be protected and/or restored with an approved set of preservation measures and/or mitigations; and
*Save time and money for both County and individual fiber project applicants, resulting in greater government and economic efficiencies, reducing the amount of staff time required to review individual fiber projects, and avoiding duplication of applicant costs.
Project EIR
On April 4, 2023 (Legistar file 22-2180), the Planning and Building Department, Economic Development Division, (Department) entered into Agreement 7140 with HELIX Environmental Planning (Helix) for preparation of a program-level EIR that achieves compliance with the California Environmental Quality Act (CEQA) for the proposed Project in advance, such that subsequent individual fiber projects can streamline the environmental review process by falling within the scope of the proposed Project covered in the EIR.
A Notice of Preparation (NOP) for the EIR was circulated for a 30-day agency and public review period commencing on August 26, 2024, and concluding on September 30, 2024. In addition, a virtual public hearing to receive comments on the scope of the EIR was held on September 25, 2024. The County received comments from the Native American Heritage Commission, Caltrans, and Central Valley Regional Water Quality Control Board. Each agency identified standard requirements prior to implementation of the Project.
The Draft EIR was available for a 45-day agency and public review period beginning on March 14, 2025, and ending on April 28, 2025. During this time, the County received a comment from the California Department of Fish and Wildlife, North Central Region (CDFW). The CDFW provided comments and recommendations regarding those activities involved in the Project that may affect California fish, wildlife, native plants, and their habitat.
Following conclusion of the 45-day Draft EIR review period, the County reviewed all comments received, prepared written responses to comments on environmental issues, and developed the Final Program EIR (Attachment C).
The EIR has been prepared to meet the requirements of a program-level EIR as defined in CEQA Guidelines Section 15168(c) for streamlining later activities. In accordance with Section 15168 of the CEQA Guidelines, a program-level EIR may be prepared on a series of actions that can be characterized as one (1) large project and are relate to, among other things, the issuance of general criteria to govern the conduct of a continuing program or individual activities carried out under the same authorizing statutory or regulatory authority and having generally similar environmental effects that can be mitigated in similar ways.
Alternatives
The Final EIR evaluates alternatives to the Project such as No Project, Aerial Installation Only, Underground Installation Only, and the Use of Existing Infrastructure.
No Project:
This alternative represents what would happen if the proposed broadband project is not implemented-no broadband expansion would occur, and current service levels would remain. While it avoids environmental and construction impacts entirely, it also fails to meet any project objectives. It’s included for comparison purposes as required by CEQA, with impacts assessed relative to the proposed project.
Aerial Installation Only:
This alternative involves installing fiber optic lines aboveground using new or existing utility poles, without any underground work. This method avoids construction impacts and reduces the risk of disturbing hazardous materials like asbestos and lead. It is more suitable for long-distance rural connections. However, challenges include difficult terrain and rocky soil that may prevent pole installation, leading to service gaps. It’s also less feasible in forested or mountainous areas and requires more maintenance. Additionally, it could negatively affect scenic views, especially along designated State Scenic Highways.
Underground Installation Only:
This alternative involves placing all fiber optic lines underground using new or existing conduit, with no new utility poles or aboveground lines. It aims to avoid visual and aesthetic impacts, making it more suitable for forested or mountainous areas.
Underground lines also require less maintenance. However, this method involves more ground disturbance and longer construction times, potentially increasing exposure to hazardous materials like asbestos and lead. It may also be infeasible in areas with challenging terrain or buried utilities.
Use of Existing Infrastructure:
This alternative would install fiber optic lines only through existing conduits or on current utility poles, avoiding new construction. This minimizes environmental, aesthetic, and construction impacts. However, it wouldn't expand broadband access to underserved areas lacking existing infrastructure, so it fails to meet the project's goal of improving broadband coverage across El Dorado County.
Significant Impacts
CEQA defines a significant impact as one that has a substantial, or potentially substantial, adverse change in any of the physical conditions within the area affected by the proposed Project, including land, air, water, minerals, flora, fauna, ambient noise, and objects of historic and aesthetic significance.
The proposed Project does not have the potential to generate significant environmental impacts. The EIR identifies areas that may have Potentially Significant and Less than Significant impacts; however these can all be reduced to either Less than Significant or Not Applicable (N/A) through Mitigation Measures as identified (Attachment E).
Findings of Fact
The CEQA Findings of Fact (Attachment G) have been prepared in accordance with CEQA (CEQA; Public Resources Code [PRC], Section 21000 et seq.) and the CEQA Guidelines (California Code of Regulations [CCR] Title 14, Section 15000 et seq.).These Findings of Fact represent the independent judgment of the County regarding the potential environmental effects analyzed in the EIR and document the reason for approval of the Project. Because the Project, based on the EIR, will not result in significant and unavoidable impacts, a Statement of Overriding Considerations is not warranted.
Through approval of the Project and certification of the EIR, the County will make progress toward implementing its Strategic Plan Priority of advancing Broadband technology to improve connectivity, efficiency, and resilience.
ALTERNATIVES
1) The Board could choose not to certify the EIR and direct staff to return with revisions as requested. The Department would make the directed changes and return for Board certification at a later date. This would delay delivery of the Proposed Project, jeopardizing grant funding.
2) The Board could choose not to approve the proposed Project, which would prevent the County from moving forward with expansion of fiber projects in the County.
PRIOR BOARD ACTION
On April 4, 2023 (Legistar file 22-2180), the Board approved and authorized the Chair to sign Agreement 7140 with Helix for the provision of as-needed environmental services for broadband specific projects, with a not-to-exceed amount of $150,000, and a term of three (3) years.
OTHER DEPARTMENT / AGENCY INVOLVEMENT
County Counsel has reviewed and approved the Resolution, Draft EIR, Final EIR, Findings of Fact, and the Mitigation Monitoring and Reporting Plan.
CAO RECOMMENDATION / COMMENTS
Approve as recommended.
FINANCIAL IMPACT
There is no change to Net County Cost associated with this item. Funding for preparation of the EIR was included in the Department’s budget for Fiscal Year 2024-25. The Department has secured CPUC FFA grant funding for a project area identified in the EIR and future projects will be funded by grants.
CLERK OF THE BOARD FOLLOW UP ACTIONS
1) Clerk to obtain the Chair’s signature on the original copy of the Resolution.
2) Clerk to send one (1) fully executed copy of the Resolution to the Planning and Building Department, attention Kyle Zimbelman, Deputy Director.
STRATEGIC PLAN COMPONENT
Public Infrastructure
Priority: Implement Broadband Pilot Projects
Action: Conduct a review of the master plan, identify, and secure funding sources and begin design/construction.
CONTACT
Kyle Zimbelman, Deputy Director
Planning and Building Department