|
Date: |
November 18, 2026 |
30 |
Title
Noticed Public Hearing:
Passerelle General Plan Amendment, Specific Plan Amendment, Revised Tentative Map, Site Plan, Addendum to Previously Certified Environmental Impact Report and Associated Documents (District: 5)
End
Overview
Today’s requested action is for the Board of Supervisors (Board) to consider a General Plan Amendment, Specific Plan Amendment, Revised Tentative Map, Site Plan and an Addendum to the previously certified Environmental Impact Report (EIR) for the Passerelle Project (Project). The Project includes the development of 138 residential units on an 11.96-acre property that is currently designated for office professional uses.
The Project site is located within the Fallbrook Community Planning Area and I-15 Design Review Corridor in the Campus Park Specific Plan Area in the northeast quadrant of the State Route 76 (SR-76) and Interstate 15 (I-15) Interchange. The Project site consists of the remaining portion of the Campus Park Tentative Map (TM-5338) that has not completed a Final Map. The last portion of the Campus Park Tentative Map consists of a single parcel with 11.96 acres north of the Horse Creek Ridge County Park and 8.38 acres south of the Horse Creek Ridge County Park. The 138-unit residential development is proposed on the northern 11.96-acre property while the town center property, which is not proposed to be developed at this time, is located on the 8.38-acre property.
The applicant is requesting to amend the General Plan to revise the Fallbrook Community Plan and to amend the existing Campus Park Specific Plan to allow residential units on the office professional property of the Specific Plan. The Project also consists of a Revised Tentative Map to establish buildable lots and condition road improvements of the existing Campus Park Tentative Map as well as a Site Plan for Community Design Review and to establish setbacks. The Project was submitted in 2021 prior to the adoption of the Inclusionary Housing Ordinance (IHO) in 2026 and is not subject to the IHO. In accordance with General Plan policies at the time of application submittal, County staff and the Project applicant created an affordable housing condition for the Project.
Today’s requested actions are for the Board to consider amending the General Plan, including the Fallbrook Community Plan, and Campus Park Specific Plan, and approving the associated implementing actions, such as a Revised Tentative Map, Site Plan, and environmental documentation. The Board can approve the Project, approve the Project with modifications, or deny the Project.
Body
Recommendation by Chief Administrative Officer:
1) Adopt the Environmental Findings for the Project, which includes a finding that the Project is found in conformance with the California Environmental Quality Act (CEQA) through the processing of an addendum to the previously certified Environmental Impact Report (EIR) for Campus Park (Attachment A).
2) Adopt a Resolution entitled: A Resolution of the Board of Supervisors of the County of San Diego Relating to Adopting General Plan Amendment PDS2021-GPA-21-003 (Attachment B).
3) Adopt a Resolution entitled: A Resolution of the Board of Supervisors of the County of San Diego Relating to Approving Specific Plan Amendment PDS2021-SPA-21-001 (Campus Park Specific Plan) (Attachment C).
4) Adopt the Form of Decision approving the Revised Tentative Map PDS2021-TM-5338R which includes those requirements and conditions necessary to ensure that the Project is implemented in a manner consistent with State Law and the County of San Diego regulations (Attachment D).
5) Grant Site Plan (Record ID: PDS2021-STP-21-013) and include the requirements and conditions as set forth in the Site Plan Form of Decision (Attachment E).
End
6) Require Pass 4 4, LLC, Molo Passerelle, LLC, and International Foundation of the Seven Stars to enter into a Defense and Indemnification Agreement in accordance with County Code Section 86.201 et seq. and authorize the Director of Planning & Development Services to execute the Agreement. If litigation is filed challenging the Board’s action on this project, require Passerelle, LLC, to provide security in the amount of $1,250,000 in the form of an irrevocable letter of credit or bond, in a form acceptable to County Counsel within 10 days of litigation being filed (Attachment I).
End
Equity Impact Statement
This amendment is aligned with the goal of providing housing opportunities that meet the needs of the community. The approval of the Project would provide 138 new housing units in the Fallbrook community. The Project will contribute to providing affordable housing through either paying an in-lieu fee or the construction of five percent of the proposed units as very-low income affordable units. Overall, the Project contributes to community vitality while maintaining compatibility with surrounding development and access to services.
Sustainability Impact Statement
The Project would convert a previously designated office professional site to 138 residential units, which would result in a 48% reduction in average daily trips and the associated reduction in emissions. The Project includes sustainable design features including landscape water reduction measures, installation of solar for the residential units, electric vehicle charging within the residential garages and no natural gas for operation or infrastructure of the project.
Fiscal Impact
There is no fiscal impact associated with today’s request to approve the Passerelle Project (Project) as it is a privately initiated development application. Any processing costs incurred will be paid for by the applicant (or owner/developer). There will be no change in net General Fund costs and no additional staff years.
Business Impact Statement
N/A
Advisory Board Statement
The Project site is located within the Fallbrook Community Planning Area and the I-15 Design Review Corridor. Throughout the processing of the Project, the applicant attended Fallbrook Community Planning Group (CPG) meetings and placed the Project as an informational item on the agenda to obtain feedback and address community comments. Fallbrook CPG and community member comments focused primarily on questions and comments associated with parking, traffic, fire access, density, parks, and the timing of construction of the town center portion of the Campus Park Specific Plan Following public review of the General Plan Amendment, Specific Plan Amendment, and CEQA documents from December 19, 2024, to February 7, 2025, the applicant revised the Project to include larger 20-foot by 20-foot garages as well as 10 additional guest parking spaces. On May 19, 2025, the Fallbrook CPG voted to recommend approval of the Project by a vote of 12-3-0 (12-Yes, 3-No, 0-Vacant/Absent).
During public review of the General Plan Amendment, Specific Plan Amendment, and CEQA documents, the applicant presented the Project to the I-15 Design Review Board (DRB) on January 29, 2025. The primary comments from the I-15 DRB focused on garage sizes and parking spaces and potential trash can location concerns. As previously discussed, the applicant revised the Project following public review to include larger 20-foot by 20-foot garages as well as 10 additional guest parking spaces. On October 29, 2025, the I-15 DRB voted to recommend approval of the Project based on the included revisions by a vote of 4-0-1 (4-Yes, 0-No, 1-Vacant/Absent).
Involved Parties
Pass 4 4, LLC, Molo Passerelle, LLC, and International Foundation of the Seven Stars (Owner and Applicant) formerly Passerelle LLC (Owner and Applicant)
Planning Commission Vote
On July 10, 2026, the Planning Commission voted 7 Ayes, 0 Noes (Ayes: Ashman, Pallinger, Calvo, Sudberry, Edwards, Weber, and Sabellico) to recommend approval of the Project and find the Project in conformance with CEQA through the processing of an addendum to a previously certified EIR. The Planning Commission recommended that the Board of Supervisors take the following actions on the Project:
1) Adopt the Environmental Findings for the Project, which includes a finding that the Project is found in conformance with the California Environmental Quality Act (CEQA) through the processing of an addendum to the previously certified Environmental Impact Report (EIR) for Campus Park (Attachment A).
2) Adopt a Resolution entitled: A Resolution of the Board of Supervisors of the County of San Diego Relating to Adopting General Plan Amendment PDS2021-GPA-21-003 (Attachment B).
3) Adopt a Resolution entitled: A Resolution of the Board of Supervisors of the County of San Diego Relating to Approving Specific Plan Amendment PDS2021-SPA-21-001 (Campus Park Specific Plan) (Attachment C).
4) Adopt the Form of Decision approving the Revised Tentative Map PDS2021-TM-5338R which includes those requirements and conditions necessary to ensure that the Project is implemented in a manner consistent with State Law and the County of San Diego regulations (Attachment D).
5) Grant Site Plan (Record ID: PDS2021-STP-21-013) and include the requirements and conditions as set forth in the Site Plan Form of Decision (Attachment E).
See Attachment F, Planning Commission Action Sheet, for the Planning Commission vote and recommendation.
Background
Project Vicinity Background
In the early 1980s, the County of San Diego Board of Supervisors (Board) approved the Sycamore Springs Specific Plan and eventually the Campus Park Specific Plan which was known as the Hewlett Packard site. Portions of the original Campus Park Specific Plan were approved for 2.5 million square feet of industrial uses, approximately 10 acres of commercial uses, 150 condominium dwelling units, and a mobile home park. In the mid-2000s to early 2010s, three Specific Plans were processed primarily in the northeast quadrant of the State Route 76 (SR-76) and Interstate 15 (I-15) Interchange known as Campus Park, Campus Park West, and Meadowood. The Campus Park development consists of 751 dwelling units, recreational facilities, 157,000 square feet of office professional uses, and 61,200 square feet of general commercial uses. In the late 2010s, the residential uses and public park of Campus Park were constructed in a development known as Horse Creek Ridge. The office professional and town center site containing the general commercial uses are currently graded but vacant. The Meadowood development consists of 844 dwelling units, a school site with an option for 42 additional units, and recreational uses. The Meadowood development is now known as Citro and has been fully constructed with the exception of the school site which remains vacant. The Campus Park West development consists of 513,000 square feet of general commercial uses, 120,000 square feet of industrial uses, and 283 dwelling units. The Campus Park West development is now known as Pala Ranch and has not been constructed. The Campus Park West applicant is in the process of coordinating with Caltrans and finalizing conditions associated with the development.
Since construction of the residential component of Horse Creek Ridge in the late 2010s, the office professional site and town center sites have remained graded and vacant. The applicant has stated that they have not received interest in or demand for the development of the office professional property. The applicant prepared a market analysis, which has been reviewed by a third-party consultant, that concludes office professional uses will no longer be viable for development of the site. The applicant has submitted the subject application to convert the office professional use to dwelling units due to lack of demand and lack of viability of the office professional uses that were designed in the mid-2000s, and the need for housing in the region.
Project Description
An application for the proposed Passerelle project (Project) was submitted by Pass 4 4, LLC, Molo Passerelle, LLC, and International Foundation of the Seven Stars (Applicant), formerly Passerelle, on April 30, 2021 for the development of 138 residential units on an 11.96-acre property located within the Fallbrook Community Planning Area and I-15 Design Review Corridor in the Campus Park Specific Plan Area in the northeast quadrant of the State Route 76 (SR-76) and Interstate 15 (I-15) Interchange. The General Plan Regional Category for the site is Village, and the Land Use Designation is Specific Plan Area. The zoning for the site is Specific Plan (S88) and the zoning use regulations are defined in the Campus Park Specific Plan. The Project consists of a General Plan Amendment, Specific Plan Amendment, Revised Tentative Map, and Site Plan in order to allow for the development of a 138-unit condominium development designed as detached single-family dwelling units. The General Plan Amendment is required to modify the Campus Park section of the Fallbrook Community Plan to remove the office professional uses and add 138 multi-family condominium units. The Specific Plan Amendment includes revisions to the Campus Park Specific Plan in order to create development criteria and Zoning Use Regulations in the Specific Plan that will allow for the development of the proposed multi-family residential uses. The Revised Tentative Map will modify road improvement conditions and designate the area proposed for development as a condominium map for 138 units while designating the Town Center area as a Remainder Parcel. A Conditional Certificate of Compliance will be required at the time of development of the Town Center. The Site Plan permit is required in accordance with the “B” Special Area Designator of the property for Community Design Review as well as to establish the setbacks of the Project in accordance with the “V” Setback Designator.
The dwelling units are designed as four plan types that each include three architectural styles. Each floor plan type includes a three-story dwelling unit that reaches a maximum height ranging from 26 to 31 feet. The four plan types range in size from 2,282 square feet to 2,616 square feet excluding garage space and including a third story room. Each garage is at least 400 square feet. The three architectural designs of the dwelling units are Spanish, Cottage, and Craftsman.
Access to the residential development sites would be provided by residential driveways connecting to Friesian Way, Messara Street, and Horse Ranch Creek Road. The Project includes road improvements and widening to Horse Ranch Creek Road along the project frontage and the Horse Creek Ridge County Park. Road transition improvements to Horse Ranch Creek Road will be constructed along the Remainder Parcel and north of the proposed residential parcel to tie into the existing roadway.
Project Analysis
During the processing of the Project, staff received input from the surrounding community with concerns and general questions regarding the Project. Fallbrook Community Planning Group (CPG) and community member comments focused primarily on questions and comments associated with parking, traffic, fire access, density, parks, and the timing of construction of the town center portion of the Campus Park Specific Plan. Staff evaluated these concerns during the process and have addressed the concerns through the analysis and conditions of approval. Below is a summary of the concerns and how they were each addressed during the process.
Traffic and Transportation
The Project site is currently designated for 157,000 square feet of office professional use in the Campus Park Specific Plan. The traffic analysis for the original Campus Park Specific Plan and EIR estimated that the office professional use would generate approximately 2,669 Average Daily Trips (ADT). A new traffic analysis was prepared for the Project and 138 multi-family units which estimates that the Project will generate 1,380 ADT, which is a 48% reduction. Since the project will result in less traffic than was studied in the EIR, case law has confirmed the project is not required to analyze Vehicle Miles Traveled (VMT) and can evaluate the project’s traffic using level of service (LOS).
The Project will result in full width frontage improvements of Horse Ranch Creek Road from Friesian Way to Gold Palomino Way along the frontage of the multi-family residential Project site and in front of the Horse Creek Ridge County Park. The frontage of the Remainder Parcel will include a transition improvement to tie into the existing roadway configuration of Horse Ranch Creek Road. In addition, where Horse Ranch Creek Road transitions into Pankey Road north of the Project site, transition improvements will be constructed to match the existing roadway configuration. A Conditional Certificate of Compliance will be required at the time of development of the town center property which will require for construction of the remaining frontage improvements of Horse Ranch Creek Road. With the incorporation of the Project frontage improvements and reduction in trips, the Project will not result in significant traffic impacts beyond what was analyzed in the previously certified Campus Park EIR.
Parking
The Project includes a two-car garage for each unit as well as 65 guest parking spaces for a total of 341 parking spaces. Each attached garage is designed to be a minimum of 20-feet by 20-feet in accordance with the County of San Diego Parking Design Manual. The guest parking spaces will be spread throughout the development site with guest parking spaces located on one side of the roads in order to maintain a 24-foot lane for fire access.
Affordable Housing
The Project was submitted in 2021 prior to the adoption of a formal Inclusionary Housing Ordinance in 2026 and is not subject to the IHO. In accordance with General Plan policies such as General Plan Policy H-1.9, County staff and the Project applicant created an affordable housing condition for the Project. The Project is conditioned to either pay an in-lieu fee or construct five percent of the proposed units as affordable units onsite using the Very Low-Income Category. The in-lieu fee rate is proposed to be $11.63 per livable area square foot. Using an approximate livable area of 1,900 square feet and a 7-unit affordable housing unit on-site construction requirement, in-lieu fees for the Project would result in 2.6 to 2.9 million dollars. If the applicant chooses to construct units on-site, the Project will result in construction of five percent of on-site units as affordable housing which is a minimum of seven units.
If the application was submitted after the adoption of the Inclusionary Housing Ordinance, the Project would be required to include 20% of the development as affordable housing units as it consists of a General Plan Amendment. Using an average of 2,400 square feet of each unit and an in-lieu fee rate of $41.82 per square foot of a unit, the Project would require approximately 11 million dollars of in-lieu fees.
Greenhouse Gas Emissions
Greenhouse Gas Emissions for the Project were quantified in a Greenhouse Gas Analysis and compared to the approved buildout of the site as 157,000 square feet of office professional uses. Greenhouse gas emissions are quantified as metric tons of carbon dioxide equivalent (MT CO2e). Operational emissions of the approved buildout of the office professional uses are estimated as 3,223 MTCO2e. The operational emissions of the proposed 138-unit residential development are estimated as 2,548 MTCO2e. The majority of emissions associated with uses are tied to mobile sources or traffic. The proposed 48% reduction in ADT will result in reduction of emissions associated with vehicle trips. The Project is anticipated to generate less GHG, ADT, and emissions compared to the approved buildout of the site. The Project will require preparation of a Landscape Plan which requires demonstrating compliance with water reduction measures consistent with the County Landscaping Ordinance. It should also be noted that the residential units associated with the Project will require installation of solar in accordance with the Building Code. The Project will also not include natural gas for operations and will require installation of electrical vehicle infrastructure within garages of the residential dwelling units. Therefore, the Project will not result in an increase of impacts beyond what was analyzed in the previously certified Campus Park EIR.
Community Facilities District and Parks
The Project is located directly adjacent to the Horse Creek Ridge residential development as well as the Horse Creek Ridge County Park. The approximately 8.5-acre Horse Creek Ridge County Park was constructed in the mid-2010s as part of the Horse Creek Ridge development within the Campus Park Specific Plan Area and is owned and operated by the County of San Diego. The Horse Creek Ridge residential development is tied to a Community Facilities District (CFD) which includes taxes for residents in the Horse Creek Ridge Development specifically for funding maintenance of public parks, North County Fire Protection District (NCFPD) services, and stormwater facilities.
The Project is subject to the Park Land Dedication Ordinance (PLDO) as it consists of a residential development with over 50 proposed units. The Project will require payment of PLDO fees. In addition, the Project is conditioned to either modify the existing Horse Creek Ridge CFD or create a new CFD which will allow for funding of the same facilities of the Horse Creek Ridge residential development including maintenance of the adjacent Horse Creek Ridge County Park, North County Fire Protection District services, and stormwater facilities in the event that the Project ties into the stormwater facilities for treatment during Final Engineering. Lastly, the Project includes two privately-maintained compact playground lots and three passive park areas for use by residents of the Project.
Fire Protection
A Fire Protection Plan and an Evacuation Plan were prepared for the Project. The Project includes design features to address fire code requirements such as parking spaces only on one side of the interior roads to maintain adequate fire access. Additionally, the Project will result in the construction of fire hydrants that are compliant with hose pull requirements. The Project will be served by the NCFPD and is located approximately a mile northwest of an existing NCFPD fire station at the southwest corner of Pala Mesa Drive and Old Highway 395. The NCFPD is currently in the process of developing and replacing the existing fire station with a new building that will assist in providing adequate fire service to uses and residents in the Project vicinity. As previously discussed, the Project is conditioned to either modify the existing Horse Creek Ridge CFD or create a new CFD which includes funding for North County Fire Protection District services. Primary access to the site is provided by Horse Ranch Creek Road that ultimately connects to SR-76 and I-15 south of the Project site and Pankey Road Old Highway 395 north of the Project site. The majority of Horse Ranch Creek Road will be widened to full width for adequate fire access. An Evacuation Plan was prepared for the Project and determined the Project could be evacuated during a wildfire event, and would not significantly impact the existing community or their ability to evacuate. The Project would add approximately five percent more vehicles onto surrounding roadways during an evacuation and increase overall evacuation by approximately ten minutes. The Evacuation Plan also identifies that residents within the existing Horse Creek Ridge development and the Passerelle Project can evacuate using multiple routes in accordance with fire requirements.
Environmental Statement
The Project has been reviewed for compliance with the CEQA, and an addendum to a previously Certified Environmental Impact Report (EIR) was prepared. The addendum to the previously certified EIR was circulated for public review along with the General Plan Amendment and Specific Plan Amendment for a 50-day public review period from December 19, 2024, through February 7, 2025. Staff received 37 formal comments from individuals including residents in the community and the nearby Horse Creek Ridge development as well as organizations such as Caltrans, Sierra Club, and the Endangered Habitats League. It has been determined that the Project, as designed, will not cause any significant impacts to the environment which require mitigation measures that were not previously analyzed in the certified EIR. There are no substantial changes to the Project, changes in circumstances, or new information that would result in new significant environmental effects or a substantial increase in the severity of previously identified significant effect from what was analyzed in the certified EIR.
Public Input
At the time of application submittal and in accordance with Board Policy I-49 and the noticing requirements in effect for the application submittal, public notices were sent to property owners within a minimum radius of 300 feet of the project site. Throughout the initial processing of the application, staff received concerns from residents within the Project vicinity regarding traffic, parking, density, use of parks, and conversion of additional commercial uses in the Campus Park Specific Plan Area.
General Plan Amendment and Specific Plan Amendment Public Review
The General Plan Amendment, Specific Plan Amendment, and CEQA documents associated with the Project were circulated for a 50-day public review period from December 17, 2024, through February 7, 2025. Public notices were sent to property owners within a 1,500-foot minimum radius of the Project site which included over 1,100 notices. Staff received 39 formal comments from individuals including residents in the community and the nearby Horse Creek Ridge development as well as organizations such as Caltrans, Sierra Club, and the Endangered Habitats League.
Residents of the Horse Creek Ridge development expressed concerns regarding access to the private parks within the Horse Creek Ridge development by new residents of the Passerelle Project, construction timing of the town center, fire access, parking, and traffic. Following public review and coordination with the Fallbrook Community Planning Group (CPG) and I-15 Design Review Board (DRB), the applicant revised the Project design to include larger garages as well as 10 additional guest parking spaces to address parking concerns. The Horse Creek Ridge development includes several private parks that are managed by the Homeowner’s Association. Several of the parks include access gates and locks. The Horse Creek Ridge Homeowner’s Association would be responsible for managing access to private parks within the Horse Creek Ridge development.
Since conclusion of public review, County staff have continued to receive feedback and comments from community members regarding timing of construction of the town center of Campus Park as well as concerns that the town center will be converted if the Project is approved. Additionally, community members have expressed interest in additional commercial uses in the area. The use of the town center will remain unchanged in the Campus Park Specific Plan Area upon implementation of the Project. County staff have not received an application to convert any component of the town center of Campus Park. It should be noted that a Site Plan (Record ID: PDS2020-STP-20-021) was approved in early 2025 for the redevelopment of the Pala Mesa Market commercial property to include remodeling of the existing market as well as construction of a gas station with a convenience store, and two 6,000 square foot retail buildings. The Pala Mesa Market property is located approximately a mile and a half southwest of the Campus Park Specific Plan Area. Additionally, the Campus Park West Specific Plan Area that has not yet been built contains approximately 513,000 square feet of approved commercial uses. The Campus Park West development is in the process of final engineering and the Campus Park West applicant team has been coordinating with Caltrans and outside agencies to satisfy conditions associated with the Project.
Department Reasons for Recommendation
The Project complies with all applicable County regulations and CEQA. The Project will provide new housing opportunities, including a contribution to providing affordable housing through either paying an in-lieu fee or the construction of five percent of the proposed units as very-low-income affordable units. The Project will result in the use of an underutilized office professional property for the development of residential uses and contribute to the buildout of the Mobility Element road network of the County of San Diego General Plan.
Linkage to the County of San Diego Strategic Plan
Today’s proposed action supports the Strategic Initiatives of Equity, Empower, and Community in the County of San Diego’s 2026-2031 Strategic Plan by ensuring that San Diego is a vibrant region with planning, development, infrastructure, and services that strengthen the local economy. The Project is aligned with the goal to provide housing opportunities because it will create 138 housing units while developing vacant office professional sites and building out the Mobility Element road network.
Respectfully submitted,
Dahvia Lynch
Deputy Chief Administrative Officer
Attachment(s)
Note: Due to the size of the attachments, the documents are available online through the Clerk of the Board's website at www.sandiegocounty.gov/content/sdc/cob/bosa.html <http://www.sandiegocounty.gov/content/sdc/cob/bosa.html>
Attachment A - Environmental Findings
Attachment B - A Resolution of the Board of Supervisors of the County of San Diego Relating to Adopting General Plan Amendment PDS2021-GPA-21-003
Exhibit A - Proposed Modifications to the Fallbrook Community Plan
Attachment C - A Resolution of the Board of Supervisors of the County of San Diego Relating to Approving Specific Plan Amendment PDS2021-SPA-21-001 (Campus Park Specific Plan)
Attachment D - Form of Decision Approving Revised Tentative Map PDS2021-TM-5338R
Attachment E - Form of Decision Approving Site Plan PDS2021-STP-21-013
Attachment F - Environmental Documentation Including General Plan Consistency Table
Attachment G - Public Documentation
Attachment H - Planning Commission Report, Action Sheet, and Supporting Documentation
Attachment I - Planning Documentation
Attachment J - Ownership Disclosure
Attachment K - Defense and Indemnification Agreement
*Comments received during the public review period are available at:
<https://www.sandiegocounty.gov/content/sdc/pds/ceqa/SPA-21-001.html>
**Supporting documents for the July 10, 2026 Planning Commission Hearing are available at:
<https://www.sandiegocounty.gov/content/sdc/pds/PC/sop/260710-pc-hearing.html>