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Date: |
September 16, 2026 |
05 |
Title
Noticed Public Hearing:
Approve the Starlight Solar Project to Allow for the Development of a Solar Energy Generation and Storage Facility and Certify the Environmental Impact Report (District: 2)
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Overview
Today's requested action is for the Board of Supervisors (Board) to consider a Major Use Permit (MUP), Fire Protection and Mitigation Agreement, and Environmental Impact Report (EIR) for the Starlight Solar Project (Project). The Project is a solar energy generation and storage facility which will generate up to 100 megawatts (MW) of solar power and include a 217.4 MW battery energy storage system (BESS). The Project will be developed on an approximately 588-acre site and includes an approximately 448-acre off-site biological open space easement. Electricity will be delivered through a generation-tie line to the existing San Diego Gas & Electric (SDG&E) Boulevard Substation.
The Project site is located south of the community of Boulevard in the Mountain Empire Subregional Plan Area, approximately one mile south of Interstate 8 and Old Highway 80 and approximately one mile north of the United States/Mexico international border (Attachments H and I). The Project will include photovoltaic modules, inverters and transformers, an on-site collector substation, BESS equipment, internal access roads, and associated electrical infrastructure.
The Project will be constructed in two phases. Phase I includes 20 MW of solar generation and 17.4 MW of battery storage. Phase II includes 80 MW of solar generation and 200 MW of battery storage. Phase I is supported by a power purchase agreement (PPA) with SDG&E. A PPA is a long-term contract between a buyer and a power generator, where the buyer agrees to purchase electricity at a pre-agreed price for a set period. No power purchase agreement has been executed for Phase II. In response to community concerns, Planning & Development Services (PDS) recommended additional setbacks including a 300-foot buffer from Jewel Valley Road, a 400-foot setback from the northernmost property line, and a 500-foot setback from existing permitted residences. These revisions will reduce the solar facility and MUP footprint from approximately 588 acres to approximately 516 acres, a reduction of about 14 percent.
On July 10, 2026, the Planning Commission voted 7-0 to support the PDS recommendation with additional conditions. The Commission recommended a water retention basin beneath the BESS locations to prevent contaminated water from leaving the site during a fire, locating the Phase II BESS as far south as feasible, additional on-site dust monitoring, reallocation of community-benefit dollars from Phase II to Phase I, and additional community benefits to be provided for Boulevard. For purposes of this Board Letter, the “Staff-Recommended Project” discussed below is inclusive of the Planning Commission recommendations.
During the PC hearing, Empire II, LLC (Applicant) agreed to all of these conditions, including looking into the feasibility of relocating the Phase II BESS to the south. As discussed in the project analysis below, the Applicant has provided an alternative option for the location of the Phase II BESS.
Today, the Board is requested to consider the MUP and the Fire Protection and Mitigation Agreement, and to certify the Final EIR. Staff recommends the Board approve the Project with the additional setbacks and conditions requested by the Planning Commission. The Board can approve the Staff-Recommended Project, approve with modifications, or deny the Project.
With the exception of the increased setbacks and potential relocation of the Phase II BESS, the Staff-Recommended Project is consistent with the Proposed Project evaluated in the EIR in terms of its overall use, scale, and operational characteristics. Should the Board select a project configuration or alternative that has not been evaluated in the EIR, additional environmental analysis may be required to ensure continued compliance with the California Environmental Quality Act (CEQA).
Body
Recommendation by Planning Commission:
On July 10, 2026, the Planning Commission considered the Starlight Solar Major Use Permit and made the following recommendations to the Board of Supervisors:
1) Adopt the Environmental Findings, including certification and findings regarding the significant effects of the Project, the mitigation monitoring and reporting program, and the Statement of Overriding Considerations, and certify the EIR, Environmental Log PDS2022-ER-22-21-002, including consideration of the Staff-Recommended Project described below, pursuant to the California Environmental Quality Act (CEQA) (Attachment A, on file with the Clerk of the Board).
2) Adopt the Staff-Recommended Project described in this Board Letter, including the increased setbacks, and the Planning Commission's recommendations, including a water retention basin beneath the BESS locations to prevent contamination, locating the Phase II BESS as far south from the community as feasible, additional on-site dust monitoring, reallocation of community-benefit dollars from Phase II to Phase I, and additional community benefits towards the community of Boulevard.
3) Approve Major Use Permit PDS2022-MUP-22-010 and impose the requirements and conditions set forth in the Form of Decision, including the revised community-benefit requirements, Phase II BESS siting, enhanced real-time dust-monitoring, BESS water retention containment requirements, and additional conditions to address community concerns (Attachment B, on file with the Clerk of the Board).
4) Approve the Fire Protection and Mitigation Agreement between the County and Empire II, LLC (Applicant), and authorize the County Fire Warden or their representative to sign the agreement for the County (Attachment C).
Recommendation by Department of Planning & Development Services:
Planning & Development Services (PDS) concurs with the recommendations made by the Planning Commission, and makes the following additional recommendation to the Board of Supervisors (Board):
1) Require Empire II, LLC (Applicant) to enter into a standard 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 the Applicant to provide security in the amount of $1,250,000 in the form of an irrevocable letter of credit or bond, in the form acceptable to County Counsel, within 10 days of litigation being filed (Attachment D, on file with the Clerk of the Board).
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Equity Impact Statement
The Starlight Solar Project (Project) will produce renewable energy. Empire II, LLC (Applicant) has entered into a 12-year term Power Purchase Agreement (PPA) with San Diego Gas & Electric (SDG&E) for Phase I of the Project to provide renewable electricity to customers in the SDG&E service territory, which includes customers in the incorporated cities in San Diego County, plus the unincorporated county as well as portions of Orange County. SDG&E will purchase the power produced by the Project and feed it into the electricity grid, while SDG&E will maintain the grid and deliver the power to customers. The Applicant does not currently have a PPA for Phase II. The Applicant has also voluntarily offered a community-benefits package for the Boulevard community. The package will provide at least $1 million before Phase I construction as well as a Phase II contribution calculated at $26,738 per megawatt (approximately $7 million). This would result in approximately $8 million in community benefits. The funds will be deposited into an endowment that will allow yearly funding for projects within the community of Boulevard.
Sustainability Impact Statement
Implementation of the Starlight Solar Major Use Permit (Project), including a solar energy generation and storage facility which will generate up to 100 megawatts (MW) and include a 217.4 MW battery energy storage system (BESS), will contribute to the County of San Diego Sustainability Goals which include reducing greenhouse gas emissions, supporting grid decarbonization, and reducing air pollution. The Project will generate renewable energy that will be used by the San Diego Gas and Electric (SDG&E) grid. The development of the utility-scale solar facility will be able to power approximately 65,000 homes a year. The Project will help reduce GHG emissions regionwide and help the region achieve State mandated emissions reduction goals.
Fiscal Impact
There is no fiscal impact associated with approval of Starlight Solar Project (Project), as it is a privately-initiated development application. Any processing costs incurred will be paid for by Empire II, LLC (Applicant) (or owner/developer). There will be no change in net General Fund cost and no additional staff years.
Business Impact Statement
N/A
Advisory Board Statement
The Boulevard Community Planning Group considered the Starlight Solar Project (Project) on multiple occasions. On November 6, 2025, the Group voted 4-0-1-1-1 to recommend approval with conditions addressing community benefits, setbacks, BESS fire risk, wildlife protections, ecological groundcover, fencing, panel reflectivity, and water harvesting. On April 10, 2026, the Boulevard CPG voted to send a letter to the County regarding concerns with the Project by a vote of 4-0-2-1 (4-Yes, 0-No, 2-Absent, 1-Vacant). On May 7, 2026, the Boulevard CPG voted to send a letter from California State Assemblymember Carl DeMaio to the County regarding concerns with the Project. These concerns included BESS relocation, evacuation access, additional community benefit funding, emergency notification, fire-water supply, emergency response resources, construction limitations, and dust monitoring. These recommendations and related correspondence are included in Attachment E.
Involved Parties
Empire II, LLC. See the Ownership Disclosure in Attachment F.
Planning Commission Vote
On July 10, 2026, the Planning Commission voted 7 Ayes, 0 Noes (Ayes: Ashman, Calvo, Edwards, Pallinger, Weber, Sudberry, and Sabellico) to recommend approval of the Starlight Solar Major Use Permit (Project) with additional setbacks and conditions. These included having all of the batteries include a containment barrier with a water retention system, that Phase II batteries be moved as far south as possible, additional onsite monitoring for dust control, and for Empire II, LLC to work with the County to reallocate funding from Phase II to Phase I for the community benefit fund. The Planning Commission also recommended staff require a third-party review of the plume analysis. During the hearing, County staff clarified that County Fire already requires a third-party review of the plume analysis (Attachment G).
Background
The Starlight Solar Major Use Permit (Project) site is largely undeveloped and lies within the privately owned Empire Ranch, a 3,795-acre property extending south from Old Highway 80 toward the United States/Mexico international border. The approximately 588-acre Project site is designated Rural Lands 80 (RL-80) by the County General Plan and is zoned General Rural (S92). Solar energy generation for off-site use is classified as a Major Impact Service and Utility under Section 6954 of the County Zoning Ordinance and requires approval of a Major Use Permit (MUP).
The Project will be developed in two phases. Phase I will occupy approximately 125 acres and include 20 MW of solar generation, 17.4 MW of battery storage, the on-site substation, and the initial generation-tie connection. Phase II will occupy approximately 456 acres and includes 80 MW of solar generation and 200 MW of battery storage. An existing private airstrip on the property will be used as a construction laydown area and will be removed and revegetated after Phase II to resolve an existing County code compliance matter.
The photovoltaic system, or solar panels, will include approximately 235,000 modules mounted on single-axis trackers, fixed-tilt racks, or a combination of both, with a maximum height of approximately 12 feet. Inverters and transformers will convert and increase voltage for delivery to the on-site substation and the SDG&E Boulevard Substation. The BESS will use modular, outdoor-rated, steel enclosures with fire detection, climate control, gas monitoring, and emergency shutdown capabilities. A 100-foot fuel modification zone will be maintained around BESS installations.
During review of the Draft EIR, the County received comments regarding proximity to homes and roads, visual character, cumulative energy development, groundwater, heat, wildfire and BESS safety, fire insurance, dust, biological resources, and environmental justice. In response, PDS required increased setbacks and a reduced development footprint. The Planning Commission added additional conditions discussed further below.
Staff-Recommended Project Description
The 588-acre Project site is located in the Boulevard community, approximately one mile south of Interstate 8 and Old Highway 80. The Staff-Recommended Project will generate up to 100 megawatts of solar power and include approximately 217.4 megawatts of a battery energy storage system. Electricity will be delivered to the existing SDG&E Boulevard East Substation. The Project site is located approximately one mile from Clover Flat Elementary School and approximately 450 feet from the nearest residence.
The Project will be constructed in two phases. Phase I will include 20 megawatts of solar generation and 17.4 megawatts of battery storage, while Phase II will add 80 megawatts of solar generation and 200 megawatts of battery storage. Project components will include solar panels, battery containers, inverter and transformer equipment, an on-site substation, electrical collection systems, access roads, fencing, lighting, and fire protection facilities.
In response to community concerns, the Project includes a 300-foot buffer from Jewel Valley Road, a 400-foot setback from the northernmost property line, and a 500-foot setback from existing permitted residences. These setbacks will reduce the development footprint by approximately 65 acres, from 581 acres to approximately 516 acres.
Based on the community’s request and Planning Commission recommendation, the Phase II battery storage system can be relocated to the southern portion of the site, approximately 1,800 feet from two residences and approximately 2,300 feet from two additional residences. The relocation will require approximately 1.76 miles of new 69-kilovolt overhead transmission line on structures approximately 50 to 80 feet tall. County Fire has indicated that either the original or relocated BESS location will be acceptable from a fire-safety perspective. Before Phase II permits are issued, an updated plume analysis will be prepared for the final location and reviewed by an independent qualified third party. The modeled plume distance of the Phase II batteries’ original location to the proposed location would remain substantially similar.
The Project will include six 10,000-gallon firefighting-water tanks, providing a combined 60,000 gallons, or approximately four hours of water at 250 gallons per minute. Before Phase I construction, Empire II, LLC (Applicant) will prepare a Water Quality Control Plan identifying measures to prevent, contain, monitor, and clean up any contaminated water or hazardous materials released during a battery incident. The plan will need to demonstrate that the proposed water retention system has adequate capacity for the anticipated emergency-response water volume.
The Applicant has also agreed to enhanced dust monitoring during construction. Upwind and downwind air quality monitors and an on-site wind sensor will be used to calculate the Project’s dust contribution using a methodology consistent with air quality monitoring standards. Monitoring results will be displayed on a publicly accessible website operating 24 hours per day, seven days per week. Corrective dust-control measures will be required if the Project exceeds certain limits.
The Applicant has voluntarily offered a community-benefits package for the Boulevard community. The package will provide at least $1 million before Phase I construction as well as a Phase II contribution calculated at $26,738 per megawatt (approximately $7,000,000). The funds will be deposited into an endowment that will allow yearly funding for projects within the community of Boulevard. All fund distributions will be required to be used solely within Boulevard’s geographic boundaries.
Project Analysis
Planning & Development Services (PDS) reviewed the Starlight Solar Major Use Permit as described in the Overview section (Staff-Recommended Project) for conformance with all relevant ordinances and guidelines, including the San Diego County General Plan, the Mountain Empire Subregional Plan, the County of San Diego (County) Zoning Ordinance, and the California Environmental Quality Act (CEQA) Guidelines.
Consistency with Applicable Plans and Ordinances
PDS reviewed the Staff-Recommended Project for consistency with the County General Plan, the Mountain Empire Subregional Plan, the Boulevard community planning framework, the County Zoning Ordinance, the County Consolidated Fire Code, the Watershed Protection Ordinance, the Noise Ordinance, the Light Pollution Code, and other applicable requirements. The Staff-Recommended Project will place renewable generation and storage near existing electrical infrastructure, will be unoccupied and remotely monitored during operations, and will generate only occasional operational traffic. With the MUP conditions, required mitigation, and decommissioning obligations, PDS determined that the required MUP findings can be made.
Staff-Recommended Setbacks and Site Design
The Staff-Recommended Project will establish a 300-foot buffer from Jewel Valley Road, a 400-foot setback from the northernmost property line, and a 500-foot setback from existing permitted residences. These changes will reduce the Staff-Recommended Project's development footprint by approximately 65 acres. These changes will provide additional distance from homes and community travel routes. However, PDS conservatively assumes that visual impacts will remain significant and unavoidable.
Aesthetics and Visual Resources
The increased setbacks will provide greater separation from nearby residences and Jewel Valley Road and will reduce the visual prominence of the Staff-Recommended Project. Lighting will be limited to that required for safety and security and will be shielded and directed downward. Although these measures will reduce visual impacts, the Staff-Recommended Project will still introduce utility-scale infrastructure into a largely undeveloped rural area. Therefore, visual impacts will remain significant and unavoidable. However, the Board of Supervisors can approve the Staff-Recommended Project by adopting a Statement of Overriding Considerations.
Biological Resources
Public comments were received regarding potential impacts to biological resources, including special-status plant and wildlife species, native vegetation communities, and wildlife movement and corridors. The 588-acre site contains chaparral, grassland, oak woodland, disturbed areas, and habitat suitable for special-status species. The Project will include an approximately 448-acre off-site biological open space easement which will protect sensitive vegetation communities and habitat for special-status species. In addition, the Project will include a wildlife movement corridor with a minimum width of 150 feet through the site, which will maintain north-south wildlife movement and connectivity between surrounding open space areas. The proposed perimeter fencing will allow wildlife passage where appropriate while preventing unauthorized vehicle access.
Mitigation measures to reduce impacts to biological resources, including biological monitoring, preservation of habitat within an off-site open space easement, preparation and implementation of a resource management plan, and species avoidance are required as conditions of approval. With implementation of these measures, impacts on biological resources will be reduced to less than significant.
Air Quality and Construction Dust
Public comments raised concerns regarding dust generated during grading and construction. At its July 10, 2026 hearing, the Planning Commission voted to recommend approval with additional on-site dust-control monitoring. To implement this recommendation, staff added enhanced construction-dust monitoring conditions. During active ground disturbance, monitors will be placed upwind and downwind of the construction area to distinguish dust generated by the Project from existing background conditions. Monitoring results, wind conditions, and any corrective actions will be available to the public through a continuously accessible website.
If monitoring shows that the Project’s dust contribution exceeds the established action level, Empire II, LLC (Applicant) will be required to stop the affected work, apply water or dust suppressant, or implement other effective controls until dust levels return below the threshold. The condition will also require backup monitoring during equipment failures, stabilization of disturbed areas when work is not occurring, and maintenance of monitoring and inspection records.
These requirements respond directly to the Planning Commission’s recommendation by providing the County and the public with current information and establishing a clear process for addressing construction dust. The County could use the monitoring records to require corrective measures or suspend ground-disturbing activities when warranted.
Water Quality and Containment
The Planning Commission recommended requiring a containment barrier with water retention beneath for both phases to prevent contaminated water runoff from reaching the groundwater table during a BESS fire. In response, a condition was added to require a Water Quality Control Plan before issuance of grading or construction permits for both phases.
The plan will identify potential accidental releases, including contaminated water generated during a BESS thermal runaway or fire event, and will describe measures to prevent, contain, monitor, and clean up contaminants. The plan will also include calculations demonstrating that the proposed retention or containment system has sufficient capacity for the anticipated emergency-response water volume.
The condition does not prescribe a particular liner material or a fixed containment volume. Those details will be established through the Water Quality Control Plan based on the final BESS equipment, pad layout, drainage area, and anticipated emergency-response activities. If an unauthorized discharge occurs, the Applicant will be required to notify the County, and provide documentation regarding monitoring, cleanup, and corrective actions.
Battery Energy System Storage Plume Modeling and Phase II BESS Potential Relocation
The July 8, 2026 supplemental plume study revised the meteorological inputs after uncertainty arose regarding whether the previously identified Boulevard weather station had been moved. The updated analysis used data provided by SDG&E from a weather station located at the Boulevard substation near the proposed Starlight BESS site.
The updated study modeled a maximum Acute Exposure Guideline Level 2 (AEGL-2) distance of approximately 660 feet and maximum AEGL-1 distances of approximately 2,230 feet. AEGL-2 is a screening level associated with potential serious or irreversible effects from a short-term exposure, while AEGL-1 is associated with potential discomfort or irritation. The originally proposed location of the Phase II batteries has seven residences within 2,230 feet. The Planning Commission recommended locating the Phase II battery energy storage system as far south as feasible, away from residences and community improvements. In response, the Applicant has proposed relocating the Phase II BESS to the south of Jewel Valley Road. The relocated Phase II BESS will have approximately two residences within 2,230 feet.
The relocation will require approximately 1.76 miles, or 9,300 feet, of new 69-kilovolt overhead transmission line supported by structures approximately 50 to 80 feet tall. County Fire has reviewed the concept and has indicated that either the original Phase II BESS location or the proposed location will be acceptable from a fire-protection perspective. If this alternative location is chosen, the Board of Supervisors can still approve the Project due to the Statement of Overriding Considerations already acknowledging visual impacts as significant and unavoidable.
The modeled plume distance of the Phase II batteries’ original location to the proposed location would remain substantially similar. Consistent with the Planning Commission's recommendations, an updated Plume Analysis will be prepared prior to construction and will note the final location of the BESS facility as well as the final battery type and will be reviewed and accepted by the San Diego County Fire Protection District and a third-party reviewer.
Wildfire Protection and Emergency Response
Public comments were received regarding wildfire risk and potential thermal runaway events associated with the BESS. The Project will use lithium iron phosphate batteries and will include early detection, alarms, remote monitoring, emergency shutdown controls, and gas or explosion monitoring. A minimum 100-foot fuel modification zone will be maintained around BESS equipment, and vegetation within the solar facility will be maintained in accordance with the approved Fire Protection Plan.
The Project will include six 10,000-gallon water tanks with fire department connections. This water will primarily be used for exposure protection, cooling adjacent equipment, protecting surrounding vegetation, and preventing fire spread, rather than as the primary means of extinguishing thermal runaway within a battery enclosure. Additional water could be provided by responding fire engines carrying onboard water, water trucks from nearby fire stations, and helicopters capable of aerial water drops. To address public concerns, the Applicant has also offered the existing agricultural pond on Empire Ranch as an additional firefighting water source. The pond contains an estimated minimum of 1.8 million gallons, or approximately 5.5 acre-feet, which could provide water for about 120 hours, or five days, at a continuous flow of 250 gallons per minute.
The Applicant will also enter into a Fire Protection and Mitigation Agreement to provide funding toward local emergency-response capabilities. The Fire Protection Plan and Hazardous Materials Business Plan will be updated and reviewed by County Fire to reflect the final BESS equipment and approved Phase II location.
Community Benefits
The Applicant has voluntarily offered a community benefits package for the Boulevard community, defined as the area within the Boulevard Subregional Plan Area. Before the Planning Commission hearing, the Applicant offered approximately $903,579 for Phase I and a Phase II contribution calculated at a rate of $26,738 per megawatt.
The Planning Commission recommended reallocating dollars from Phase II to Phase I. Based on this recommendation, the Applicant will provide an upfront contribution of at least $1,000,000 before Phase I construction permits are issued. The Phase II contribution will be provided before Phase II construction permits are issued and will be calculated at $26,738 per megawatt, which equates to approximately $7.4 million.
Major Use Permit Findings
As further detailed in the Form of Decision included in Attachment B, each of the required Major Use Permit findings can be made by PDS. The discussion below covers the scale, bulk, and coverage of the facilities in relationship to the site and surrounding area, availability of services, effects upon neighborhood character, generation of traffic and the capacity and physical character of surrounding streets, suitability of the site for the proposed use, and other relevant impacts.
The surrounding area can be characterized as primarily rural residential properties, undeveloped private lands, and existing renewable energy and electrical transmission facilities. The 588-acre Project site is located within the privately owned Empire Ranch, approximately one mile south of Interstate 8 and Old Highway 80 and approximately one mile north of the United States/Mexico border. The community of Boulevard is located north of the Project site, and the existing SDG&E Boulevard East Substation is located northeast of the site.
The Staff-Recommended Project will include a 300-foot buffer from Jewel Valley Road, a 400-foot setback from the northernmost property line, and a 500-foot setback from existing permitted residences. These setbacks will reduce the solar facility footprint and Major Use Permit area from approximately 581 acres to 516 acres. The Project has been designed to minimize impacts to the natural and developed environment on the site and within the vicinity. The Project has been designed to avoid cultural resources, sensitive habitat areas, special-status species, and steep slopes where feasible and to reduce the need for grading. Biological impacts will be mitigated through preservation of approximately 448 acres of off-site habitat and maintenance of a wildlife movement corridor through the Project site.
Existing renewable energy projects and associated SDG&E infrastructure have resulted in a change to the physical setting of the Project site and surrounding neighborhood character. Existing infrastructure in the area includes the Sunrise Powerlink, the Boulevard East Substation, and the Tule Wind, Kumeyaay Wind, Rugged Solar, and Boulevard Solar projects. The solar panels will be up to approximately 12 feet tall, the battery energy storage system enclosures will be no taller than approximately 10 feet, and the substation facilities will be up to approximately 50 feet tall. Existing transmission towers and wind turbines in the surrounding area are generally greater in height than the proposed Project components, and the Project substation will be consistent in scale with the existing Boulevard East Substation.
Several factors contribute to the suitability of the Project site for solar and battery energy storage development. The Project will locate renewable energy facilities near the existing Boulevard substation and electrical transmission infrastructure. The intensity of the proposed use is appropriate for the site because the facility will be unstaffed and remotely monitored during operation and will generate only occasional maintenance trips. Construction traffic will be temporary. Therefore, the project and the site are suited for the type and intensity of development proposed.
The Project site is designated Rural Lands 80 under the General Plan and zoned General Rural. Solar energy systems intended to provide power for off-site use are classified as Major Impact Services and Utilities and are allowed in the General Rural zone upon approval of a Major Use Permit. The MUP will include mitigation measures and decommissioning requirements to ensure that Project facilities are removed at the end of the Project’s operational life. The proposed location, size, design, and operating characteristics of the Staff-Recommended Project will be compatible with surrounding land uses and existing energy infrastructure.
The MUP findings can be made based on the increased setbacks, reduced development footprint, low-intensity and unstaffed operation, proximity to existing energy infrastructure, temporary nature of construction traffic, and decommissioning requirements. The proposed use is consistent with the General Plan and zoning designations, the Mountain Empire Subregional Plan, the Boulevard community planning framework, and applicable County renewable energy policies. All necessary public facilities and services will be available to the site based on technical studies and service availability information provided by the applicable utility providers and districts.
Environmental Statement
The Draft Final Environmental Impact Report (Final EIR) is available on the Planning & Development Services website. Attachment A to this Board Letter provides the California Environmental Quality Act (CEQA) Findings, which include the certification and findings regarding significant effects of the Starlight Solar Major Use Permit, the mitigation monitoring and reporting program, and the Statement of Overriding Considerations. The Final EIR determined that all potential impacts will be mitigated to less than significant except visual resources, which were determined to be significant and unavoidable.
Public Input
At the time of application submittal and in accordance with Board Policy I-49 and the noticing requirements in effect at the time of the application submittal, public notices were sent to property owners within a minimum radius of 1,500 feet of the Project site. The Staff-Recommended Project site is in the Mountain Empire Subregional Plan Area. The Empire II, LLC (Applicant) team and County staff conducted community outreach meetings to obtain community feedback on the Project.
• March 23, 2023 - Notice of Preparation Meeting (NOP) at Boulevard CPG
• August 7, 2025 - Public Review of Draft Environmental Impact Report Meeting
• October 6, 2025 - Boulevard CPG Meeting - Motion Failed to Pass
• November 6, 2025 - Boulevard CPG Meeting - Motion Passed with Conditions
• April 10, 2026 - Boulevard CPG Meeting - Motion Passed to send a letter to the County regarding concerns of the project
• May 7, 2026 - Boulevard CPG Meeting - Motion passed to send a letter to the County regarding the concerns of the project
• July 16, 2026 - Community Town Hall
The public review period for the Notice of Preparation (NOP) of the Draft Environmental Impact Report (EIR) began on March 23, 2023. During the NOP public review period, a public meeting was held by County Staff on April 12, 2023, at the Boulevard Community Resource Center in the community of Boulevard. The Notice of Preparation signifies the beginning of the EIR review and public participation process.
On June 10th, 2026, the County received a joint letter from the Sierra Club, San Diego 350, San Diego Bird Alliance, C4GS, In Good Company, Endangered Habitats League, and the Climate Action Campaign in support of the project due to local job creation, economic benefits, and clean energy investment in the County.
The County has also provided regular Project updates to receive stakeholder feedback throughout Project processing with environmental organizations and labor representatives.
In accordance with Board Policy I-49, notices were provided to nearby property owners and interested parties. More than 257 notices were sent within 4,000 feet for the Draft EIR public review. A total of 35 comment letters were received from organizations and individuals during the Draft EIR review period. Most comments addressed aesthetics, cumulative renewable-energy development, groundwater, heat island effects, wildfire and BESS hazards, evacuation, fire insurance, socioeconomic and environmental justice concerns, dust, noise, biological resources, and cultural resources.
Department Reasons for Recommendation
Planning & Development Services (PDS) recommends the Board of Supervisors (Board) approve the Staff-Recommended Project because it is consistent with the goals and policies of the General Plan, Mountain Empire Subregional Plan, and Boulevard Subregional Plan. In addition, the Proposed Project has been reviewed for compliance with the California Environmental Quality Act (CEQA). The Staff-Recommended Project will generate renewable energy that will be used by the San Diego Gas and Electric (SDG&E) grid. The development of the utility-scale solar facility will be able to power approximately 65,000 homes a year. The Staff-Recommended Project will help reduce GHG emissions regionwide and help the region achieve State mandated emissions reduction goals. Additionally, the Staff-Recommended Project has entered an agreement to sign a Project Labor Agreement (PLA), which guarantees a project will use union labor for the duration of project construction. A PLA generally specifies wages and benefits to be paid on a project, and it usually includes binding procedures to resolve labor disputes. A PLA can provide a sustainable workforce, diversity, uniform wages, and worker hiring from the local geographical labor pool when available. Lastly, the Applicant will provide community benefits to the community of Boulevard with an upfront contribution of at least $1,000,000 before Phase I construction permits are issued. The Phase II contribution will also be provided upfront before Phase II construction permits are issued and will be calculated at $26,738 per megawatt, which equates to approximately $7.4 million.
Linkage To The County Of San Diego Strategic Plan
Today’s actions support the Strategic Initiative of Sustainable Environments/Thriving in the County of San Diego’s 2026-2031 Strategic Plan by enhancing the quality of the environment by focusing on sustainability, pollution prevention, and strategic planning.
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 - CEQA and Environmental Findings, Mitigation Monitoring and Reporting Program, and Statement of Overriding Considerations
Attachment B - Form of Decision Approving Major Use Permit PDS2022-MUP-22-010
Attachment C - Fire Protection and Mitigation Agreement
Attachment D - Defense and Indemnification Agreement Between the County of San Diego and Applicant
Attachment E - Public Documentation
Attachment F - Ownership Disclosure
Attachment G - Planning Commission Action Sheet from July 10, 2026
Attachment H - Planning Commission Hearing Report
Attachment I - Planning Documentation