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provided by the County. All lands within Flag City are designated Commercial Freeway Service (C/FS)by the San Joaquin County General Plan,and are zoned Commercial Freeway Service(C- FS)by the County. Development of Flag City was initiated and approved by the County in the early 1990s. Land use for Flag City is regulated by the San Joaquin County General Plan, the County's Development Title (zoning and development codes), and by several Special Purpose Plans specific to the Flag City area: Special Purpose Plan PP-94-0002-Flag City Comprehensive Site Plan; Special Purpose Plan PP-98-0003 - Realignment of Thornton Road/State Route 12 intersection;and Special Purpose Plan PA-0700226-Flag City(CSA 31)Design Guidelines. The southern 6.5 acres of the Project site received its current General Plan designation and zoning during the Special Purpose Plan process. A request for approval of a General Plan amendment and zone reclassification of the 5.1-acre northern portion of the site for freeway service commercial use was submitted to the County in 2010. On March 1, 2011, the Board of Supervisors approved General Plan Map Amendment PA-1000183, re-designating the 5.1-acre area from General Agriculture to Freeway Service, and Zone Reclassification No. PA-1000184, rezoning this area from General Agriculture,40-acre minimum,to Commercial Freeway Service. This approval required annexation of the area into CSA 31. On April 15,2011,the San Joaquin County Local Agency Formation Commission (LAFCO) approved the annexation. On November 3, 2010, a Lot Line Adjustment and Merger Application No. PA-1000232 was approved by the County's Community Development Department to merge five parcels and adjust the lot line between the remaining two parcels. As a result, the Project site is one parcel; a remainder parcel located immediately adjacent to the Project site remains in agricultural use. These approvals were followed by an application to the County for approval of a Use Permit (Application 14 No. PA-1000131, "Use Permit")for the Project. A Site Approval application to modify the sign requirements pursuant to Development Title 9-1710(4)0) was also submitted. The County prepared an Initial Study/Mitigated Negative Declaration for the Project(IS/MND) on April 14, 2011 (County File No: PA-1000131), which was released for public and agency review and circulated to the State Clearinghouse (State Clearinghouse#2011042053). The 30- day review period extended from April 19, 2011, to May 18, 2011. The IS/MND analyzed the impacts of the Project and determined that all impacts of the Project would be less than significant with implementation of identified mitigation measures. No substantive comments were received from public agencies or members of the public during the public review period. Consequently,the Project was scheduled for public hearing. On May 19, 2011, the San Joaquin County Planning Commission unanimously approved the requested Use Permit and Site Approval Application and concurrently adopted the Mitigated Negative Declaration for the Project. The Planning Commission's approval was subsequently appealed by Pilot Travel Centers LLC ("Pilot"), owner of the existing Pilot Flying J Truck Stop immediately west of and across Thornton Road from the site. The appeal was heard by the Love's Travel Stops Environmental Impact Report 3 Findings of Fact and Statement of Overriding Considerations