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HomeMy WebLinkAbout04/04/1995, C-7 - ENVIRONMENTAL QUALITY TASK FORCE (EQTF) FINAL REPORT. il�l�l�,ll�lllllln`II Ilulll Meeting Date: April 4, 1995 IY III ° i CIW Of San " IS OBISPO Item Number: i COUNCIL AGENDA REPORT C"7 FROM: Arnold B. Jonas, Community Development Director BY: Glen Matteson, Associate Planner SUBJECT: Environmental Quality Task Force (EQTF) final report. CAO RECOMMENDATION: 1) Receive and file the EQTF report; 2) address the EQTF recommendations for changes to City staff and processes during budget consideration of Council goals; and 3) direct staff to address. other recommendations as noted in this report. DISCUSSION & STAFF RECOMMENDATIONS The EQTF, established by Council in November 1993, was charged with recommending goals and strategies for protecting and enhancing the environment. The EQTF provided many recommendations concerning activities that were underway before the task.force was formed, including revisions to the land use, circulation, housing, and water sections of the General Plan. On their sunset date at the end of February, the EQTF transmitted its final report (A Vision for Sustainability in San Luis Obispo: Recommendations of the Environmental Quality Task Force, -distributed previously). Many of the items in the EQTF final report have been presented to, discussed by, and acted on by the Council in the last year. The final report's overall directions were previewed for the Council at a joint meeting with the EQTF on February 14. Following are the main features of the EQTF's report and corresponding staff recommendations. 1. Approved goals EQTF position: The City should carry out previously approved goals for environmental quality, including items from the General Plan and from the recent budget goal setting (highlighted on pages 3 through 8 of the EQTF report). Staff recommendation: No further action is needed at this meeting. Implementation details will be resolved through the budget process and the work programs of various departments, mainly Community Development. 2. New policy for water project review EQTF position: The City should set an additional goal, that the City will not proceed with any of the major water projects until draft environmental impact reports for all the ����i�i�i►I�IIIIII���� IIUIII city of San ' S OBISpo COUNCIL AGENDA REPORT projects are available for joint consideration (page 8). Staff recommendation: Take no additional action at this time. This policy, previously recommended by the EQTF, was considered during hearings on the Urban Water Management Plan. Council did not accept it, based on its possibly constraining timely action on one of the projects. 3. Performance standards EQTF position: It would be desirable to have measurable performance standards, so citizens could tell how well the City is meeting its goals (page 3). Staff recommendation: Take no additional action at this time. Community Development staff has already planned to include status reports on program implementation m the General Plan annual reports. The proposed update of the Conservation Element will further address the EQTF's specific concerns on wildlife species and habitat. 4. Achieving balance EQTF position: The EQTF offers a long-range perspective on environmental and economic balance (pages 9 and 10). Staff recommendation: Take no additional action at this time. This information is available for consideration during further work on the General Plan, the City budget, and development applications. S. Staff training EQTF position: There should be training for staff throughout the City organization, concerning environmental protection (page 12). Staff recommendation: Direct staff to arrange for additional training, using as resources existing City staff, environmental education services pursuant to the City's existing agreement with ECOSLO, and other organizations as appropriate. Training expenses can be addressed during the budget process. (As with last year's economic development staff involvement, staff time demands would be modest.) 6. Volunteer referral . EQTF position: The City should establish a list of local, volunteer environmental specialists, and refer to them proposed changes in City policies or regulations in the specialists' areas of expertise (page 12). Staff recommendation: (This approach is addressed in the "Council Goals: 1995-97 Financial Plan," under the item "Permanent Environmental Quality Task Force. �►►��� Illlll���n ��lll city of San WIS OBISpo COUNCIL AGENDA REPORT 7. Create Open Space Manager staff position EQTF position: The City should establish a staff position of Open Space Manager, to pursue acquisition and management of the greenbelt and other open space activities (page 11). Staff recommendation: Address this item through the budget process. 8. Create Biologist staff position EQTF position: The City should establish a staff position of Biologist, to be a resource for all City departments (page 12); Staff recommendation: Address this item through the budget process. 9. Natural resource protection around the city EQTF position: There is a need for consistent, coordinated government and landowner actions to protect remaining natural resources in the area (pages 13 through 18). Staff recommendation: Take no additional action at this time. Several General Plan policies and programs address these issues, including City-County cooperation and preservation of a city greenbelt. The proposed update of the Conservation Element will further address the EQTF's specific concerns on wildlife species and habitat. Alternatives: Provide additional direction at this time. 10. Critical lands around the city EQTF position: The report provides a brief assessment of critical lands surrounding the City (pages 19 through 22). Staff recommendation: Take no additional action at this time. Several General Plan policies and programs address these issues, including City-County cooperation and preservation of a city greenbelt. The proposed update of the Conservation Element will further address the EQTF's specific concerns on wildlife species and habitat. ALTERNATIVES The Council may move this item to another portion of the agenda to provide additional or alternative direction for staff. EQTF-RPT.CAR A_ VISION FOR SUSTAINABILITY IN SAN LUIS OSISPO RECOMMENDATIONS OF THE ENVIRONMENTAL QUALITY TASK FORCE FEBRUARY 1995 s-es A VISION FOR SUSTAINABILITY IN SAN LUIS OBISPO: RECOMMENDATIONS OF THE ENVIRONMENTAL QUALITY TASK FORCE ENVIRONMENTAL QUALITY TASK FORCE: Kurt Kupper, Chairman Phil Ashley David Chipping Jan Clucas Ken Haggard Richard Krejsa Jim Merkel Tom Ruehr Carla Saunders Richard Schmidt Eve Vigil Former Members: Marilyn Farmer Steve McGrath Dave Morrow Staff Support: Arnold Jonas Glen Matteson Linda Rinker Mary Kopecky "Our vision is of a sustainable community, within a diverse natural and agrarian setting, which is part of a larger ecosystem upon which its existence depends. San Luis Obispo will maintain its healthy and attractive natural environment valued by residents, its prosperity, and its sense of safety and community, within a compact urban form ... We ... have the right to determine our community's destiny based on our community's values, ... we direct our elected representatives and civic employees to preserve our community's natural environment and control excessive growth detrimental to the long-term sustainability of the community ... The City should live within its resources, preserve the relatively high levels of service, environmental quality and clean air valued by its residents, and strive to provide additional resources as needed. " - General Plan Land Use Element Preamble and Vision August 1994 The majority of San Luis Obispo residents value the city's natural beauty, clean air, and open spaces as the city's greatest strengths and as the most important aspects of its high quality of life. General Plan Residents' Opinion Survey May 1988 Our great natural beauty and high quality of life are the most important attractors of new business to the City of San Luis Obispo. - Julie Wright, California Secretary of Trade and Commerce, Fall 1994 and Ken Hampian, Assistant CAO, public participation in review of economic development goals, December 1994 CONTENTS Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 Commitment to Goals 3 Achieving Balance . . . . . . . . . . . . . . . . . . . . . . . . 9 City Organization . . . . . . . . . . . . . . . . . . . . . . . 11 Implementing Natural Habitat Conservation in the Planning Process . . . . . . . . . . . . . . . . . . . 13 INTRODUCTION Clean air, abundant native plants and wildlife, open spaces, and unique land forms --these are the natural beauty of San Luis Obispo. Our community's remaining natural assets are becoming increasingly rare in California. They can be lost through ignorance, inattention, or conscious political action. Once lost, they can never be replaced. The Environmental Quality Task Force, established by the City Council on November 2, 1993, was charged with recommending goals and strategies for protecting and enhancing the environment.' Fifteen people with expertise in a wide range of environmental issues were appointed to serve on this temporary advisory body, which has become known by its initials --EQTF. The EQTF has already given the'City Council many recommendations concerning activities that were underway before the task force was formed, including revisions to the land use, circulation, housing, and water elements of the General Plan. This is the EQTF's final report. Although the EQTF ceases its official life at the end of February 1995, we trust that the fruits of its vision will be recognized by generations in the future. Throughout our work, we found two themes always present. One theme is that a healthy, diverse natural environment has value in itself. Non-human life has intrinsic value which, unless useful as a commodity, is not generally recognized by our economic system. The second theme is the attachment we humans have for the place where we live and the others who live here. We speak to protecting the environment not just for its intrinsic value, but for the kind of place we want to live. Looked at another way, our whole natural landscape is an historic treasure which is fast disappearing. Our report has four parts: Commitment to Goals. We highlight several of the environmental goals which the City has already adopted, and urge that they be translated into measurable objectives and implemented. Achieving Balance. We offer our perspective on balancing the economy with the capacity of the natural environment. City Organization. We suggest how City Government should be structured for more consistent attention to environmental quality. Implementing Natural Habitat Conservation. We recommend ways to assure that remaining ecological values of the land are not lost. ' Resolution No. 8242 41993 Series), attached. EQTF Sustainability Recommendations Page 1 COMMITMENT TO GOALS As part of General Plan updates, the City Council has recently adopted many goals which are components of a sustainable community in the long term. On February 14, 1995, the Council adopted two Major City Goals for the 1995-97 budget cycle, which demonstrated their commitment to sustaining the natural resources valued by the community. These goals were: - Inventory, prioritize, and fund acquisition of open space, while continuing inventories of natural resources within the City, the urban reserve line, and greenbelt areas. - Prepare and begin implementation of natural resource protection plans, including adoption of a creek setback ordinance which incorporates adequate capability for flood and habitat protection. Council also adopted as an Other Important Goal promoting public awareness of the City's natural assets. While the community will benefit from Council's adoption of these long-term and short-term goals, many tasks remain in carrying out the adopted goals. Evaluation of progress in meeting the goals would be greatly improved by adding measurable performance standards. Citizens should be able to tell how well the City is meeting its goals. Our progress in becoming more sustainable cannot be measured only in terms of written goals statements, or even by how many acres of open space we have acquired. We need to be able to measure progress in terms such as how much erosion has been stopped, how many existing wildlife corridors and habitats have been maintained, and how many species saved. We need to complete the survey of living resources in our watershed, so we can have full knowledge when we decide how to implement features of the adopted General Plan. The EQTF believes the following goals and policies of the adopted General Plan, in particular, should determine the City's actions as it is faced with proposals for change. The final sections of this report, "City Organization" and "Implementing Natural Habitat Conservation in the Planning Process" recommend actions to help meet the goals. EQTF Sustainability Recommendations Page 3 From the Land Use Element /LUE): , (Note: Page number references may differ depending on the printing date of the LUE.) 1 . Protect and enhance the natural environment, including the quality of air, water, soil, and open space. [LUE goal #2, page 61 2. Protect, sustain, and where it has been degraded; enhance wildlife habitat on land surrounding the city, at Laguna Lake, along creeks and other wetlands, and on open hills and ridges within the city, so that diverse, native plants, fish, and animals can continue to live within the area. [LUE goal #3, page 6] 3. Protect agriculture from development and from incompatible uses, and protect remaining undeveloped prime agricultural soils. [from LUE goal #4, page 61 4. Protect and restore natural landforms and features in and near the city, such as the volcanic morros, hillsides, marshes, and creeks. [LUE goal #6, page 61 5. Foster appreciation among citizens of the complex abundance of the planning area's environment, and of the need to respect natural systems. [LUE goal #7, page 6] 6. Identify, map and monitor our community's natural assets to preserve and protect them. [LUE goal #8, page 61 A. The City shall develop overlay maps of the City, the urban reserve, and the planning area to guide in land use designations and decision-making. Maps for the City and urban reserve shall be in sufficient detail to highlight all significant natural resources and systems. Maps for the planning area may be at a lesser degree of detail. The overlay maps shall show at least the following resources: native plant communities, wildlife habitats and corridors, aquatic ecosystems, productive or potentially productive soils (prime or other unique agricultural soil types),viewsheds, hillsides, greenbelt areas. The overlay maps shall also show development constraints such as flood hazard areas, geological hazard areas, soil hazard areas (subsidence, liquefaction), noise impact areas, airport hazard and noise areas, radiation hazard areas. [LUE program 6.0.2, page 571 B. The overlay maps shall provide the basis for determining where urban development is most appropriate, and where other needs of the community outweigh the desire or need for urban development. As a result of the findings of these overlay maps, the City shall re-evaluate its land use designations and future plans for undeveloped areas, and revise the Land Use Element map accordingly. ILUE program 6.0.3, page 571 EQTF Sustainability Recommendations Page 4 7. Maintain the town's character as a small, safe, comfortable place to live, and maintain its rural setting,' with extensive open land separating it from other urban development. [LUE goal #28, page 81 8. Maintain existing neighborhoods and assure that new development occurs as part of a neighborhood pattern. [LUE goal #29, page 81 9. Keep a clear boundary between San Luis Obispo's urban development and surrounding open land. [LUE goal #30, page 81 10. Grow gradually outward from its historic center until its ultimate boundaries are reached, maintaining a compact urban form. [LUE goal #31, page 81 11. The City shall manage its growth so that the natural environment and air quality will be protected. [LUE policy 1 .0.1 .A, page 13] 12. The City will not designate more land for urban uses than its resources can be expected to support. [LUE policy 1 .0.2, page 131 13. Broad, undeveloped open spaces should separate the City from nearby urban areas. The Land Use Element establishes a final edge for urban development. [LUE policy 1.1, page 131 14. The Land Use Element seeks to establish an ultimate population capacity. [LUE policy 1 .2, page 131 15. The boundary between San Luis Obispo's urban development and surrounding open land should be clear. [from LUE policy 1 .3, page 131 16. Within the City's planning area and outside the urban reserve line, undeveloped land should be kept open. Prime agricultural land, productive agricultural land, and potentially productive agricultural land should be protected for farming. Scenic lands, sensitive wildlife habitat, and undeveloped prime agricultural land should be permanently protected as open space. [LUE policy 1 .7.1, page 14] 17. Continuous wildlife habitat --including corridors free of human disruption--shall be preserved and, where necessary, created. [LUE policy 1 .7.6, page 151 18. Significant trees, particularly native species, shall be preserved. [LUE policy 1.7.7, page 15] 19. If measures proposed at the time of the Land Use Element's 1994 revision, mitigation decided during project review,. or other programs or incentives intended to offset significant air-quality impacts of growth prove to be ineffective, the City will amend the Land Use Element to reduce its development capacity and will encourage other jurisdictions to reduce theirs, so that air quality will not deteriorate unacceptably because of growth. The EQTF Sustainability Recommendations Page 5 City would then consider raising planned capacities to previous levels only if r measures effective in protecting air quality are carried out. [LUE policy 1 .10, page 171 20. It is the policy of the City to protect its unique natural resources and systems by including their considerations and needs within its planning program, and giving those considerations and needs a planning priority co-equal with that accorded other community needs. Under this policy, the City will make provisions for the continued existence of its natural resources within the community. The term "community" .thus includes not only the urbanized human community, dominated by urban land development and technological systems, but also a natural community rich in biological and geological diversity, as well as a pre-urban human community with a strong agricultural base. [LUE policy 6.0.1, page 571 21 . Once resource areas worthy of protection are identified, the City shall seek to protect them by easement or other permanent means. [LUE program 6.0.4, page 571 22. The City shall designate the following types of land as open space: Upland and valley sensitive habitats or unique resources, as defined in the Open Space Element, including corridors which connect habitats. A greenbelt, outside the urban reserve, that surrounds the ultimate boundaries of the urban area, and which should connect with wildlife corridors that cross the urbanized area. Sufficient area of each habitat type to ensure the ecological integrity of that habitat type within the urban reserve and the greenbelt, including connections between habitats for wildlife movement and dispersal;these habitat types will be as identified in the natural resource inventory. [from LUE program 6.0.4, page 611 23. The City should manage its lake, creeks, wetlands, floodplains, and associated wetlands to achieve the multiple objectives of: A. Maintaining and restoring natural conditions and fish and wildlife habitat; B. Preventing loss of life and minimizing property damage from flooding; C. Providing recreational opportunities which are compatible with fish and wildlife habitat, flood protection, and use of adjacent private properties. D. Recognizing and distinguishing between those sections of creeks and Laguna Lake which are in previously urbanized areas, such as the EQTF Sustainability Recommendations Page 6 downtown core, and sections which are in largely natural areas. Those sections already heavily impacted by urban development and activity may be appropriate for multiple use whereas creeks and lakeshore in a more natural state shall be managed for maximized ecological value. [LUE policy 6.4.1, page 671 24. The lake, creeks, and wetlands should be part of a citywide and regional network of open space, parks, and --where appropriate-- trails, all fostering understanding, enjoyment, and protection of the natural landscape and wildlife. [LUE policy 6.4.2, page 671 25. All open channels should be kept open and clear of structures in or over their banks. When necessary, the City may approve structures within creek channels under the limited situations described in the Open Space Element. [LUE policy 6.4.5, page 701 26. The City should establish creek setbacks, consistent with the Open Space Element, to include: an appropriate separation from the physical top of bank, the appropriate floodway, as identified in the Flood Management Policy; native riparian plants or wildlife habitat... [from LUE policy 6.4.6, page 70] From the Water and Wastewater Management Element (WAWMEJ 27. The City will not compete with local agricultural use of groundwater outside the urban reserve line or damage wildlife habitat through reduced natural stream flows in obtaining long-term sources of water supply. [WAWME policy 1 .3.A, page 3] 28. The City will implement water-efficiency programs which will maintain long- term usage at or below 145 gallons per person per day. [WAWME policy 2.1, page 6, and policy 3.2, page 71 From the Energy Element (EEI: 29. Overall energy consumption will be reduced by eliminating frivolous uses and making more efficient use of energy in essential activities ... [from EE Goals and Policies, paragraph 1, page 61 30. The City will set an example for energy conservation and the use of renewable sources in its own facilities and operations. The materials purchasing, use, and recycling activities of the city will recognize indirect energy-use consequences. [EE Goals and Policies, paragraph 4, page 61 EQTF Sustainability Recommendations Page 7 From the Oven Space Element (OSE): 31. Preserve creeks and their corridors as open space, and maintain creek corridors in essentially a natural state to protect the community's water quality, wildlife diversity, and aesthetic value. [OSE policy B.1 .A, page 221 32. Protect riparian vegetation and restore degraded creeks on lands the City owns or develops ... [from OSE policy BA .B, page 221 33. Preserve marshes, vernal pools, seeps, lakes, ponds and similar wetland areas as open space. Restore wetland areas that have been degraded. Permit uses on wetland sites which are consistent with the nature of the resource being protected. [OSE Community Goals, page 321 34. Protect grassland communities within the city limits. [OSE Community Goal 1 , page 38] 35. Retain grasslands found within the greenbelt area at their current level of use. [from OSE Community Goal 2, page 381 36. Discourage development and subdivisions on agricultural lands when [they] will limit or degrade the land's agricultural potential or diminish the stability or viability of remaining agricultural lands. [OSE Community Goal, page 641 In support of adopted goals, the EQTF recommends an additional policy concerning water: The City should not proceed with the Salinas Reservoir Expansion, Nacimiento Pipeline, or Water Reuse water supply projects until draft environmental impact reports for all these projects are available for joint consideration. EQTF Sustainability Recommendations Page 8 ACHIEVING BALANCE The economy is the network of interactions which results from people's efforts to meet their needs and desires. It occurs within the supporting natural environment, without which life and economic activity would not be possible. Economic consumption and population growth are increasingly transforming the natural environment in ways that are undermining its ability to sustain us. Given the continuation of these trends, natural processes and limits will eventually cause a new balance to be reached. However, the new balance may be painful for ourselves and our children. If the true costs of resource use and environmental damage were paid directly by those extracting, damaging, and consuming the resources, "the economy" would be a more effective tool for environmental protection. However, these costs are usually "externalized" --put off for future residents, public officials, and taxpayers to deal with. The result is ransoming our children's environmental and economic future. Certainly, if human population grows or unbridled consumption continues, or both,. then more money must be allocated for pollution control and natural habitat protection just to maintain the quality of life at present levels. Unfortunately, within our present social and economic systems, money devoted to environmental protection rarely offsets the destruction caused by consumptive economic activities. We would agree with the assertion that "protection of the environment will depend on a healthy economy to pay for it" only if, by "a healthy economy, "we mean one where costs are honestly accounted for and the natural resource base for quality of life is protected and renewed, not consumed. We understand the difficulties people face in establishing and maintaining their businesses. Indeed, many EQTF members have private businesses or engage in various entrepreneurial activities. We would never slight the efforts of those working to provide livelihoods for themselves or their employees, whether in the private, public, or not-for-profit sectors. At the same time, it would be misleading to say that the recent recession, or the restructuring of some local basic industries, justifies a return to the pattern of sacrificing the natural environment for more development. In fact, a recent Bank of America report suggests that our admonitions, against sprawl for example, are right on track. As stated by the report, we can't continue doing things the way we have during the past 50 years; it's costing us jobs, quality of life and new economic growth.2 2 Bank of America, "Beyond Sprawl: New Patterns of Growth to Fit the New California," February 1995. EQTF Sustainability Recommendations Page 9 Economic history teaches -us that success today is no guarantee for success • tomorrow. According to Troy Davis, the businesses of the future will be based on innovations not even dreamed of today. The global transformation required to achieve sustainable development will affect business more than any other segment of society. The main ingredient for developing and using cleaner technologies will be more intelligence, not more money.' For some reason, individual plant closings and individuals leaving San Luis Obispo have made "front page stories." The bigger picture has been presented less dramatically: - In San Luis Obispo County, population and employment grew throughout the recent recession. Even in the depths of the recession, the unemployment rate in San Luis Obispo County was lower than in Santa Barbara, Ventura, or Monterey counties. - The latest reports show San Luis Obispo County employment increased over 7 percent during the year, and the number of workers in durable manufacturing (often referred to as "well-paying") increased over 5 percent." Per capita retail sales have followed the same trends in cities with retail facilities and growth policies as diverse as Paso Robles, Santa Barbara, Santa Maria, and San Luis Obispo.5 The City of San Luis Obispo issued permits for almost 23 million dollars of construction last year, and has issued permits for over 100 million dollars worth of construction in the last five years.e (Construction of County and State facilities is not included in these figures.) If the past is any indication, cycles of higher and lower economic activity will continue, whether or not the city expands, and whether or not'it attracts more industries and businesses. 3 Troy Davis, Executive Director, INEM, Wedel, Germany, in Network'92, August-September. 4 UCSB Economic Forecast Project as presented in the San Luis Obispo County Telegram-Tribune, October 29, 1993, September 27, 1994, and January 24, 1995. 5 Hinderliiter, de Uamas & Associates, as presented in the San Luis Obispo County Telegram-Tribune, January 27, 1994. 8 City of S.L.O. Building & Safety Division Annual Reports, 1990 through 1994. EQTF Sustainability Recommendations Page 10 CITY ORGANIZATION "We need to raise the environmental consciousness of each employee in a company, in order to raise the company's environmental IQ" and commitment from the top will be needed, as an enabling role to bring about sustainable businesses.' If the City wishes to have a strong and proactive Environmental Protection Program, then it needs to appropriately support the effort. If instead the task of implementation is to be made a part-time job of existing staff members, then it is likely to be carried out in a part-time, "as time permits" manner.8 The City of San Luis Obispo has focused on guaranteeing its economic health. An economic stability program has been established, with specific budget, staff, and policy support. In previous years, City budgets have not favored the security of our local environment. In the last two years, the City has eliminated four staff positions directly involved with environmental quality: a full time open space planner; a part- time intern biologist; a full-time energy conservation coordinator; a part-time bicycle coordinator. (The part-time bicycle support staff was recently reinstated in another department. The organizational consultant's recommendation was to reestablish the open space planner position in another department, but it has not been.) The EQTF recommends the following measures to assure adequate staff support for environmental protection: 1 . Establish and fill a position of,Open Space Manager, in the Community Development or Administration departments. This position would: A. Coordinate acquisition and management of City open space, primarily the greenbelt. B. Advise the City on its role in regional, state, and federal open space issues, and represent the City's interests before other agencies involved in open space issues. C. Work with City staff, other agencies, and community groups to protect open space. 7 Troy Davis, Executive Director, INEM, Wedel, Germany, in Network'92, August-September. 8 Substituting "environmental protection" for"economic stability" in the quote from the Economic Strategy Task Force report, in the Council Agenda Report for March 8, 1994, by John Dunn. EQTF Sustainability Recommendations Page 11 2. Establish and fill a position of Biologist. This position would be a , resource for all City departments, and would: A. Review project proposals of both private applicants and the City, and help with environmental review. B. Advise on management of City-owned open space land and easements. C. Monitor construction of City and private projects, to assure that required mitigation measures are carried out and biologically responsible practices are followed. D. Work with City staff, other agencies, and community groups to protect and restore wildlife habitat, including environmental cleanup. E. Advise the City on its role in regional, state, and federal biological issues, and represent the City's interests before other agencies involved in biological issues. 3. Conduct citywide staff training to reinforce that environmental protection is everyone's job, and to remind staff of some of the daily actions that help protect the environment. 4. Establish a list of local, volunteer environmental specialists, and refer to them proposed changes in City policies or regulations in the specialists' areas of expertise. EQTF Sustainability Recommendations Page 12 IMPLEMENTING NATURAL HABITAT CONSERVATION IN THE PLANNING PROCESS BASIS OF RECOMMENDATIONS An achievable common goal is to create a prosperous, sustainable future for the City of San Luis Obispo and surrounding lands within the San Luis Obispo Creek watershed. The disciplines of ecology, economics, and planning should be used as the tools that help guarantee sustainable, long term ecological and economic health within the San Luis Obispo Planning Area. The City cannot achieve these ends by itself. The City must solicit and elicit the cooperation, participation, and good will of all local citizens, especially the owners of lands outside City jurisdiction, and the state and regional agencies which control these lands. Most land around the City of San Luis Obispo, between the existing city limits and the planning area boundary, is not under the City's jurisdiction. This land is controlled by its owners, under the jurisdiction of San Luis Obispo County. Much of the City is built out to the city limit, and there is very little room to establish either a greenbelt or wildlife corridors within existing city limits. It is therefore critical that either: (A) The City and the County have the same planning policies for the city fringe areas and enter into a memorandum of understanding (MOLI) concerning the permanence of the policies; or (B) The City obtains control of those lands by annexation. (It is city policy that lands may be annexed to this end.) In addition to seeking such jurisdictional solutions, it is important that the City cooperate with private land preservation organizations, land trust organizations, and others that might facilitate the protection of land on the City's fringe. There are several management options for these lands. One would be market-driven, repeated subdivision to either small ranchette or suburban density. This approach would result in blurred city edges and a loss of separation between cities. City residents have expressed their concern about this approach at the polls, knowing this would not protect the countryside and it would reduce the quality of life for those in and around the City. Such development removes agricultural and wildlife values from the land, and is generally considered to be undesirable sprawl. It does not give one the impression of open space. EQTF Sustainability Recommendations Page 13 If this sprawl approach is not acceptable, alternative open space uses of the • land must be assured. However, some open space uses will be complementary and others will be in conflict. Even with agreement on principles, there will be details to resolve. Questions include: Should housing be concentrated in clusters or should it be absent? How tightly should any houses be clustered? Should existing underlying lots be utilized in their present configurations, or should either transfer of development credits (TDC's) or lot line adjustments be used to remove building rights from certain areas? How much of an open space acreage can be devoted to a golf course or other recreational uses, and how much remain in agriculture? Is a golf course really open space or a developed urban use of the land? How much of a public incentive can be given to private property owners in exchange for development credits removed? City and County plans and regulations answer some of these questions, but not all. And, the answers which have been provided can change. Often the current or new answers --and even the questions-- ignore wildlife and ecological needs. Houses, golf courses, and agriculture, as such, have very little to do with the needs of wildlife, or with the inherent ecological values of the land. While a particular piece of land cannot serve all purposes, it can be managed for more than one value. Assuming that the City and County recognize ecological values, it should be possible to preserve nature's values and still have some houses, agriculture, and golf courses. Some ecological needs, such as the maintenance of wildlife corridors and creek flows, cannot be addressed without regional assessment of the space around the City. This assessment cannot be done by looking at one parcel at a time, as development proposals are made. Other needs, such as the protection of a wetland, can be achieved under a more geographically limited approach. If the City is to have control of the space beyond its current jurisdiction, either for expansion, resource protection, or other goals, the following steps must be taken. (1) Recognize valuable ecosystems within existing City control: (a) Creeks and riparian habitats; (b) Wetlands other than creeks; (c) Serpentine habitats; (d) Valley foraging habitats, including grasslands and grazing lands; (e) Oak woodlands, scrublands, and hillside grassland and chaparral. and, as part of all of the above... (f) Wildlife migration corridors. EQTF Sustainability Recommendations Page 14 (2) Establish and preserve land use control: (a) Develop a joint powers MOU with the County and landowners; (b) Before annexation occurs, clarify with the County and the Local Agency Formation Commission (LAFCO) the terms and conditions for annexing land to the City; (c) Develop a program and funding mechanism for acquisition of lands for conservation purposes; (d) Develop strong and clear public policy statements about the valulr of preserving open land around the city, to enable private land trusts to assist in land protection. (3) Develop a meaningful Conservation Element with "teeth;" (a) Do a preliminary habitat assessment at primary wildlife corridors and valley foraging habitats around the city; (b) Once critical habitat areas are identified, be faithful to policies for protection. (One general plan land use amendment in the center of a wildlife corridor can shut the door on the entire corridor.) RECOMMENDATIONS (1) Recognition of Valuable Habitat It is important to recognize that all habitat is valuable, and that none should be considered expendable. The concept of biodiversity is that we should preserve as great a number of parts of the great web of life as is possible. To paraphrase the great conservationist Aldo Leopold, "The key to intelligent tinkering is to throw away none of the parts." Besides the wildlife corridors, the first four habitat types listed above are discussed further below, due to their susceptibility to degradation and alteration. There is a great deal of danger in environmental planning occurring with only a limited understanding of the key habitats; for example, a general love of trees and hillsides for aesthetic reasons has produced de-facto development of the flatland habitats, which have almost vanished from much of the area surrounding the City. (a) Creeks and Riparian Habitats The value of streams and stream-side vegetation has long been recognized by the City, although mostly in terms of flood control or tourism. These narrow zones of water and vegetation are important migration corridors for EQTF Sustainability Recommendations page 15 animals, shelter for breeding and nesting birds, amphibians, fish, reptiles and mammals, and their sources of food; they provide shade to keep the stream temperature low, and beauty. The issues of planning setbacks, protection of instream flows, removal of exotic plant species (for example German Ivy and Giant Reed), and removal of debris must all be addressed. Ephemeral streams, such as those flowing across Johnson Avenue in the winter, should enjoy the same protection as perennial streams. The City has started an assessment of streams, but should further consult with biologists in regard to habitat requirements regarding setbacks, instream flow needs, and degree to which ephemeral streams should be afforded protection similar to that of perennial streams. The City, in planning land uses around streams, should recognize that public access and other disturbance by people have a generally deleterious effect on creek wildlife. The City should seek to preserve in perpetuity the streams and watershed upstream of the City, with the intent of controlling water quality, sediment loads, and peak flows (through retention of unpaved areas). (b) Wetlands Other Than Creeks There are several extensive wetland ecosystems that should be protected. These include springs and wet meadows on the south side of the South Street Hills, wetlands in the Tank Farm Road area, wetlands upstream of Laguna Lake that continue to the west side of Foothill Boulevard, and wetlands around Froom Creek. Other valuable wetlands are partly protected, including those bearing listed plant species at Laguna Lake Park. The City should maintain, and consider creating additional, wetlands in association with its wastewater treatment activities. (c) Serpentine Habitats The serpentine hills around San Luis Obispo offer one of the rarest habitats in North America relative to soils and the plants that the soils support. The soils are nutrient poor, enriched in metals, and support many rare species. The uplands support rare native grasses, lilies, oaks, cypress, manzanitas and other plants. Rare plants occur on Froom Ranch and in Prefumo Canyon, on the hills flanking Laguna Lake, and along Cuesta Ridge. It should become a City policy to prevent destruction of the serpentine habitat. This policy may seek support in the health problems associated with the asbestos content of serpentine, in the preservation of view shed around the city, and the steepness of most slopes on serpentine hills. EQTF Sustainability Recommendations Page 16 (d) Valley Foraging Habitats (Grasslands and Grazing Lands) As valley grasslands are underlain by rich soils, they once supported the greatest abundance of life. Soils on the hillsides are thinner, and do not support the same biotic carrying capacity. The grasslands around the city of San Luis Obispo support many animals besides domestic cattle. Many have seen deer grazing in the fields opposite the Men's Colony or on the flanks of San Luis Mountain and Bishop Peak. There is a common misconception that grasslands have no value since they lack the visual poetry of trees. Thus they have usually become the default environment for development, and historically were the first to be converted to agriculture.. As a matter of policy, the City should endeavor to retain some grasslands and other valley floor habitat as part of the open space to maintain as high a biodiversity as possible. These habitats can be preserved in association with other land uses, as corridors between clustered development or as grazing- limited conservation easements. Even golf courses, which use up large amounts of land but provide very little or no habitat value, could develop native grassland corridors or in other ways enhance themselves to become a link in a grassland corridor. Much of the grassland around the city is currently dominated by exotic European species, but could be restored to native grasses and to higher wildlife value. In spite of the dominance by exotic plants, many of the grasslands still function as valuable habitat. (e) Oak Woodlands, Scrublands, and Hillside Grassland and Chaparral The hills surrounding the city are covered by an intermeshed association of communities. In the sheltered valleys and the moister, northern flanks of the hills are the Coast Live Oak woodlands. On the poorer soils and the hotter, south-facing slopes are scrublands and chaparrals, and patches of grassland. Many of these habitats are relatively undisturbed by man, due to their inaccessibility, their steepness, and relatively low impacts from cattle compared to the grasslands. They support different types of birds and animals than the flatlands. It should become City policy to preserve much of the vegetation on the steeper slopes, and to preserve as much of the mosaic of these diverse plant communities as possible, particularly in association with wildlife corridors. (f) Wildlife Migration Corridors One of the most commonly overlooked aspects of habitat conservation is the wildlife corridor, usually because the values of the corridor lie beyond the boundaries of the section of land being evaluated. In the San Luis Obispo watershed area, wildlife connection is required between the diverse geographical elements of the surrounding landscape. EQTF Sustainability Recommendations Page 17 • Within the city, there has been little attention paid to wildlife corridors, such as those linking mountains to valley creeks. Often city planning policies undercut the needs of wildlife. (For example, the General Plan and zoning allow residential development, that would block the corridor, on a parcel in the best corridor linking the east side of San Luis Mountain with the creek system, in the 100 block of Broad Street). In the larger regional landscape animals must move from the Irish Hills to the Edna Valley, from the Santa Lucia Mountains to Cerro San Luis Obispo, from east to west and from north to south around the city. There is still open country around the city, and the problem appears to be restricted to freeway survival skills, but in a few decades the Irish Hills and Morros could be as isolated as the Palos Verdes Peninsula. We have a responsibility to future generations to guarantee the presence of healthy and varied wildlife, and for that we must prevent the genetic isolation of wildlife populations. The City, in establishing a green belt around itself, should use its powers to provide relatively safe animal passage across this belt. The wider the space for passage, the more varied the travelers will be. If sufficiently sized, travelers could include deer, fox, coyote, possum, raccoon, bobcat, cougar, and even bear. Corridors can be maintained by preventing strip development, which acts as a barrier, and by providing ample opportunities for wildlife to cross major transportation routes. Already a significant portion of the northwest- southeast movement of bear and cat is becoming bottlenecked into the Cuesta Pass area. The opportunities for values conflicts along a wildlife corridor are many. Open space reserved around the City may also be considered a scenic resource that may not overlay the most valuable lands from the ecological standpoint. Public access and recreation within open space may severely limit its use as a wildlife corridor. (2) Land Use Controls The City should convene a series of planning conferences with biologists, landowners, City planning staff, and County planning staff to agree on areas that might be considered for either a joint powers planning vehicle or annexation. This would address the 'revenue-neutral' requirement of the County relative to annexation of its territory, the relationship of those lands to existing City land use plans and to county zoning, the assessment of landowner desires, and the consideration of compensation for perceived or real take through changed regulations. The conferences could complement current efforts to establish a program for transfer of development credits and to fund and prioritize acquisition of land or easements. Consultation with LAFCO should continue concurrently with the conferences. EQTF Sustainability Recommendations Page IS (3) Preliminary Habitat Assessment at Points Around the City Starting at the north end of the city, and working around the edge clockwise: Highway One Management will require annexation or city/county MOU with landowner approval and compensation. The southernmost east-west wildlife corridor crosses Highway 1 around the famous old Mail Pouch barn, connecting Bishop Peak habitat to that of the Santa Lucia Mountains via Cal Poly lands. Development of lands under County jurisdiction and the Men's Colony are producing a barrier effect further to the west, and the same developments are also disturbing the open space aspects of the Green Belt. It is, therefore, critical to maintain a hard edge at the present city limit, to contiguously cluster (as compared to the county's scattered, low density cluster as at Varian Ranch) any building beyond the limit, and to maintain broad open areas around any clusters. Lands between Highways 1 & 101 Sensitive serpentine habitat behind Cal Poly should remain in native vegetation. The expanse of grasslands between Cal Poly and the Santa Lucia Range should be managed for high biodiversity, and will require a City- County-Cal Poly MOU. Livestock and crop management practices at Cal Poly should be changed to enhance and protect the watershed of upper San Luis Obispo Creek, especially in the riparian corridors of Brizziolari and Stenner creeks. There is room for further development by Cal Poly at the old airfield. Highway 101 There should be no further expansion of the city through the water gap at Cuesta Park. The watershed above this point contains some of the best grassland and natural habitat in the area, but also serves as critical watershed that controls much of the hydrologic performance of San Luis Obispo Creek. The existing north-south corridor for wildlife through the Santa Lucia Mountains starts at this point and continues to Santa Margarita. Some attempt should be made to mitigate the barrier effect caused by Highway 101 . Serpentine habitat in the hills flanking the water gap, and serpentine grassland habitat between the base of the Cuesta Grade and the Cuesta Park water gap should also be protected, especially from flood control projects. EQTF Sustainability Recommendations Page 19 Eastern Flank The hills flanking Johnson Avenue are valuable serpentine habitat, and development of hills should not be allowed at any greater elevation than the present reach of the city. The small and usually seasonal streams that flow westward from the ridge should be protected, and setback requirements maintained as for perennial streams. There remains a strip of grassland between the rocky hills and the dense development of the city, and this should be protected as valuable foraging habitat for hawks, falcons, owls, and other wildlife. Orcutt Road and Highway 227 Undeveloped grasslands along Orcutt Road serve as key links in east-west wildlife corridors that connect to the Irish Hills. Here open space zones would delineate the southern edge of the city. Much of this land would require management through a landowner-city-county MOU. It may be possible to maintain the corridor through the cooperation of landowners of very large lots and agricultural lands, or with sufficiently separated clusters of denser development that could be developed by property owners through lot line adjustment and a TDC program. The present agricultural uses of the Edna Valley should be encouraged, with some incentives, compensation, or other encouragement to landowners for restrictive zoning to maintain open space, the east-west corridor, and . agricultural land. There would be some balance between farming, viticulture and grazing land, as the latter, much more valuable to wildlife, is succumbing quickly to land conversion. Particular attention should be given to Corral de Piedra Creek and its ecosystem. This could become the central part of a southern east-west corridor across the valley. A northern east-west corridor can still be protected through the rapidly developing zone south of the airport, with the corridor passing to the north of Country Club Estates. Southern Edge There is an extensive and lightly developed corridor along Davenport Creek that extends in width to the north side of Buckley Road. The open nature of this corridor should be maintained through a county-city MOU approved by adjacent property owners. Lot line adjustment and clustering should be used. The riparian and grassland connection with the South Street Hills should be protected by the City immediately to prevent total isolation from the southern habitats. EQTF Sustainability Recommendations Page 20 Highway 101 South There should be no further development to the south of the City, and the San Luis Obispo Creek and Froom-Prefumo drainages should be protected. There is extensive serpentine rare plant habitat in the Froom Ranch area, and any development at the 'southern gate' to the City should avoid this habitat and the seasonal wetlands below the habitat. The rare plant habitat extends to the west and occurs in Prefumo Creek. Development along the Los Osos Valley corridor should be placed on the flatlands while avoiding the flood plains, but could be of high density to compensate for legal lots abandoned for open space on the hills. Preferably the development should be close to Los Osos Valley Road, leaving the valley grassland habitat at the foot of the hills as open as possible. The habitat value of the artificial channel of Prefumo Canyon, especially below the lake, should be enhanced. Los Osos Valley Road The City should attempt to maintain a hard edge at the present location along the road. There is a broad north south corridor over most of the Los Osos Valley, but this would be destroyed by strip development if the City extends further to the west. Serpentine chaparrals in the hills south of the City should be protected. O'Connor Way The extensive wetlands and valley grasslands adjacent to, and west of, Laguna Lake should be protected. The potential for strip development along O'Connor Way should be removed, with any development around the current cluster at the Foothill-O'Connor intersection being either large lot or clustered. Building should be kept from the spine of the Morros to protect the corridor along the range, and some open avenues of valley grassland should be preserved along the base of the hills. South Street Hills These hills represent serpentine habitat that has wetland on the southern flanks. They are about to become biologically isolated, but some form of a wetland-grassland corridor could be maintained along existing small streams that flank the western edge of the airport, and preservation of these corridors should be a high priority. The springs, wetlands, and valley grasslands south of the hills could be preserved as valuable integrated grassland-wetland habitat. EQTF Sustainability Recommendations Page 21 r Tank Farm Wetlands The wetlands just north of Tank Farm Road should be enhanced, and surrounded with a viable valley grassland buffer. Cerro San Luis Obispo The preservation of Cerro San Luis Obispo as wildlife habitat depends on keeping much of the existing Foothill Boulevard grazing lands open and free from development that could close off the connecting corridor with the other Morros. gmI:EQTF.RPT 2-25-95 EQTF Sustainability Recommendations Page 22 RESOLUTION NO. (1993 Series) A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO ESTABLISHING THE ENVIRONMENTAL QUALITY TASK FORCE AS AN AD HOC COMMITTEE WHEREAS, the City Council recognizes the need to assemble experts with a wide variety of environmental skills to address environmental issues affecting the City of San Luis Obispo; and • WHEREAS,the City Council has endorsed the concept of an Environmental Quality Task Force with the goal of implementing a proactive environmental protection and enhancement program. NOW, THEREFORE, BE IT RESOLVED BY THE SAN LUIS OBISPO CITY COUNCIL that: Section 1. An ad hoc special purpose committee, to be known as the "Environmental Quality Task Force"is hereby established. The members shall be appointed by the City Council in a manner, and for a term of office, determined by the City Council at the time of appointment. Section 2. The Environmental Quality Task Force shall perform the following principal functions: a) To develop recommended environmental goals and strategies based on Council Direction. b) To advise Council on environmental issues affecting the City of San Luis Obispo and coordination of regional environmental projects. R-8242 Resolution No. 8242 (1993 Series) November 2, 1993 c) To undertake specific tasks as may be referred by the City Council. b) Goals and strategies should be completed in the form of a recommendation to Council by May, 1994. On motion of Council Member Rappa , seconded by council Mbr. Settle and on the following roll call vote: AYES: Council Members Rappa, Settle, Roalman, Romero, and Mayor Pinard NOES: None ABSENT: None The foregoing Resolution was passed and adopted this 2nd day of November , 1993. f 67 Mayor Peg Pinard ATTEST: ' Clerk Di a R. Gl e APPROVED AS TO FORM: Of *tyo Je or en