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
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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.
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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
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Je or en