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COASTAL ZONE INFORMATION CENTER Preliminary Coastal Plan HEARING DRAFT, MARCH 1975 ORNIA COASTAL ZONE CONSERVATION COMMISSIONS GB 458.8 .c32 1975 J - DEPARTMENT OF COMMERCE NOA@ OASTAL SERVICES CENTER @234 SOUTH HOBSON AVENUE propexty Of CSC LibrarY HARLESTON , SC 2q405-24 i 3 STATE 01 CALIFORNIA EDMUND G. BROWN, JR-p Governor CALIFORNIA COASTAL ZONE CONSERVATION. COMMISSION 1540 MARKET STREET, 2nd FLOOR SAN FRANCISCO, CALIFORNIA 94102 PHONE: (415) 557-1001 March 6, 1975 TO THE PEOPLE OF CALIFORNIA: On November 7, 1972, the voters of California approved the Coastal iative (Proposition 20) and the California Coastal Zone Conservation Init Commissions came into existence. The Commissions-one statewide and six regional--were directed to prepare a plan for the future of the California.coast, and to regulate coastal development temporarily, while the plan was being prepared. This report contains the Preliminary Coastal Plan. It has been developed through the work of the seven Coastal Commissionst helped by thousands of Californians who have reviewed draft proposals, attended informational forums, and testified at hearings on the various Plan elements. Now we seek your help in reviewing the Preliminary Plan.. You may send comments in writing, and you may testify at public hearings that will be held this spring,and summer. We are enclosing in this report a leaflet listing the hearing schedule; if your report does not contain the leaflet, please write or call the Commission offices listed on pages 5-8, for a copy. We particularly seek your views on two things: --The Plan itselfq with its recommendations for use and protection of the California coast. --The most effective governmental means for carrying out the Coastal Plan; we thus seek your evaluation of-the alternatives listed in Part III of this report. The Coastal Commissions must adopt their final recommendations.this summer and fall, for presentation to the Governor and the Legislature in December 1975. This means that the Commissions must complete their work under a very tight deadline, and we therefore seek your response 1@j to the Preliminary Plan.as soon as possible. CAM M. B. L@@ Chairman page Commissioners and Addresses of Commissions 5 Part 1: Summary and Introduction 9 SUMMARY INTRODUCTION 14 Part 11: Findings and Policies 17 MARINE ENVIRONMENT 19 19 Ocean Resources Management Coastal Water Quality 23 Waste Discharges 24 Heated and Cooled Discharges 27 Oil and Toxic Spills 31 Runoff 36 Coastal Waters, Estuaries, and Wetlands 38 Sand Movement and Shoreline Structures 43 COASTAL LAND EDrv-MONMENT 47 Coastal Streams-i-and Watershed Management 47 Water Supply Management 52 Natural Habitat Areas 56 Agriculture 59 Forestry 66 Soil and Mineral Resources 68 Soils 68 Mining 69 Air Quality 71 MANMADE RESOURCES 75 Special Coastal Communities and Neighborhoods 75 Historical and Archaeological Resources 78 APPEARANCE AND DESIGN 83 Protecting Coastal Visual Resources 85 Design Guidelines for the Coastal Zone 91 Design Guidelines in Open Space and Landform Areas 91 Development and Coastal- Views 96 General Design Standards 98 Special Design Guidelines 99 PUBLIC ACCESS TO THE COAST 105 The Right of Public Access 107 Public Management and Use of the Shoreline 110 Public Ownership on the Coast 110 Public Institutions and Military Lands on the Coast 113 Equality of Access 114 -2- RECREATION 117 Optimum Recreational Use of the Coast 117 Priority for Recreational Use of the Coast 119 Recreational Use of Shoreline and Upland Areas 121 Recreation and Development 122 Controlling Recreation to Protect Resources 123 Coastal Reserve System 127 Coastal Trails System@ Marinas 134 Financing Coastal Recreation 136 TRANSPORTATION 139 Transportation Planning and the Coast 139 Land Transportation, 142 Highway 1 and Coastal Roads 142 Parking 149 Public Transit 150 Air Transportation 154 Water Transportation 157 ENERGY 163 Energy and the Coast 163 Energy Conservation 171 Alternative Energy Sources 185 Energy Facility Siting and Design 199 Power Plants 201 Petroleum Development 210 Refineries 223 Tanker Terminals 228 LNG Facilities 236 DEVELOPMENT 245 Basic Policies for Coastal Zone Development 245 Development Affecting Natural Resources 247 Orderly, Balanced Development 248 Concentrating Development in Urban Areas 248 Coastal-Dependent Development and Uses 252 Industrial Development 253 Provision of Public Services 254 Development in Hazardous Areas 255 Floodplains 255 Geologic Hazard Areas 257 Blufftops 265 RESTORATION OF COASTAL RESOURCES 273 SUBREGIONAL PLANNING 277 Examples of Subregional Plans and Their Potential 280 Part III: Carrying Out the Coastal Plan 293 ALTERNATIVES FOR COASTAL REGULATION AND MANAGEMENT 295 Governmental Structure to Carry Out the Coastal Plan 295 Governmental Powers Needed to Carry Out the Coastal- Plan 304 Costs of Carrying Out the Coastal Plan and Possible Sources of Funds 307 -3- Conclusion and Summary of Key Issues in Carrying Out the Coastal Plan 309 ADDITIONAL ACTIONS BY OTHER AGENCIES 311 Recommendations for New Legislation 312 Recommendations to Other Agencies 317 Part IV: Plan Maps 323 MAPPING THE PRELIMINARY PLAN 325 Coastal Resources Map (description) 325 Preliminary Plan Map (description) 330 REGIONAL SUMMARIES OF RESOURCES, ISSUES, AND PLAN PROPOSALS 331 North Coast 331 North Central Coast 333 Central Coast 344 South Central Coast 351 South Coast 358 San Diego Coast 367 MAPS map number North Coast 1-6 North Central Coast 7-8 Central Coast 9-12 South Central Coast 13-18 South Coast 19-22 San Diego Coast 23-24 lei commis'sionetst CALIFORNIA COASTAL ZONE CONSERVATION COMMISSION Public Representatives: Fred Farr, attorney and former State Senator (S) Ellen Stern Harris, consumer advocate; member, Federal Coastal Zone Advisory Committee, Beverly Hills (A), VICE CHAIRMAN Melvin B. Lane, magazine and book publisher, Menlo Park (G)l CHAIRMAN Roger T. Osenbaugh, insurance and marketing executivel Pasadena (G) Bernard J. Ridder, Jr., newspaper publisher, Garden Grove (S) Richard A. Wilson, rancher, Covelo (A) Regional Commission Repr esentatives: Ruth Andresen, Central Coast Dr. Rimmon C. Fay, South Coast Jeffrey D. Frautschy, San Diego Coast *Philip W. Harry, Central Coast *James A. Hayes, South Coast Ira Edward Laufer, South Central Coast *Dwight May, North Coast Robert Mendelsohn, North Central Coast Bernard Vaughn, North Coast Office: 1540 Market .St. Executive Director: Joseph E. Bodovitz San Francisco 94102 Chief Planner: E. Jack Schoop (415) 557-1001 NORTH COAST REGIONAL COMM ISSION Public Representatives: Mrs. Mildred R. Benioff, businesswoman, Mendocino (A) Mrs. Gerry Grader, commercial fish business, Fort Bragg (S) *William Grader, commercial fi'sh business, Fort Bragg (S) Dr. Donald W. Hedrick, professor, California State University, Humboldt (G), VICE CHAIRMAN Dwight May, cattle rancher, Bridgeville (S) John M. Mayfield, Jr., manufacturer, Ukiahl(G), CHAIRMAN William McHugh, labor union representative, Eureka (A) County Supervisors: Ted Galletti, Mendocino County Bernard McClendon, Del Norte County Donald Peterson, Humboldt County *Guy Rasher, Humboldt County City Councilmen: Richard L. Brown, Mayor of Crescent City *Ward Falor, former Mayor of Arcata *Ray Mast, Councilman, Eureka Ray E. Stewart, Mayor of Fortuna Bernard Vaughn, Mayor of Fort Bragg; North Coast representative'on State Commission '@This list i-ncludes all comim-issioners who have served since establishment of the California Coastal Zone Conservation Commiss-*-ons, with asterisks (*) denoting past Coxmissicners. Abbre- viations'follcAng the names of public representatives show the appoLiting authority: G-Goverror, S-Senate Rules Committee, A-speaker of the Assembly. -5- Office: 1656 Union, Rm. 150 Executive Director (P.O* Box 4946) and Chief Planner: John Lahr Eureka 95501 (707).443-1623 NORTH. CENTRAL COAST REGIONAL COMMISSION Public Representatives: Margaret AzeVedo, civic leader, Marin County (A), CHAIRMAN *B. John Bugatto, attorney, San Francisco (G) Phyllis Faber, consulting biologist, Sa n Rafael (S) *Ellen Johnck, city planner, San Francisco (G) Dr. Bradford W. Lundborg, internist, Santa Rosa (A), VICE CHAIRMAN Melville Owen, patent attorney, San Francisco (G) Dr. Kenneth M. Stocking, college provost and professor, California State Univer- sity, Sonoma (G) Wanda Zankich, restaurant/motel owner, Bodega Bay (S) County Supervisors: *Dianne Feinstein, San Francisco County Gary T. Giacomini, Marin County Robert Mendelsohn, San Francisco County; North Central Coast representative on State Commission *John L. Molinari, San Francisco County Peter Tamaras, San Francisco County Robert Theiller, Sonoma County *Michael Wornum, Marin County City Councilmen: Frank J. Egger, Mayor of Fairfax Gregory Jones, Jr., Councilman, Santa Rosa Association of Governments Representative: Leonard Grote, Vice President of Association of Bay Area Governments (ABAG) Office: Holiday Plaza Office Executive Director: Michael L. F ischer Bldg.9 Suite 130 Chief Planner: David Dubbink 1050 Northgate Dr. San Rafael 94903 (415) 472-4321 CENTRAL COAST REGIONAL COMMISSION Public Representatives: Ruth R. Andresen, geologist, Salinas (S) Julian Camacho,.senior system analyst, Capitola (A) Victoria Gibson, attorney, Carmel (A) Samuel H. Halsted, engineer-planner, Menlo Park (S) Frank J. Lodato, manufacturer, Mountain View (G), CHAIRMAN Charles B. Kramer, retired manufacturer, Pebble Beach (G), former Chairman Herbert Rhodes, employee relations at Stanford University, Palo Alto (A) Norman A. Walters, former Santa Cruz Councilman and Mayor, retired educator (S), VICE-CHAIRMAN County Super-visors: Warren Church', Monterey County *Gerald Day, San Mateo County -6- *Philip Harry, Santa Cruz County Gary Patton, Santa Cruz County John M. Ward, San Mateo County City Councilmen: *Al Castagnola, former Councilman, Santa Cruz B. Joseph Dolan, Jr., Mayor of Seaside Grace McCarthy,.Councilwoman, Pacifica; former Vice-Chairman Lorette Wood, Councilwoman, Santa Cruz *Robert A. Quinn, Mayor of Pacific Grove Associations of Governments Representatives: Dr. James Hughes, dentist and Councilman, Pacific Grove (appointed by the Monterey Bay Area Governments) Ilene Weinreb, Mayor of Hayward (appointed by ABAG) Office:. 701 Ocean St., Rm- 300 Executive Director: Edward Y. Brown Santa Cruz 95060 Chief Planner: Robert Lagle (408) 426-7390 SOUTH CENTRAL COAST REGIONAL COMMISSION. Public Representatives: Emmons Blake, businessman, San Luis Obispo (G) Allan S. Ghitterman, attorney, Santa Barbara and Ventura (A) *Gary Hart, employee of the University of California, Santa Barbara (A) *Bruce Johnson, consultant, Santa Barbara (G) Robert E. Kallman, businessman, Santa Barbara (G) Ira E. Laufer, businessman, Ventura (S); South Central representative on State Commission Naomi Schwartz, civic leader, Santa Barbara (A) J. Tim Terry, insurance executive, Santa Barbara (S) County Supervisors: Ralph R. Bennett, Ventura County Harrell-Fletcher, Santa Barbara County *Elston L. Kidwell, San Luis Obispo County *Curtis Tunnell, Santa Barbara County M. E. Willeford, San Luis Obispo County City Councilmen: Robert H. Newdoll, Councilman, Grover City, VICE-CHAIRMAN Dorill B. Wright, Mayor of Port Hueneme, CHAIRMAN Ernest Wullbrandt, Councilman, Carpinteria Office: 330 E. Canon Perdido Executive Director: Francis C. Buchter Santa Barbara 93101 Chief Planner: David Loomis (805) 965-6525 SOUTH COAST REGIONAL COMMISSION Public Representatives: Dr. Donald B. Bright, chairman of Biological Sciences Department, California State University, Fullerton (G), CHAIRMAN Dr. Rimmon C. Fay, marine biologist (S); South Coast representative on State Commission Donald W. Phil.lips, Councilman, Long Be-ach.,(G) Dr. Robert F. Rooney, professor of economics, California State University, Long Beach (S) Mrs. Judy Rosener, lecturer in social ecology, University of California, Irvine (A) Mrs. Carmen Warschaw, civic leader, Los Angeles (A) County Supervisors: *Ronald W. Caspers, Orange County (deceased) *Ralph A. Diedrich, Orange County James A. Hayes, Los Angeles County (alternate: Barna Szabo) Laurence J. Schmit, Orange County (alternate: Loran Norton) City Councilmen: Arthur J. Holmes, Councilman, San Clemente Louis R. Nowell, Councilman, Los Angeles Russ Rubley, Councilman, Long Beach,- VICE CHAIRMAN Association of Governments Representative: *James B. Reidy, Jr., businessman, Los Angeles (appointed by Southern California Association of Governments) Dr. Donald E. Wilson, Councilman, Torrance, and Director of Teacher Education, University of Southern California (appointed by SCAG) Office: 666 E. Ocean Blvd., Executive Director: Melvin J. Carpenter Suite 3107 Chief Planner: David Smith (P-0. Box 1450) Long Beach 90801 (213) 437-2797 SAN DIEGO COAST REGIONAL COMMISSION Public Representatives: Coftelius Dutcher, president of Steam Power Systems, Inc. (S) Jeffrey Dean Frautschy, associate director of Scripps Institution of Oceanography; San Diego Coast representative on State Commission Evan V. Jones, president of Ace Auto Park (G) Dr. Elmer A. Keen, professor of geography, California State University, San Diego (A) *Marvin Kratter, retired real estate and sports owner (A) Dr. Malcolm A. Love, president emeritus, California State University, San Diego (G)q CHAIRMAN Leslie Parker, secretary of District Council of Carpenters, San Diego County (A) County Supervisors: Jim Bates, San Diego County *Lou Conde, San Diego County *William Craven, San Diego County *Lee R. Taylor, San Diego County Jack B. Walsh, San Diego County City Councilmen: F. Gilbert Johnson, Councilman, San Diego Rolland M. McNeely, Mayor of Coronado Tom B. Pearson, Councilman, Del Mar Association of Governments Representative: Robert Frazee, Mayor of Carlsbad (appointed by the San Diego Comprehensive Planning Organization), VICE CHAIRMAN Office: 6154 Mission Gorge Rd., Executive Director: Thomas Crandall Suite 220 Chief Planner: Daniel Gorfain San Diego 92120 (714) 280-6992 Part 1: Summary and Introduction The coast of California--the communities, lands, and waters that mark the western end of the American continent--is in danger. In 1972 the voters of California decided to set a new direction for coastal use and protection. In adopting the Coastal Initiative (Proposition 20), the people of California said: IfThe permanent protection of the remaining natural and scenic resources of the coastal zone is a paramount concern to present and future residents of the state and nation;" and "It is the policy of the state to preserve, protect, and where possible, to restore the resources of the coastal zone for the enjoyment of the current and succeeding generations." But the Coastal Initiative did not provide a permanent solution; rather, it es- tablished temporary Commissions to plan for the future of the coast and to temporarily 'control development. Under present law, the Coastal Commissions will go out of existence at the end of,1976. What will happen then? One possibility is a return to the wasteful, piecemeal, sprawling kind of develop- ment that has already overrun many once-open parts of the coast, and to the over- development in some coastal cities that has congested local streets and walled off coastal vistas from all but those fortunate enough to live on the immediate oceanfront. Another possibility, the one recommended in this Coastal Plan, is for the people of California to protect the unique qualities of the coast, both in cities and in rural areas, and to guide coastal use and development accordingly. The Coastal Plan presented in this report recognizes that the coast must serve the varied needs of today, but the Plan also recognizes that unless development is guided to protect the special resources of the coast, we may well deprive our chil- dren and grandchildren of the. coastal values we cherish today. Thus, the people of California can, in the bicentennial year of 1976, choose the future of the coast: shall it be abused, degraded, its splendor eroded, or shall it be used intelligently, with its majesty and productivity protected for future generations? WHAT THE COAST IS The California coast is many things, along its nearly 1,100 miles of land and water, from the foggy redwood forests of the north to the sun-baked palm trees of the south. The coast is a place for hundreds of thousands of Californians to escape the heat of the city on a summer day. But they often face a frustrating traffic jam trying to get to the beach, and they may find no place to park when they do arrive. The coast is a special combination of climate, soil, and ocean breeze that is uniquely valuable for many crops: trees, artichokes, flowers, brussels sprouts, etc. But high taxes and the pressures of the expanding city threaten agricultural land and, as happened in so many other places in California, irre- placeable farm land may be paved over for housing. The coast is a neighborhood near the water, where you can walk to a nearby beach or to a bluff to see the ocean surf.. But coastal neighborhoods can be overrun 'Jay incompatible development. Land values may become so high that there is little chance to preserve small homes and family neighborhoods; older homes that could be renovated.may instead be torn down, to be replaced by bigger and usually more expensive condominium buildings. The coast is a small lot on the ocean, a place to build your home and retire. But if too maW other people do the same thing, you won't have a quiet, isolated place; you'll find your ocean view blocked by another building, your roads and highways crowded. The coast is a sought-after place to put power plants, offshore oil rigs, onshore refineries, and moorings for supertankers. But there is great controversy about where they should be, what the environmental risks are, and who should make the ultimate decisions about whether or not to allow them. The coast is the nearshore ocean waters that provide fish of great value for sportsmen and for food supply. But overfishing, destroying coastal wetlands, and using the ocean to dispose of polluting wastes diminishes the bountiful marine life along the California coast. The coast is a place to surf, to fish, to swim, to go boating, to sunbathe, to picnic, to bicycle, to study tide pools, to look for rocks and shells, to play volleyball, to walk, to sit, to gaze.- in short, to play, and sometimes simply to enjoy the inspiration and serenity the coast can provide. A CONSTITUTION FORTH E COAST No single plan can foresee all the problems or provide all the answers for the future of the California coast. But this plan recommends basic rules to govern use and protection of the coastal zone now and in thefuture, and th*e plan will, in its final version, recommend governmental means to enforce its policies and keep them current as circumstances change. The Plan is, in short, intended to be a constitution for the coast. The Coastal Plan is designed to achieve two objectives: 1. Protect the California coast as a great natural resource for the benefit of present and future generations. 2. Use the coast to meet human needs, but in a manner that protects the irreplace- able resources of coastal lands and waters. -12- MAJOR FINDINGS AND RECOMMENDATIONS OF THE COASTAL PLAN", The essence of the Plan is that the coast,should be treated not as..ordinary real estate but as a unique place, where c onservation and special kinds'.of development. should have priority. The:Plan's foundation is the fact that .coastal resources are limited, and that meeting human needs while protecting the coast-will.require policies such as tHe following: Public Use of the Coast. Public access-.to appropriate coastal'area Is should be .provided. Coastal developments that serve the public--such as campgrounds, resorts9 hotels and motels, rental housing, etc.--should have priority over.coastal developments that are essentially private,.such as typical residential developments. Wetlands. Coastal marshes and other wetlands, many of which have been filled and diked in past years, should be protected,from further destruction and restored. where possible. Agricultural Lands. Coastal lands suitable for agricultural production should be-. kept in agriculturep and tax policies should be changed to reduce pressures to convert such land to urban development. Coastal Streams. Free-flowing coastal'streams.should be.protected, because they are necessary for the migratory fish caught by commercial andsport fishermen and because they supply sand for coastal beaches. Ener The use of increasing amounts of coastal land,and water to meet energy needs should be reduced by a vigorousprogram. of energy conservation. Energy installations allowed on the coast must be subject to stringent environmental safeguards. Transportation. Public transit should receive prior Iity over roadway1construction in urban -areas, to reduce the need for coastal parking lots,and.major highway programs, to conserve energy, and to improve coastal air quality. Hazards to Development. Development should be permitted in hazardous areas, such as those subject to beach or cliff erosion, landslides, earthquakes, and flooding, only if adequate engineering can reduce the hazards to acceptable levels. Public Recreation. Public recreation should have the highest priority in suitable areas of the coast, and legal rights of the public to have access to publicly-owned tidelands should be vigorously enforced. Public use of coastal lands and waters should be consistent with natural resource protection. Concentrated DeVelopmen@.* Where substantial new. develop'ment would.@harm .coastal. resources and restrict,public access to.the oceahfrontv.new development@should be channeled to the in-land parts.of coastal'cities and.to other inland areas. Public ihVQstmentin roadways, wator,syste'msf sewer'systems, and.other,-such.installa-7 tions should.be designed to:con centrate development.in existing communities (con, sistent with their ability to absorb.it): and thus.to.end wastefuli sprawling development along the coast. Governmental Actions. The plans and operations of many Federal, State, and local agencies should be reviewed to better protect coastal resources. _13- CARRYING OUT THE PLAN This Preliminary Plan makes no specific recommendations as to how the Plan should be carried outf i.e., what governmental organization, powersl,.and funding are needed. Part III of this report evaluates several alternatives. The Plan as finally adopted for submission to the Governor and the Legislature will.include specific recommendations for carrying out the Plan. PLANNING AT A TIME OF RAPID CHANGE In the spring of 1975, as this Coastal Plan is being preparedg Californians are increasingly aware that the postwar era of seemingly-ehdless abundance may be coming to an end. People know that natural resources are limited, that infla- tion is in part caused by wasteful use of land and other finite resources, that prime agricultural lands needed to feed the world's growing population should not be squandered on development that can be built elsewhere, and that the increasing costs of energy and of raw materials may,result in major changes in the lives of Californians. Moreover, there is increasing recognition that no society can long survive if it dissipates its resources recklessly, and that wasteful use of land and water is bound to be costly in the long run. Although it may be expensive to protect coastal resources, it may be even more expensive not to. The.cost will come not only in the health hazards of polluted air and water, not only in the higher food, housing, and transportation costs that result from poor use of land and sprawling development, but also a diminished overall quality of life. No plan can deal with every possible event that might occur over a period of many years, particularly if the years are ones of rapid change. But the Coastal Plan is designed to be just as useful during a time of scarcity as during a time of abundance: in either case, the careful use of limited. coastal resources is essen- tial if the coast is to be protected for future generations. The Preliminary Plan has four Parts: --Part I, Summary and Introduction (this section) s ummarizes the Plan and introduces the rest of the sections. This part also includes a summary map showing major coastal resources: climateg watersheds, agricultural lands, etc. This map also shows the coastal zone as described in the Coastal Act (Proposition 20), copies of which are available in each Commission office. And the map shows the proposed inland boundary line for future definition of the coastal zone as recommended by the Regional Commissions (these lines are shown in more detail on the Plan Maps in Section IV); this line is intended to define the inland extent of major coastal resources. -14- --Part II is Findings and Policies for the many aspects of coastal protection and development. Draft findings and policies on each of the Plan elements were.the subject of public hearings by the Regional and State Commissions. Findings and recommendations adopted by each Regional Commission were combined for adoption by the State Commission; in some cases, decisions had to be made with regard to conflicting recommendations, so some Regional Commission recommendations are not included in this draft plan. In addition, some of the adopted recommendations were submitted by only one or two Regional Commissions and thus were not widely discussed by all of them. The findings and policies in Part II are thus as they were adopted by the State Commission for inclusion in this Preliminary Plan; they have been changed only to clarify language and eliminate repetition.. ksmall amount of new material has been added, as explained in Note 3 below. -Part III, Carryink Out the..Planq,evaluates@different ways in which governmental agencies could carry out the Coastal Plan. --Part IV, Plan Maps, illustrates how the Coastal Plan policies could be applied in each p@ =of @t5e @oa:st. The maps w'ere:prepared by the six Regional Commissions to show' how the. policie s might apply to specific coastal areas. The.s e maps, have not yet been reviewed by the State.Cbmmission; some revisions may be. needed to'bring the maps into full agreement.with statewide policies, or.the. policies may in turn neea'to be revised-. In reading the Plan, please-keep in mind the following definitions and notes:- 1. Statewide Fihdinks.and Policies. Ih Part II,, the findings.and recommended icies are of stateM-e application. 2. Regional Applications of_Policies. Application of 'these,stat.ewid.e policies to the diverse conditio s of different coastal areas is shown in two,ways: as. regional amplifications in the text following the statewide policies,, and in the notations on the Plan Map5.,in Part IV., The-six coastal.regions established by the Coastal Act-are: --North: Del Norte, Humboldti and Mendocino Counties'' --North Central: Sdnoma"Y Marint and San Francisco 'Counties' ;__Cei@trali. -San Mateo, Monterey., and- Santa Cruz- Counties South Central: :San:Luis Obispo,: Santa Barbaray"'and Ventura Counties': --South-: 1os Angeles and Orange Counties -San.Di,ego: .San Di-ego County 3e New.MAterial.;' Almost -all the mIaterial in@Part II is:findings and:pAicies adopted by the State Commission f 6r the P31@ eliftanary 'Plan (except,;,that Plan Element 8, Intensity of Development, received only informal approval from the State Commission pending formal hearing and adoption after the Preliminary Plan went to press). Based on rewriting for clarity or new information, how- ever, some additional material has been included for public review. Both new material and extensively revised material are marked by a vertical bar in the left margin, as shown. 4. Disposition of Plan Elements. The Plan elements as adopted by the State Commission have,been combined and organized for clarity; a bracketed key in the Part II text indicates the original finding or policy number. The abbreviations are few and simple: -15- f = f inding p = policy RA Regional Amplification M = Marine Environment Element L = Coastal Land Environment G =.Geology R = Recreation A = Appearance and Design E = Energy II T = Transportation I = Intensity of Development For example, [E-Pl5b] 'means the language came from Fnergy policy 15(b). [R-p2RA] means it was a Regional Amplification of Recreation policy 2. Use of "shall" and 11should.11 Some of the recommended policies in Part II are intended for the agency designated to carry out the Coastal Plan; for these, "shall" is used-the coastal agency shall protect coastal wetlands. Other policies are intended for other governmental agencies; for these, "should" is used-the Governor@and the Legislature should act at once to protect all prime agricultural land. 6. ."Public Interest in the Coastal Zone" and "Ecological Planning Principles." The Preliminary Plan includes all of the components required by the,Coastal Zone Act of 1972 with the possible exception of "a precise,.comprehensive definition of the public interest in the coastal zone" and a statement of "ecological planning principles and assumptions to be used in determining the suitability and extent of allowable development." These appear to be fully covered by the Preliminary Plan itself, and time has not a]-lowed for them to be drafted as'separate sections; this could, howeyer, be,done for hearing and inclusion in the final Coastal Plan. 7. Additional Regional Plans and Reports. The policies and maps in the Coastal Plan, as revised from this Preliminary Plan and then adoptedt are intended to be the principal guide to future conservation and development of the California coastal zone. In many instancesq more detailed interpretation and application of these policies has been done, or is now being researched, by the Regional Commissions. These Regional studies and publications are of great help in understanding how broad policies are to be applied to specific conditions; there may, however, be some cases in which Regional proposals are in conflict with statewide policies, and efforts to resolve any such conflicts will be made,as the Commissions' planning proceeds. Part II: Findings and Policies MARINE ENVIRONMENT Ocean Resources Management FINDINGS Marine Resources Are Essential. Marine resources are an essential element of this global environment. The sea provides man with food, income education and research opportunities, recreation, and inspiration. The value of the sea as a source of food is important and will become more to in the future. Coastal waters are at least four times as productive as the open ocean. Even though the waters over the continental shelves comprise only 10 per cent of the world's ocean surface 90 per cent, of the world's fisheries are concentrated in this zone. [M-f1,2] California' s Coast Is Especially Productive. The California coastal marine environment is among themost productive in the world, enhanced as it is by: (1) a rugged sea bottom that offers a diversity of habitats, thus helping increase life productivity; (2) wind and current atterns which cause upwelling of nutrient-rich deep water to surface layers; (3) kelp beds that support an abundant variety of life; (4) rocky tide pools and intertidal areas, which sustain many unique and essential species; and (5) estuaries and wetlands that are among the world's most productiveliving systems. [M-2] Human Activities Affect Marine Resources. The intimate details of the nature and diversity of living resources of the sea are not yet fully understood nor are the impacts of human activities immediately apparent, but it is clear that marine resources are profoundly influenced by many human uses of the marine ecosystem. Pollution of water, over-exploita tion of fish stocks, and destruction. of habitat areas all diminish the opportunity of people to benefit from the economic, recreational, and other values of marine resources. Significant opportunities exist not only to protect but to restore the natural productivity of the marine environment as a renewable resource. [M-fl] Rugged Sea Bottom Is One Factor in Productivity. The sea bottom along the California coast sustains high biological productivity. Twenty-seven submarine, canyons exert significant biological and geological controls over the continental shelf-by serving as conduits for transmission of nutrient-rich deep water to the inshore environment. Underwater ridges, banks, mountains, and scattered islands may also cause turbulent mixing in the water column by I modifying prents and waves, thus, enhancing the productivity of the sunlit zones.,If the water where life-sustaining photosynthes occurs. These topographic features also provide unique habitat areas and spawning grounds. [M-f3) Kelp Beds Also Contribute Greatly to the Coast's Productivity. Kelp beds or forests are a significant marine resource, contributing to the high biological productivity of California's marine environment. Kelp beds serve as sanctuaries, nurseries , habitats, and food sources for so many species that they support a greater variety of plants and animals than a temperate land forest. The kelp's great 'biomass" (the amount of living matter per unit area) provide's food and shelter and makes available an abundance of living matter to the sur- rounding sea. Kelp is usually found in rocky coastal environments where water -19- depth is about 25 to 80 feet. Kelp is fast growing and is a source of many pro- ducts useful and valuable to people, such as thickeners and stabilizers in foods and cosmetics, additives in medicine, and industrial products. In San Diego, for example, the value of kelp harvested in 1972 was estimated at over $500,000, and the market value of products derived from the harvest at ten times that amount. Kelp also tends to dissipate wave actiony thus retarding wave erosion processes. [M-f4l Some Human Activities Have Caused Kelp Bed Losses. Although California's kelp beds vary radically over time in response to natural changes in ocean water temperature and currents, they appear to have declined since the turn of the century from about 100 to 75 square miles. Some of this reduction is attributable to human activities with several possible causes: sewage discharges that smother the sea bottomp reduce water clarity needed for photosynthesis, and may contribute to a rise in the population of sea urchins that feed on kelp; exploitation of the sea otter population (a natural predator of the sea urchin); thermal waste discharges that may raise the water temperature beyond the plant's point of tolerance; or toxic discharges such as DDT and heavy metals. Regu- lated harvesting of kelp does not appear to have been detrimental. Through a program of controlled harvesting, augmented by restoration efforts based upon appropriate research and observation, natural.growth (at least of the giant kelp species) can sustain continued harvest. [M-f5J Despite kelp's unique role in the productivity of the coastal environmentt no kelp interpretive center exists to contribute to public awareness and education. [M-f5RA] (See Policy 88 regarding the recommendation that certain kelp beds be included in a coastal reserve system.) Vitality of California's Coastal Fisheries, Living marine resources are not only important in supplying protein and other products, but they also contribute at least $600 million annually to the California economy, including income from processing, retailing, sport fishing, and fishing gear suppliers. The continued vitality of California's coastal fisheries (commercial and recreational) will require effective Statet national, and international management to restore and maintain harvestable species at "optimum sustainable yield''I (the catch level that can be continued indefinitely while stock is maintained or restored). [M-f12,131 Present Fisheries Management Is Inadequate, Present State management and regulations may sometimes be inadequate. Aesearch and monitoring p rograms are often fragmented and incomplete. Some fishing regulations are seen as punitiveg particularly in view of the fact that California's commercial fisherment sport fishermen, as well as fishermen from other states and nations, must all compete for available resourcest yet are not all subject to the same laws. Even within California's jurisdiction, the State Legislature regulates commercial fisheries, while the Department of Fish and Game is primarily concerned with sport fishing.' Crverfishing--in the absence of regulations or by unregulated foreign or illegal fishing operations-can seriously deplete fish stocks to the detriment of commercial and sport fisheries, the general public, and the marine environment. [M-f131 Aquaculture in Coastal Waters. Aquaculture (marine agriculture) involves the cultivation and harvest of aquatic organisms. Currently it produces most of ,the mollusks marketed on the West Coast. In the future aquaculture techniques may be improved and applied to other species, reducing costs and increasing availability of fish and shellfish as sources of protein. Coastal lagoons 01 -20- 1 and estuaries are the predominant locations for aquaculture operations. Generally, aquaculture can coexist with any activity that does not cause pollution or deteriora- tion of the marine environment. Some species can even thrive in heate water in the vicinity of energy generating plants. Other species may be able to utilize nutrients from properly treated sewage discharges. However, some aquaculture operations may require the use of open waters now accessible to the public, thereby converting them to "private" water. Additionally, aquaculture alters a natural habitat by selective cultivation of a plant or animal and so may displace other species. (M-f14) POLICIES 1. Protect and restore Marine Resources. It should be public policy at all levels of government to maintain, enhance, and, where necessary, restore marine resouces. While the entire ecosystem must be protected, special pro- tection shall be given to areas and species of special biologic or economic importance including those identified by the State Water Quality Control Board's Areas of Special Biological Signigicance, by the State Department of Fish and Game, and in the Coastal Plan. Uses of the marine environment-for commerce, food supply, mineral extraction, and recreation--shall be carried out in a manner that does not diminish the productivity of coastal waters or threaten the existence of native species. (M-p1) 2. Maintain Poplulations of All Marine Organisms. Healthy and adequate popu- lations of all species of marine organisms for commercial, recreational, scientific, and educational purposes must be maintained. )M-p13) To this end: a. Effective Marine Resource Management. A single State agency should b charged with the management of living marine resources, exercising juris- diction over California nearshore species of marine organisms for both commercial and sport fisheries and for kelp harvesting. (M-p13b) This agency should coordinate its research and management programs with the comprehensive ocean water quality research and regulatory program described in Policy 5. This State agency should be responsible for maintaining and restoring scentific, educational, recreational, and aesthetic uses -21- of living marine'resources; developing and implementing habitat restora- tion and kelp propagation programs; disseminating public information; 01 @monitoring and coordinating all existing marine research programs; and determining population structure-and dynamics and monitoring fish capture rates in order to establish optimum sustainable yield standards for all harvestable species. [M-pl3c] The desirability of limited entry (similar to the present regulation of kelp harvesting) as a long-term fisheries management tool should be investigated. [M-pl3b] Programs for hatcheries and stocking and for a commercial fishing academy should also be investigated and, where appropriate, implemented. [M-pl3c] b. Cooperation with Other States and Nations. California should continue to actively pursue working relationships for effective fisheries management with adjacent, states, should actively participate in appropriate organiza- tions, and should support international fisheries control that is.adequate to.protect.worldwide.marine resources. [M-pl3a] Regional Amplifications North Coast: All efforts.to,increase a salmonoid population should be supported, and abalone should be managed as a sport fish resource in the North Coast Region. Commercial kelp,harvesting should be .prohibited in the North Coast region. [M-P13RAI INorth Central@. A North Central Coast Research Group shouid be formed as a technical advisory group to provide current accurate informa- tion to the Commission for translating its policies to enhance and protect the.marine environment. EM-P13RAI South Coast: The State agency should establish a living marine resources hatchery to help restore marine species of recreational and commercial importance and their.habitat in southern California. Candidate species include shrimp, lo'bsterg clams, abalone, croaker,and various species of seaweed. [M-P13RA] Restoration efforts.of kelp beds around Palos Verdes Peninsula should be continued. [M-plORA] International efforts to manage.increasing fisheries pressures should.give high priority to the Bishop Rock-Cortez Bank area. This Region should receive high priority for,first phase installation of a statewide monitoring and habitat pro- tection system because exploitive pressuIres are most intense. [M-pl3RAI -22- 3. Evaluate New Aquaculture Operations. New or expanded aquaculture oper- tions in coastal waters shall be permitted only if they would preserve, restore, or enhance areas for public use and would not displace productive natural habitats. (M-p12) 4. Maintain Commercial Fishing Facilities. Adequate berthing and support facilities should be provided for working commercial fishing boats. No existing commercial fishing port space shall be eliminated unless adequate substitute space is assured. (M-p11) New or major expansions of recreational boating facilities that might use up remaining areas suitable for commercial fishing facility development shall be permitted only if it can be demonstrated that present facilities serving commercial fishing in the area are adequate or that construction of needed additional facilities is assured. (New) COASTAL WATER QUALITY FINDINGS Water Quality Management Split Among Many Jurisdictions. Current water quality mangement programs are divided among Federal, State, regional, and Local jurisdictions. The primary requirements are contained in the 1972 Federal Water Pollution Control Act and its Amendments. The State Water Resources Control Board and the RegionalWater Quality Control Boards administer the discharge permit requirements mandated by State and Federal regulations and prepare required basinwide and specific area wastewater discharge plans and programs. They also administer Federal grants for upgrading of treatment facilities and designate Areas of Special Biological Significance. The State Board's Ocean Waters Plan sets waste discharge quality requirements to protect beneficial uses of ocean water, including maintenance of marine life; its Thermal Plan places restrictive requirements on existing and new thermal discharges; and the Bays and Esturaries Policy severly limints the discharge of municipal waste waters and industrial process waters to enclosed water bodies. A variety of local, subregional, and regional authorities are involved authorize septic tanks in areas withou sewer systems. )M-f10) Some Water Quality Program Changes Underway. A number of additional important water quality programs are currently being developed. The Federal Environ- mental Protection Agency (EPA) is applying effluent limitations for various types of domestic and industrial sources of waste water. Regulations for electric power generating plants (important for both thermal and other effluent components) were proposed in March, 1974. A number of Regional Water Quality Control Boards are currently developing erosion control policies under the requirement that general sources of pollution, such as construction practices, be controlled. (M-f10) -23- Coastal,Commission Can Set Stricter Standards. The Federal Coastal Zone Management Actq which partially funds the Coastal Commission, require's that the Federal requirements and those of Stateand local-governments pursuant to the Federal Act may not be weakened in any way by the coastal management pro- gram, although the.Commissionmay impose stricter wastewater quality criteria. [M-flo] POLICY 5. Develop Ocean Water Quality Research and Regulatory Prograig. A compre- hensive ocean water quality research and regulatory program should be developed and implemented. The program should include empirical studies of the present condition of marine living resources (baseline studies), assessment of damage from various activities, and evaluation and appropriate control of all poten- tially hazardous discharges and development activities affecting the marine environment. IM-pl3d] This program should be closely coordinated with the living marine resources management program described in Policy 2. WASTE DISCHARGES* FINDINGS Waste Discharges Impair Essential Water Quality. Currently 130-waste disposal outfalls dump 444 billion gallons (1.36 million acre-feet) of domestic and industrial sewage, which has received varying degrees of treatment, into California's bays,'estuaries, lagoons, and inshore waters. Such discharges may seriously impair'water quality which is essential to the health of marine as well as human life. 'Enclosed Water Bodies Are Especially Susceptible to Dcimage. Enclosed bodies of water such as bays, estuaries, and lagoons, with their limited water circula- tion and abundant plant and animal species, are more susceptible to damage from water pollution than is,the open ocean... Most wastes discharged intothe water consume oxygen as they decompose'or break down. Many wastes are natural products that-the sea can decompose and reintroduce into the life cycle, but with large amounts of organic material or with discharges into enclosed or semi-enclos'ed areas with poor water,circulation, wastes can cause fish kills, algal,blooms,'stagnation and foul odorsp and smothering of benthic (bottom dwelling) organisms. [M-f9] Mid--@1977 Deadline for Secondary Treatment of All Sewage. Following.primary treatment of raw'sewage, wastes still contain 60 to 70 per cent of the original organic material when they are discharged. Federal law now requires that, by July 1977, all sewage receive-secondary treatment, or its equivalent, which will remove' 80 to 90 per''cent of the oxygen-demanding org .anic.wastes. There 01 -24- is differing scientific opinion as to whether@such extensive oxygen-demand removal is necessary for deep ocean discharges. Secondary treatment may also reduce the concentrations of micro-organisms, chemicals, heavy metals, particu- lates, and silt loads in discharged waste waters. [M-f9a] Many Present Discharges Are Inadequately Treated. At present many of the sewage discharges into coastal waters are inadequately tr,'@ated. Only 15 per cent of all municipal waste waters discharged off the coast of Los Angeles and Orange Counties in 1973 received@secondary treatment, for example. This results in an intense concentration of pollutants in the area between Newport Bay and El Segundo. Santa Cruz's Eastcliff sewage-plant and-Pacific Grove's plant both discharge effluent with only primary treatment. into Monterey Bay, although these plants are scheduled to tie into improved sanitation'systems in the next few years. There are many other areas suffering adverse effects from the discharge of inadequately treated waste water. [IM-f9RA] POLICIES 6. Maintain, Manage,_and Restore Marine Water Quality. Water quality essential to marine life and human health shall be maintained, managed, and restored as a scarce and valuable resource. [M_p6] To this end: a. Upgrade Existing Municipal and Industrial Discharges. All municipal and industrial waste discharges should be upgraded to meet the goals and standards of the 1972 amendme nts to the Federal Water Pollution Control Act. Implementation of this policy (requiring secondary treatment of wastes by 1977) should be reviewed if the weight of future scientific study discloses that such treatment is not needed for deepwater waste discharges. First priority in the coastal zone should be given to improving or eliminating discharges that adversely affect wetlands, estuaries, other biologically sensitive areas (see Policy 1), and ocean areas subject to massive waste discharge (e.g., between Newport Bay and El Segundo). Outfall sites and equipment should also be improved to provide maximum dispersal of discharged waste waters. [M-p6a] b. Phase Out Discharges to Enclosed Bays and Estuaries. Existing discharges of municipal waste waters and industrial process waters to enclosed bays and.estuaries should be phased out as:soon as possible and new dis- 10 charges prohibited unless it can be shown that such waste water is con- -25- sistently treated so as to enhance the quality of receiving waters above. that which would occur in the absence.of the discharge. [M-p6b] co Require Adequat e Treatment for New or Enlarged Discharges to Ocean Waters. New or enlarged sewage systems and treatment plants discharging to ocean waters shall meet present Federal requirement's and shall either neutrally affect or enhance the receiving waters, based upon specific studies of each proposed outfall locationt considering ocean chemistry and mixing processes, marine life conditionsv other present or proposed outfalls in the vicinity, and relevant aspects of areawide waste treatment manage- ment plans and programs. [M-p6c] d. Control DischFges-from Non-Sewered Developments. New or expanding developments that are not connected to sewer and sewage treatment systems shall meet strict waste discharge requirements to prevent any adverse impacts, including long-term and cumulative impactsy on marine waters. The State Water Resources Control Board, Regional Water Quality Control Boards, and county health departments should be adequately funded and directed to establish and enforce appropriate water quality criteria. [M-p6e] e. Restrict Expansion of Substandard Sewa&e Systems. Expansion of sewer service in systems with subst andard treatment and disposal facilities shall -be restricted. EM-p6e] f. Require Source Control. Toxic and hard-to-treat substances, such as discharges from certain industries, shall 'be required to be pretreated at the source if such substances would be incompatible with effective &nd economical treatme nt in municipal treatment plants. [M-p6f] Regional Ampl. ifications North Coast: Additional study should be conducted before a total prohibi- tion is imposed against further sewage discharge in Humboldt and perhaps other bays in the North Coast Region- EM-p6RA] -26- North Central: The comprehensive plans being developed to improve water quality within the San Francisco Bay system should assure protection of ocean resources, and land reclamation of waste should @e given careful. consideration. EM-p6RA] Central Coast: When the Water Board has indicated that it is considering the adoption of higher standards, projects should be approved only if they will be able to meet the higher standards or if the project itself is a scheduled step toward meeting the higher standard. EM-p6RA] San Diego: Sewage effluent with secondary treatment level or higher should be allowed to enter coastal lagoonsand estuaries in accordance with the comprehensive water management plan for them. [M-p6RA] 70 Stress Reclamati on of Waste Water. Reclamation and reuse of adequately treated waste water (for agricbltural, industrial, recreational, fish and wild@- life, or domestic use) should be fully considered as a preferred alternative to discharg.Ds into coastal waters for, or as a desirable component of, all water and waste water management programs. Projects incorporating reclamation should be given funding priority over those that do no. [M-p6d] (See also Coastal Land section on Water Supply Management.) 8. Regulate_Wastes from Vessels. All vessels and related facilities should be equipped to prevent sewage discharges to enclosed bodies of water (e.g., s ewage system hookups,for large ships at berthing docks and holding tanks and' pump-out facilities for small craft). Discharges from vessels into open waters shall be regulated to prevent adverse acts; Env#onmental Protec- IMP tion Agency standards and Coast Guard certification procedures (currently being developed). should be rigorously.enforced. [M-p6g] HEATED AND COOLED DISCHARGES., FINDINGS Power Plants Use and Discharge Hugh Volumes of'Water'. Over three trillion gallons (9.2 million acre-feet) ofseawater are now used every year to cool* power plants on the coast and are then discharged at warmer temperatures into marine waters. Based on industry data, the amount of coolant water circulated through the Southern California Edison plants within the South Coast region -27- alone would cover a 12 square mile area, one foot deep,daily. Additional uses of seawater, especially for major heating and cooling systems in energy facilities, are proposed. [M-f9c/RAI Industrial Uses of Seawater Have Adverse Effects. Coastal waters used for heating or cooling purposes; industrial processes, or mineral extraction can adversely affect the marine environment. Water is discharged at temperatures higher than ambient conditions. For example, thermal discharges from power plants between El Segundo and Huntington Beach increase the surface ambient water temperature at any given time by 40F or greater over a combined area of almost two square miles. New currents or turbidity are created near intake and outflow points. Marine life is subjected to entrainment in the system. And chemicals used in such systems can kill many plants and animals. [M-fgc/RA] Many Potential Effects of Heated Discharges. Research to date' has been inconclu- sive in determining the exact beneficial and detrimental impacts of heated water discharges, but potential effects can include the following: (1) Some species that cannot tolerate the warmer water will leave or die off. (Kelp is among heat-sensitive organisms, with adverse effects generally at temperatures exceeding 660F.). (2) Other native species and aquaculture operations may be enhanced by warmer temperatures. (3) Reproduction and migration patberns of some species may be disrupted. (4) In restricted water bodies, the amount of oxygen dissolved in the water may decrease to a small extent, while the amount required for life processes will increase. [M-f9c] Ii-ttle Is Known About Effects of Cooled Water Discharges. In the process planned for use at proposed liquefied natural gas (LNG) facilities on the California coastq large amounts of seawater would be used to heat the super- cooled LNGtransforming it to a gas through heat exchangers in the vaporization facility. In the process, the seawater is cooled; it is returned to coastal waters at temperatures as much as 120F. below ambient temperatures. Although it is known that reductions in water temperature can be fatal to marine life, little specific data has been developed on the effects of continuous cold water discharges on marine ecosystems. There is reason to suspect that unnatural reductions in temperature have a particularly severe effect on embryonic and fetal development. Because the problem has not yet presented itself in California, the State Water Resources Control Board has not developed standards for cold water discharge comparable to those for heated discharges. Under existing rules and procedures, the Regional Water Quality Control Boards would regulate such discharges on a case-by-case basis to prevent adverse bffects on beneficial uses of the receiving waters. EE-fl2l] Entrainment Kills Marine Organisms. Many marine organisms, including phyto- plankton, zooplankton, fish larvae, and small fish, are entrained as water is drawn from the sea for use in industrial or power plants. Many of these entrained organisms are killed due to pressure and temperature changes, impingement, physical abrasiont and chemicals. Chemicals Cause Additional Adverse Effects. Periodic "hot cycle" or chemical treatments with biocides for flushing the cooling or heating systems can cause additional damage to marine organisms in the immediate vicinity of the outfall. [M-f9c] -28- POLICY 90 Avoid Adverse Effects of Thermal Discharge and Entrainment. The adverse q environmental effects of the intake of seawater and of discharges of heated or cooled seawater shall be minimized'or avoided: [from M_P7 and E-p43]' a. Criteri& for Permitting Thermal Discharges. Warmed or cooled water discharges shall be permitted only where rapid return of water to normal ambient temperature can be assured and where best available mitigation measures (such as diffusers, or the discharge of cooled water in offshore deep water, out of sensitive biological areas) have been incorporated as necessary to minimize effects on marine life. Cooled water discharges shall be permitted only where th ere is no other feasible use of the cooled effluent in commercial or industrial operations, consistent with other Coastal Plan policies. b. Prohibit Discharges into Sensitive Biological Areas. New warmed or cooled -water discharges into coastal wetlands, marine res .erves, wildlife refuges, education and research reserves, or in the vicinity of kelp b--ds shall be permitted only if it can be conclusively demonstrated that there will be no sig nificant adverse environmental impacts. C. Study Marine System at Future Sites of Seawater-Using Plants. Independent 11baseline" studies of the existing marine system shall be conducted and evaluated for all potential seawater-using plant sites at the.applicant's expense several years in advance of the anticipated start of -construction of a major seawater-using power-or industrial plant, including sites for LNG vaporization facilities proposing the direct use of-seawater as a heat source. d. Prefer Closed or Evaporative Cooling Systems. Until more is known about the effects and methods for mitigating impacts of once-through cooling _29- systemsv closed or evaporative systems shall be required unless an applicant can demonstrate that overall environmental advantages justify 01 the.use of once-through cooling systems. e. LNG Plants Should'Use Already Heated Water. Where feasibley ING vaporiza- tion plants shall be required to use heated effluents from nearby power plant or other industrial operationsq rather than seawater at ambient temperatures, for a heat source. f. minimize Entrainment. Where cooling or industrial processing waters are drawn from marine watersp the best available technology shall be utilized and the location and site chosen shall minimize the intake and mortality of all forms of marine life (e.g., offshore intake points, velocity caps, and fish return systems). g. Research Effects of Thermal Discharges. A State agency should be ade- quately em ,powered and funded to direct and coordinate research on the environmental effects of thermal (heat-ed or cooled) discharges, anti- foulant biocides, and entrainment of organisms. h. Monitor Dischargesq Require Mitigation Measures. Existing and new thermal discharges should be periodically monitored-(by independent researchers or a State agency). Appropriate mitigation measures or alternative heating or cooling systems shall be required where significant adverse impacts are discovered. [M-P7 and E-P431 Regional Amplification Central Coast: Coastal power plants in this region shall be prohibited from using once-through Cooling in new or expanded facilities. The coastal agency shall permit construction of new cooling facilities to replace once-through facilities and new water treatment plants designed to reduce the discharge of pollutants into the marine environment. CE-p14RA] _30- OIL AND TOXIC SPILLS FINDING8 Several Sources of Oil in the Sea, Oil.enters the sea from several sources, .including deballasting,of tankers, bilge pumping, ship accidents, vessel opera- t ns and ship yards, sewage effluents oil well accidents, fallout from air pollution, and natural seepage. [M-f91 io Oil Spills Have Differing ReportedImpacts on Marine Environment. There are conflicting opinions on the environmental effects of oil spills, but in. general oil spills are more hazardous to the marine environment in nearshore area@,than in deep water because product 'ive shoreline, estuarine,, and bay and harbor areas are affected immediately. The damaging,effects tend to be more severefrom refined products than from crude oil, Although some animal.species (possibly including some rare or endangered species) are highly vulnerable to petroleum and could be wiped out by a.major oil spill, many species se em to reassert them- selves following the initial die-off after a spill, [from E-f871 Long-Term Effects of Spills Not Completely Known. Oil seems to be absorbed by many bottom sediments and re-emitted for many months or years after a spill. Sub-lethal effects of oil pollution may endanger.the long-term survival of a species or the entire ecosystem, but there have been few research projects on these effects and conclusions so far have been conflicting. [E-f871 Further Studies of Effects, Complicated by Natural Seeps, Are Underway. Additional research on the sources and effects of -oil in the ocean is being conducted by various groups in California. Studies on the effect of spills along the coast are complicated by the presence of natural oil and-gas seeps that regularly emit petroleum, with unknown effects on the marine environment. The Division of Oil and Gas has documented over 50 seeps and seep areas between Point Conception.and Huntington Beach, and many more seeps probably exist; although oil-and gas seeps have occurred near the sea in Marin and Humboldt Counties, there are no known offshore seeps north of Point Conception [E-f871 @Coastal Communities and Activities Are Impacted by Spillse Oil spills'are aesthetically displeasing; they cover be ,aches, create odors, can impart,.an un- pleasant flavor to fish, and may have significant economic and psychological impact on 'human communities. within the coastal zone. Recreationp commercial fishing, and water-related activities suffer the most severe direct.damagel but can recover in theabsence of further spills. Of all the existing.or pro- posed Federal offshore production areas-on the Gulf of Mexicov Atlanticv and Alaskan continental shelves-only California's producing area is located close to a large human population,(10 mi 'llion plus) that is directly affected by the environmental,Aesthet.ic, psychologic al andeconomic effects of offshore production. [E-f881 Amount of.Damage Depends on Several Factors. The amount of1damage from an.oil spill varies in degree and duration depending on the quantity and,type of oil,.. the degree to which it ha,s been refined, wind and wave conditions, and the,. location of the spill, with the most.serious damage normally taking place in nearshore.waters and enclosed bays and estuaries. Some cleanup procedures taken to counteract the effects of an oil spill may 'be more destructive than the spill itself, such as the use of detergents or techniques that coagulate and sink oil to the ocean floor, EM- f91 Existiniz Oil Liability Measures Are Inadeguate. Although California has suffered several oil spills off its coast, primarily from tanker mishaps and deballasting of fouled water, and from an offshore-oil platform blowoutv existing liability programs are largely inadequate. a. State. The State of California itself has no funding to pay the costs of oil spill damages but instead relies on the State Attorney General to file suit against the appropriate contingency or compensation funds or against other parties for cleanup costs and damages incurred by the State. Other individuals damaged by oil spills must seek their own relief. b. Federal. The Federal Water Pollution Control Act makes a tankerowner or operator liable for Cleanup costs up to $14 million, and a terminal opera- tor liable for up to $48 million. Liability is unlimited--if there is' willful negligence or misconduct; but there is no liability if the dis- charge was caused solely by an act of God, act of war, negligence by the U.S. Government, or the act or omission of a third party. There is also a National Contingency Fund of $35 million, provided by the U.S. Treasuryv for use of the Coast Guard or EPA in cleaning up spills, or for reimburse- ment to states.of their costs incurred in cleanup. These laws apply to cleanup liability, but do not provide for compensation of damages. The Deepwater Port Licensing Act, passed in late 1-974 to govern deepwater port development in Federal waters, creates a deepwater port liability fund of $100 million by a tax levy of two cents per barrel on oil that is loaded or unloaded at the terminal, The bill makes owners and operators of vessels liable, without regard to fault, for discharges and damages up to $20 milliong and makes deepwater port licensees liable, without regard to fault, foru $50 million. Costs and damages not actually paid by the vessel owner@otpoerator or port licensee would be compensated by the liabil- ity fund. A draft Senate bill relating to Outer Continental Shelf (OCS) development proposes a similar scheme to cover spills caused by drilling and production activities offshore. The Council on Environmental Quality has proposed creation of a single national liability fund to cover spill cleanup costs and damages from all sources in State or Federal waters* ce International. Two international industry volu ntary compensation funds, TOVALOP and CRISTAL, provide oi-1 pollution liability coverage for parti- cipating companies of $10 million and $30 million, respectively, for cleanup and third-party damages. In addition, two international conven- tions that would establish civil liability, with limits, and an international compensation fund have been proposed and are being -circulated for ratification; they would become effective only if ratified by the U*S*.Senate and by a sufficient number of other nations. Existing Liability Programs Are Inadequate. Except for the liability provisions of the Deepwater Port Licensing Bill, the existing liability programs are inadequate for a variety.of reasons: some provide only for cleanup costs, and not for damages; all provide dollar amounts that may be inadequate in the event of a major spill; all leave a very heavy burden upon states and individuals to litigate for compensation of damages;' all leave the question of liability to the law of ordinary negligencev rather than to strict liability. The proposed alternative programs would variously remedy these deficiencies. Enforceability of liability laws may be greatly facilitated by development of techniques for tracing spillsto their sources. [E-f1041 -32- Several.Toxic Substances.Harm Marine Life Chlorinated hydrocarbons (such as DDT) and polychlorinated biphenyls (PCB7as well as heavy metals (suichas mercury, lead, silver., eadmiuml.coppert qhromiuml and zinc) find their way into the marine environment from a variety of sourcesv including domestic and indus- trial effluents, rainwater runoff (containing pesticides.and other substances from urban and'agricultural areas), ship repair yards wh .ere anti-fouling paints are removed, and air pollution fallout. Some of these substances accumulate in sediments, complicating dredge removal and disposal. Most of these sub- stances., in excess quantities, have been shown to have some adverse effects on marine organisms, and there is evidence that some, such as DDT and PCB, may also ultimately affect humans because they may build up in concentration as they move up the food chain. The most effective, economical, and equitable means to control,such substances is to contain or treat them at the source* [M-f9j POLICIES 10. StrictIZ Regulate Release of Oil and Other Toxic Substances. The release of fuel and oil, many chemicals, heavy metals, and other toxic substances into the marine environment shall be strictly regulated and adverse effects avoidede [from M-P81 Specifically: a. Prevent Petroleum Spills from Affecting Sensitive Areas* Petroleum facilities (e.g., tanker terminalsp refineriesp and drilling operations). shall be permitted only where it can be demonstrated.that:(l) under Coastal Plan energy policies the facility is necessary and there is no alternative location that would result in less environmental damage; (2) accidental spi-11s will not adversely affect sensitive biological or aesthetic areas, as identified by State and.Regional Water Boards, Department of Fish and Game, Department of Parks and Recreation,,the Coastal Plan, or other appro- priate public agencies;-and (3).the best available technology and mitigation measures have been incorporated.tolprevent.oil leaks and spills. ..[M-p8c] b. Regulate Other,Vessel-Related Pollution. State regulations should be established and enforced .(1) requiri n'g vessel- fuel ing andd eballasting- equipment and practices that would eliminate spills and leaks to the maxi- mum extent- possible; and (2) prohibiting the-manufacture and sale of sloughing types of boat anti-fouling paints, [M-p8b] -33- C* Research And-Regulation Enforcement. A St.ateagency should be adequately empowered a.nd'funddd' (1) to direct and coordinate research on the effects 01 of oil, heavy metals, and other contaminants on the marine environment, on new,techniques for spill prevention, containment, and cleanupq and on methods of tagging or "fingerprinting." oil to determine spill sources; (2) to work with Federal agencies in providing coordinated supervision of all cleanup operations; and (3) to develop and enforce regulations pro- hibiting the use, sale, and manufacture of highly toxic substances and minimizing routine or accidental releases of other harmful substances, EM-p8e] d. Make Polluters Liable for Damage. Polluters should be liable to fines and for all damages from oil (see following two policies) or other toxic spills resulting from their operationsy whether negligent or not. Bonds (or other adequate assurance of financial responsibility) should be posted for potentially hazardous operations* [M-p8d] Ilo State Should Enact'Oil Spill Liability Measures. In the absence of Federal legislation adequate to guarantee immediate availability of funds for cleanup operations and prompt compensation of damages resulting from oil dis- charges; to'ensure maximum effectiveness of oil spill contingency plans; and to encourage exercise of maximum care and use of highest state-of-the-art technology in offshore petroleum exploration and production operations and in tanker-and tanker'terminal operations, the Legislature is urged to enact the following measures: [from E-p26 and E-P331 a. Establish California Oil Spill Liability Fund. An Oil Spill Liability Fund, to be administered by the Secretary of the California Resources Agency, should be established to provide for all cleanup costs and to compensate all damages caused by oil discharges in any California or -34- Federal navigable water.or reaching the shoreline thereof, resulting from any drilling, production, -processing, or.transport associated with development. of the offshore resource or with operation-of any tanker or tanker terminal, without regard to the cause of the,disjchargeo except that.theFund should not be liab.le-for,any dischargecaused solely,,.by an act of war. The Fund shall recover any.monies expended for clean- up operations or for, damage compensation from of f-s,hor'e@ owners -and, operators, tanker and tanker terminal owne rs and operators, or other parties, as described below in subsection*(d) of this policy. A part of the Fund should go annually toward further development of oil spill containment and cleanup technology, research and surveillance programs for identifying the sources of oil spills, and operating expenses of State and Federal Oil Spill Disaster Contingency Plans. The-Lidbility Fund should be created and maintained by levy of a two-cent fee on each barrel of petroleum produced from a well on State lands, on each barrel of petroleum produced from a well on Federal lands that enters California for treatmenti.processing, or deliveryt and on each barrel of foreign- produced petroleum,.loaded.orunloaded at-,California tanker.terminals., the-Liability Fund should'have a standing limit.,of $100 million. Fees should be levied%only,at times when the Fund contains less than that .amount,.-or when claims against.the Fund exceed $100-million.. b. Liability,for Spill Costs. 'Except when an,offshore.lessee or. operator, or the owner or operator of any tanker,,,tanker terminal,1@937 equipment or facility used in the production, processing,.or transportation of. oil can prove that an oil.discharge from its operations was caused solely by an act of-God, an act of war, negligence by the U.S. Governmenty' or.-'. the 'act or omission of a third,:party,, the lessee i owner or operator -shall. be liable., to the* Liability Fund... for cleanup costs and damages resulting from such discharge and paid by the Fund.. Such liability shall not exceed -35- $20 million for individual owners and operators of offshore equipment, tankers, or other equipment or facilities used in the production, process- 01 ing or transportation of oil, and $100 million for individual terminal owners and operators, unless it can be shown that such dis charge resultied from the gross negligence or willful misconduct of the owner or operator, in which case liability shall be for the full amount of all cleanup costs and damages. C, Drillers Should Post Bonds. Prior to leasing, each applicant for permis- sion to drill on State tide and submerged lands should be required to show the State Lands Commission evidence of secured financial responsibility in the amount of $20 million for each individual lease. d* Register Drillers and Tanker Owners and Operators. All drilling applicants and all owners and operators of tankers operating in California waters shall register with the California Secretary of State for service of process* [from E-p26 and E-P333 12. Create Single National Oil Spill Liability Fund. The California Legisla- ture and the California Congressional delegation should support Federal legislation creating a single national oil spill liability fund, covering oil discharges from all sources related to production, processing,.or transporation of oil, incorporating the measures proposed above in Policy 11, In the event such Federal legislation is enacted, any unilateral California legislation on this subject should be repealed. EE-p261 RUNOFF FINDINGS Runoff Can Degrade Coastal Water Quali Abnormal silt loads (in runoff waters from constructionp gradingv removal of vegetationv and other upland developments and activities) can damage marine resources, especially in estuarine areas, due to sedimentation and increased turbidity. In addition 01 -36- to silt and toxic substances, surface runoff can carry excessive-organic matter (e.g., from failing septic tanks, logging debris, and agricultural operations) that further degrades marine waters. EM-f9l Siltation can also necessitate costly and environmentally damaging silt removal projects. POLICY -13o Control Runoff that Degrades Coastal Waters. Runoff shall not be permitted to degrade coastal waters, especially wetlands, estuaries, nearshore reefs, tide pools, kelp beds, and other sensitive areas. [M-p9] To this end: a. Restrict Devel@pments Causing Runoff. Developments that could directly or cumulatively have an adverse effect on coastal waters (because of such factors as induced erosiont harmful runoff materials, failing septic tanks, an d animal wastes) shall not be permitted unless adequate measures are taken to prevent damage. Em-p9a] b. Treat Contaminated Runoff at Source. Runoff that contains substantial amounts of contaminants (including certain urban, industrial, agricultural? and.boat and shipyard runoff) shall be'treated or contained at the source. [M-p8a and from R-p9gJ C. Adopt Ordinances to Control Runoff,,Erosion, and Silt. A runoff, erosion, and silt-control model ordinance shall be developed by the coastal agency and the State Water Resources Control Boardq and should be adopted and enforced throughout coastal watersheds by all appropriate regulatory agencies. [M-p9b] Regional Amplifications North Coast:- No developments should be perm itted.adjac'ent,to the Eel Canyon and Gorda Escarpment areas unless such developments provide over- riding benefits to the public. EM-p9RA] South Coast: High priority for adoption of a runoff and silt control ordinance shall be in the-San Diego Creek and Malibu coastal water-, sheds- EM-p9RA1 I San Diego: Storm water runoff shall be periodically monitored for the presence of pollutants;. where heavy pollutant loads are foundq efforts shall be made to trace and control such pollutants at their source. [M-p8RA] 01 Coastal Waters, Estuaries, and Vfttlands FINDINGS Coastal Waters Are Hi4ly Productive. Nearshore coastal waters (and especially estuaries and wetlands) are the most productive part of the sea. Coastal estuaries are lagoons, estuarine systems, and enclosed bays (all areas that are connected permanently, periodically or occasionally to the sea and within which seawater is diluted with freshwater runoff from the land). [M-f6l Coastal wet- lands,made up of tidal marshes and mudflats, are a vital part of the productive coastal water system. Coastal waters are generally rich in nutrients carried from the land by the rivers and streams that also bring fresh water to these areas. And the generally shallow depths of estuaries and wetlands often allow sunlight to penetrate to the bottom, permitting plant growth to take place. The open water areas are also an important component of the total coastal marine environment, although they may not be as productive or fragile as shallow estuaries and wetlands. Em-f6] Estuaries and Wetlands Are a Vital Link Between the Land and the Sea. Salt marshes are one of the most productive living systems known, ranking in producti- vity with intensively-cultivated rich tropical agriculture. Salt marsh plants transfer phosphorus compounds from the mud into the water, increasing the amount of this nutrient available to the microscopic plants (phytoplankton) that are a basic element in the marine food chain. Tidal mudflats support the growth of blue-green algae that fix atmospheric nitrogen so that it can be assimilated by other plants. Em-f6] The estuarine system is much more extensive than the areas subject to tidal influence. The area between the upper edge of the tidal zone and the surrounding upland vegetation communities can be critical in maintaining the environmental balance in estuaries. In addition the amount., timing, and quality of fresh water entering an estuary is essential to the existence of plant and wildlife habitats. [L-f2J Many Fish, Bird and Animal Habitats Are Found in Sheltered Coastal Waters. Many fish, water'-fowl, shorebirds, wading birds, and other animal species use the productive coastal estuaries and wetlands either directly for habitat-spawning, nesting, resting, or feeding-or indirectly as a provider of essential food. Many rare or endangered species are entirely dependent on habitats found in California coastal waters. EM-f6] Because of the abundent wildlife present, estuaries and wetlands are valuable educational, research, and scenic resources. [new] Estuaries and Wetlands Are Very Vulnerable to Abuse. Coastal estuaries and wet- lands are particularly vulnerable to being used by man in ways that provide economic benefits but nevertheless destroy their natural values. Coastal estuaries and wetlands.have been dredged for ports and marinas, subjected to sedimentation from upland erosion, filled to provide new land for development, -38- used as sumps for domestic sewage and industrial waste, and deprived of fresh- water inflow by water diversions. Of the original 197,000 acres of marshes, mudflats, bays, lagoons, sloughs, and estuaries in California (excluding San Francisco Bay), the naturnl productivity and open space values of 102,000 acres (52 per cent) have been destroyed by dredging or filling. Of California's re- maining estuaries and wetlands, 62 per cent have been subjected to severe damage and 19 Per.cent have received moderate damage. EM-f7l In Southern California, 75 per cent of the coastal estuaries and wetlands have been destroyed or severely altered by man since 1900. Two-.thirds of 28 sizeable estuaries existing in southern California at the turn of the century have been dredged or filled. [M-f7RAI Dredging and Mining Can Have Adverse Environmental Effects. Dredging and mining can affect marine resources in several,ways. Dredging tidal mudflats and salt marshes can completely destroy these most productive parts of the estuarine sys- tem. Newly dredged channels can change water circulation.patterns in estuaries and can introduce new conditions that certain species cannot tolerate. Dredging and mining operations stir bottom mud, which can cause turbidity that limits photosynthesis in a small area and can recirculate oxygen-demanding or toxic materials that may have been trapped in the mud. These effects can be limited if careful dredging methods are used. Finallyj disposal of the dredged materials ("spoils") can smother benthic (bottom-dwelling) organisms. [M-fll] Some Beneficial Effects Are Possible. Dredging and spoils disposal can also be environmentally beneficial. Valuable marine environments may be able to be re- stored by dredging diked former wetlands to return them to tidal action, or by deepening lagoons that are drying up. The substrate for benthic plants and animals may be improved by dredging. Sandy dredge spoils placed on or near beaches or in littoral currents can aid in the replenishment of beach sand along the coast. EM-fli] POLICIES 3-4o' Protect Estuaries and Wetlands. All remaining coastal estuaries and wetlands and buffer areas ne cessary to protect wetlands and th eir wildlife and bird habitat values shall be preserved, enhanced, and where possible, restored. EI_p2 and M-p2] To this end: a. StuL Restoration Potential Before Any Alteration. Before any man-made .alteration of a wetland or.estuarine area is permitted, an'overall plan, to be approved by the coastal agency, shall be prepared, at the expense of the proponent of the alteration. The plan shall assess natural resource protection and restoration, research and educational opportunities, recrea- tional and aesthetic values, and shall,evaluate the impact of any proposed facilities that can be provided in.@accordance with other Coastal Plan policies. Efrom M-p2RA] -739- b. Restore Degraded Wetlands. All degraded marsh areas and diked unfilled former wetlands capable of restoration shall be restored for natural re- source values and biological productivity, and new marsh areas shall be created except where they would significantly reduce open water areas or adversely affect water circulation. New development in degraded marshes or diked unfilled former wetlands shall be permitted only if: (1) the development is required for port or airport expansion or for energy facilities (consistent with Coastal Plan transportation and energy policies) after it has been conclusively demonstrated that there is a statewide need .for the project and that there is no alternative location that would result in less environmental damage; or (2) the coastal agency determines, based on appropriate scientific study, that the marsh or wetland is not capable of restoration. [M-01 ce Control Upland Development Affecting Estuaries and Wetlands. Development in upland areas adjacent,to estuaries and wetlands shall be controlled to prevent adverse impacts on estuarine or wetland habitat values or significant degradation of the quantity and quality of water entering es- tuaries and wetlands by siltation, pollutants (including toxic, thermal, and organic pollutants)9 or waste water discharges. [L-p2] Regional Amplifications North Coast: Due to the high productivity and sensitivity of coastal la- goons, no further commercial, industrial or residential developments shall be permitted in the upland area unless it can be shown that they will not significantly degrade the water quality of the lagoon or the creeks drain- ing into the lagoons, including Stone, Big, Dryand Freshwater-L&g9ons. Present uses of agriculture and forestry are compatible uses within the .watershed and should be retained as long as they concur with Water Quality Control standards. The development of major water-related facilities should .be avoided to retain wildlife and fishery values. ELr-p2RAI Central Coast: The following areas have been the subject of special evaluation and are considered to be of significant environmental importance so as 'to-preclude any development that is adverse to their environment: Elkhorn Slough sybtem,. James V. Fitzgerald Marine Reserve, Pescadero Creek 01 -40- and Marsh, Ano Nuevo Marine Reserve and Creek, Terrace Point Research Site and Moore Creek Lagoon, Hopkins Marine Life Refuge, Pacific Grove Marine Gardens Fish Refuge, Carmel Bay (proposed underwater park), Point Lobos State Reserve., and California Sea Otter Game Refuge. [M-p3RA] Any acti- vity in the vicinity of Elkhorn Slough system which would adversely affect the quality of this resource s hall beprohibited. [M-p2RA) South Central: Special protection (i.e. restriction on man-made altera- tions, with the possible exception of restoration measures) shall be given to: Morro Bay, Goleta Slough Mugu Lagoon,McGrath Lake, Devereaux-Lagoon, the Dane Lakes, Oso Flaco, Santa Ynez river,El Estero, and Santa Clara River. [M-p2RA] South Coast: High priority .shall be given to restoration of Upper Newport Bay and Bolsa Chica as both have been identified as having statewide im- portance and significant restoration potential. Phase I of the state program to restore Bolsa Chica shall be implemented. Further development shall be required to maintain or further restore natural habitat ;and related public scientific and educational values. The program to protect and restore Upper Newport Bay shall include:(1) acquisition of sufficient upland's to make Upper Newport Bay a viable wildlife-refuge and educational and recreation facility;(2) remedial dredging of accumulated silt and removal of salt dikes to restore tidal exchange;(3)prompt development of a surface runoff and silt, control plan for the San Diego Creek Water- shed to minimize man-made siltation and curtail pollutants which have resulted in public health hazards in Upper Newport Bay. Public regulatory agencies shall not issue any new discharge permits or sewer hookup permits in the watershed area that'-would contribute to bay pollution. High riority shall also be given to(1)an interagency feasiblity study to protect and restore Ballona Creek tidal system; and (2) an interagency plan to regulate land uses in and around Malibu LAgoon and'to`ProteCt and adequately buffer the lagoon's wildlife, educational and,passive recrea- tional values. In the interim, no further development that enrcroaches on or Precludes planning options in the Malibu Lagoon area shall be per- mitted. [M-p2RA] San Diego.: :.A - comprehensive -arid enforceable regional Plan should be pre- pared,by the coastal agency, with the cooperation ofthe:appropriate governmental bodies and agencies, to preserve and manage San Diego's coastal wetlands. The plan must be based on the study of each wetland, its sur- rounding and tributary areas.and possible aIternative sources of fresh water, -encompassing an-area defined by surrounding', physical characteris- tics, rather than by exiting political subdivisions. Before-any-coastal wetland area is committed to development it should first be determined whether the 'land or water area in question is or is not , in fact bur- dened with a public trust. Santa Margarita Marsh, Agua Hedion Lagoon, Batiquitos "Lagoon,San Elijo Lagoon, San Dieguito Lagoon, los Penasquiitos Lagoon, and Tia Juana Estuary should be retained as tidal or restored to tidal action on a managed basis. No development forecasting on oppor- tunities for such restoration shall be allowed., Because of their current :.state and their'wildlife,and other resource importance as coastal fresh bodies Of water, the San Mateo Marsh, Los Flores Marsh,and Buena Vista lagoon shall be retained as non-tidal. Diking, designed to create fresh -41- water habitats in coastal lagoons shall be permitted provided it is part of the.adopted-management plan. Artificial methods for allowing sediment carried downstream by rivers to bypass lagoons should be developed. [M-p2RA] 01 15. Restrict Landfill, Dikingand Dredging of Coastal Waters. Landfill, diking, and dredging in coastal waters shall be permitted only if (1) a neces- sary part-of a wetland or estuarine restoration plan pursuant to Policy 3-4, (e.g., dredging to restore water circulation or reduce sedimentation, diking to create freshwater habitats or sand bypasses); (2) required for port or airport expansion or for energy facilities (consistent with Coastal Plan transportation and energy policies) after it has been conclusively demonstrated,that there is a statewide need for the'project and that there is no a lternative location that would result in less enviromental,damage; [from M -2a] or (3), " the case of p in dredging, for maintaining existing or restoring previously dredged depths in existing navigational channels.,-turning basins, and vessel berthing areas. ,Dredging or diking to restore natural environments should be.considerea experi- mental and the results carefully monitored. EM-P4a] 16, Require Replacement Areas for Diked or Filled Areas. Where landfill or diking is permitted, equivalent compensation areas shall be created, or suffi- cient in-lieu fees shall be dedicated to an appropriate public agenc y, to replace the diked or filled areas with an area of equal or greater size and biological productivity (for'example, by restoring degraded wetland areas). EM-p2b] (See also Policy 180 regarding provision of replacement areas). 17. Regulate Permitted Dredging Where dredging is permitted, the least. environmentally harmful dredging method shall be used. Dredging operat ons shall be planned and scheduled to..avoid unnecessary disruption to fish and bird migrations,. marine habitats, alid water circulation. N-p4b] Bottom materials shall be analyzed for content, prior to.dredging or mining, and dredge. spoils disposal regulated as follows. EM-p4c] (Ongoing studies of dredging 01 -42- 1 and 'dredge spoils disposal alternatives such as those by the Army Corps of. Engineers,should be evaluated as a basis for further refinement of these poli- cies). a. Require,On-Land Disposal for toxic Spoils. Where bottom materials contain toXic substances that could harm marine life when disturbed or disposed', dredging or mining should be avoided,if at all possible. *Where dredging of toxic materials is found to be necessary', harmful'substances in dredge spoils shall be isolated and treated or disposed of on land in a manner that prevents pollution of marine, underground or surface water. [M-p4c] b. Disposal of Other Spoils. Dredge spoils suitable for beach replenishment shall be transported for this purpose to appropriate beaches or into suit able longshore current systems.. [M-p4d] All other dredge spoils shall be disposed of in one of the following ways, based on assessment. of the specifics in each situation: on dry land; in specifically author- ized fill sites; or in deep ocean areas subject to Region IX Environ- mental Protection Agency interim guidelines and at sites chosen qo minimize all potential adverse impacts to marine organisms. Ocean dumping' of other materials should be subject to Region IX EPA authorization. [M-4e] Sand Movement and Shoreline Structures' FINDINgS, Ocean Beaches Depend on Sand. Ocean beaches are one of the mo st highly valued recreational features of the California coastal environment Bat many. of.these beaches are being lost to erosion.--The stability of a sand beach depends on maintaining the dynamic equilibrium of a sand budget -a balance between .Sand' brought to'a section'of beach and that removed from it, either by nature or'by man's actions[G-f18] (See the Land Environment section on coastal streams regarding the supply Sand from'inland sources). -43- Sand Is Moved Along the Shore. Beach sand is-transported by wind, waves,.and wave currents in three kinds of movement-offshore, onshore, and longshore. The sand, wheniput into suspension by wave action, may move laterally along the shore in longshore currents; at the same time it is being transported offshore and returned onshore. The sand movement along the shore occurs within relatively distinct sections of the coast, sometimes called I'littoral cells". These extend from the point where the sand supply is in- troduced to the shoreline, mostly by streams, downdrift to the place where it is swept out to sea, often irretrievably into offshore canyons. There some- times are small indentations in the coast partly isolated from the sand move- ment system of the littotal cells by rocky headlands; within these areas, cliff erosion and onshore currents supply the sand to small pocket beaches. In addition to wave action, wind can move both beach sand and sand dunes. Sand is also lost by abrasion, coastal subsidence, and mining* [G-flg] Human Activity Increases Beach Sand Losses. Man's activity has not only reduced the supply of sand; it has also increased the rate of loss, or changed the dis- tribut"ion, through improper design and placement of groins, jetties, b'reakwaters, and dredged channel entrances in shoreline waters. Another problem can be loss of sand dunes to wind action due to their disruption by vehicles, removal of vegetation, or excessive foot traffic. [G-f2l] Measures to Restore Beaches Involve Environmental Problems. Several measures attempt to maintain sand supplies on beaches, but most of these efforts involve serious environmental problems and require repeated work! Maintenance of beach sands is attempted by either increasing the supply of sand to a depleting beach or by decreasing the movement of sand off the beach. Several methods for in- creasing sand supply are: (1) mining offshore sand sources; (2) placing harbor dredge material on nearby beaches or into longshore currents; and (3) transport- ing material from inland sand sources to depleted beaches, including material accumulated behind inland dams. Methods for decreasing sand loss from beaches may include: '.(1) structures to reduce the longshore movement of sand, such as groins and detached breakwaters; (2) devices to reduce wave action, such as submerged reefs or detached breakwaters; and (3) sand bypassing systems to mechanically pass the sand by a harbor entrance that has altered the natural longshore movement of sand. Beach Sand Losses Are a Costly Problem. The necessary combination of measures to maintain beach sands can be extremely expensive, costing over $1 million for a single beach restoration project at Doheny State Beach, Orange'County, for example, and often involving high annual costs for on-going sand replenishment. [G-f23] Damage due to beach erosion in California was approximately $10 million in 1965. The Water Resources Council projects the annual loss to be $15.7 million in 1980 and $29.7 million by 2000, unless large-scale preventive measures are taken . [G-f22] Shoreline Erosion Is Being Studied. The U.S. Army Corps of Engineers and the California Department of Navigation and Ocean Development operate a cooperative program to study shoreline.erosion. The current study program is almost com- plete in southern California and is continuing in northern areas. These re- search programs only indicate broad erosion problems, however, and accurate understanding of erosion processes requires anal ysis of specific sites before protective structures are designed or constructed. Additionally, the Corps of Engineers' Coastal Research Center provides for public distribution of pertinent reports on coastal engineering and coastal processes. [G-f171 -44- Shoreline Structures Also Affect Marine Iife, Access,and Views. In addition to their effect on shoreline sand movement, marine structures (such as dikes, piers, and jetties) can impair productive habitat areas by.-interfering with water cir- culation, although properly designed structures may provide positive benefits as havens for small fish and as nesting and roosting sites. [M-f7l Marine and shoreline structures can also impair access to and along the shore and degrade the visual qualities of the coast. [new] POLICY 18, Restrict Near-Shore and Shoreline Structures. New develo pments that modify shoreline processesq such as revetments, breakwaters., groins, harbor channels, seawalls, cliff retaining walls, and'6ther such construction., shall be restricted. Where permitted, they shall be [email protected] impacts. EG-p8] Specifically: a* Criteria for Permitting Structures. Such works shall be permitted only if it can be demonstrated that they are required (1) to maintain public recreation areas or to serve necessary public service facilities where there is no less environmentally harmful alternativelor(2) to protect principal structures of existing developments that are in danger from present erosion where the coastal agency determines that the public interest would be better served by protecting the existing structures than in protecting natural shoreline processes. EG-p8aJ b. Mitigate Impairment in Sand Saply or Transport. Where permitted, such shoreline works shall incorporate mitigation measures to minimize and compensate for any impairment of local sand supply or adverse effects on the longshore transport of sand. Incremental construction shall be required, where possible, to allow ongoing evaluation and appropriate modifications. Th e project proponent shall be responsible for continued sand transport, where such transport is required. [G-p8b] .-45- ce Design of Structures. Shoreline works shall be designed to be minimal, unobtrusive, and compatible withmaximum. possible shoreline access and use, and shall comply with Coastal Plan appearance and design policies. [G-p8c, d] d. Marine Structures and Marine Life. Repair, replacement, or construction of marine structures shall be planned and designed to protect and enhance marine life conditions. [M-P5b] Existing marine structures that are found by the coastal agency or other State or regional agencies to cause water stagnation contributing to pollution problems and fish kills shall be phased out or upgraded. [M-p5a] -46- FINDINGS Coastal Land Environment is a Dynamic System. The coastal land environment is a combination of the soils,air, plants , animals, minerals, and ..water courses as they are-affected by or themselves affect the ocean-from the'pounding surf -line to the quiet inland valleys where the coastal fog influences plant species and growth.' The-land environment is a dynamic, interrelated'system'composed of streams that collect from entire watersheds to drain into coastal-waters; natural areas, including the vital shoreline habitats', that are- the link between life in the sea and life on land and that harbor many rare species coastal agriculture and forestry that are enhanced by rich soils and the' maritime climate; coastal mineral resources, primarily sand,and gravel; and the coastal airshed that is directly influenced by the ocean. [from L-f1] 'Streams and Watershed Management FINDINGS, Coastal Streams Are Vital to the Natural System of the Coast. Coastal streams directly affect the coastal environment: they are vital to anadromous fish that live in both salt and fresh water; they collect and transport.sand from the water- shed to supply coastal beaches; they are valuable to the aesthetic and recreational enjoyment of coastal waterways; and they are interrelated with the estuarine systems,that in turn are essential.to the productivity of the marine environment. Coastal strea'ms also significantly'influence flooding,natural ecosystems, agri- cultural.water supply, and groundwater recharge within.the coastal land environ- ment. Watershed areas are.thus an ideal focus 'for developing management techniques to maximize utilization and preservation of the natural resources,of the coastal zone. [from L-f6] (See also following section,Water Supply Management.) Streams Are Essential Habitat for Anadromous Fish. Salmon andI steelhead trout spend part of their lives in the sea.andpart.in freshwater streams. These fish are an important' State recreational resource,and in 'the case' of "salmon, a commer- cial resource as well, but their abundance-has declined by at least 50 per cent years, primarily due to humanIactivities'. The upstream spa wning over the past and nursery areas have been the most severe damaged habitat areas... .[L-f7] Human Activities Damage Stream Habitat. The upstream habitat has been damaged by many activities: dams that provide no adequate fish bypass facilities and that flood large.spawning and rearing areas;water diversions and stream channelization; sand and gravel 'mining from streambeds; grAding or logging opertions that induce habitat-smothering erosion and.siltation.along streambanks, Wen from remote.sites in the watersheds; land fills for various purposes; increases in water tempera- ture caused by removal of shade.vegetation:and discharges,of-toxic thermal or organic pollutants into habitat streams. -47- Present Regulations Are Inadequate. The State Department of Fish and Game, Regional Water Quality Control Boards, and Division of Forestry all have some regu- lAtory powers dealing with stream habitat, but there is no agency with authority over new projects affecting habitat areast and funding of existing programs is 01 inadequate to enforce present habitat, protection measures. The Department of Fish and Game notes that existing authority and funding is inadequate to pro- vide full protection to spawning areas. [L-f8] Beach Sand Is Generated and Transported by Coastal Stream Flooding. Though beach sand may come from cliff erosion, landslides, dunes, or onshore trans- port, most of California's beach sands are delivered by coastal streams. The principal mechanism by which the sands are collected and transported is flooding. The amount of sediment contributed by each stream depends on such factors as the area of the watershed, erodability of the watershed formation, runoff, land use, and stream slope. A number of studies have been done in the transport of beach sands from major rivers. For instancep in the past two years the U.S. Geological Survey has completed studies on the Eel, Mad, and Russian Rivers and Redwood Creek. [L-fg] Human Activities Reduce Stream Flooding and Thus Affect Beach Sand Supply. Damsq settling basins, all flood control works, watershed erosion control, certain farming practicesp urbanizationt control of natural runoff on range and forest land, etc., reduce the natural flood flows of coastal streams and so eliminate or impair the continued generation and delivery of beach sands. Where the normal process of sand supply has been seriously impaired, severe depletion of beach sands and accelerated beach erosion has resulted, necessitating costly and continuous sand importation measures. [L-f10] (Conversely, in some cases downstream chan- nelization in the alluvial plain may assist sand transport through the plain to the beaches.) [G-f2D] POLICIES 19. Establish Comprehensive Watershed Management. 'The planning and management of all new water projects,' agricultura14 forestry and mining practices, and other development within the watershed (except in already substantially urbanized areas) should be done on a comprehensive watershed basis, and an appropriate.agency with regional jurisdiction should be designated to manage the coastal stream system. [Ip51 The coastal agency shall participate with other agencies in the development of appropriate multiple-use concepts for watershed plans. [L-p16] In addition: a. Weigh Costs and Benefits of Watershed Projects. The watershed management agencyt and the coastal agency for those projects within its jurisdictionp shall consider the environmental costs and benefits, as well as the economic costs and.benefits, of each project within the watershed. [L-p5l (See 01 -48- 1 the policies of this section, and the section on Water Supply Management, for specific criteria.) b. Maximize Participation in Watershed Decisions. A procedure shall be developed by which notice of such projects shall.be given sufficient that all'interested persons and agencies will1have adeq uate opportunity to participate in their review, normally at the stage when an environmental impact statement is oeing prepared and reviewed. [L-P51 Regional Amplification 'South Coast: Management and protection of the marine environment shall be closely coordinated with management of the shore and uplands. [M-p5RA1 Such natural sand supply linkages as continue to exist between watersheds and beaches, through erosional action and runoff, must be maintained. The following watersheds must be protected from intensive development--from growth-induciiig roads, sewers, and storm drains--and from any land use that would disturb replenishment and contribute to beach erosion: (1) in the Malibu area: Arroyo Sequit Canyon, Trancas Canyon, Zuma Canyon, Ramirez Canyon, Escondido Canyon, Solstice Canyon? Corral Canyon, Malibu Canyong Carbon.Canyon, Los Flores Canyong Tuna Canyon, and Topanga Canyon; (2) in Orange County: San Joaquin Hills Canyon, Upper Laguna Canyon, Aliso Creekf Sulfur Canyon, Salt Creek, San Juan Canyon and Boat Canyon; and (3) on Catalina Island: Avalon Canyon and White Cove Canyon. (The list is not inclusive; research in the relation of beach sand supply from existing natural watersheds to regional beaches and other factors may 'warrant additions to the list.) [L_p8RA] 20, Review Projects Affecting Coastal Streams. The coastal agency shall be authorized to review, modify, approve or disapprove any activity (such as stream- bed mining operations, removal of shade or habitat vegetation, discharge of toxic, thermal, or organic pollutants, or grading or logging operationsYor structure (such as permanent dams, flood control and water diversion projects, or stream channelizations) that would significantly interfere with natural sand supply processes or with anadromous fish spawning reaches or that would signifi- cantly affect the natural habitat, aesthetic, or recreational values of coastal streamse'' Efrom L--@P59 L-p6a, L-p81 and R-p8f] (Note: The coastal agency's. area of jurisdiction is to be specified as part of thefinal Coastal Plan. Review authority over specified critical developments outside of the coas -tal agency's area of,jurisdiction is one possibility.). -49- 21. Criteria for Projects Affecting Coastal Streams. In addition to other factors affecting the entire watershedg the coastal agency shall consider the ON following criteria in reviewing projects affecting coastal streams: a. Restrict Projects that Alter Natural Streams. Channelization of rivers and streams shall not be permitted unless necessary for flood control and co n- sistent with other Coastal Plan policies. [A-p25b] Natural sand supply -linkages between beaches and upstream watershedst the upstream spawning and nursery areas needed by salmon and steelhead trout, and opportunities for canoeing, rafting, and kayaking.on coastal anadromous fishery streams shall be protected and maintained or adequate mitigation measures provided. [from L-p6t L-p8, and R-p8f] b. Approved Projects Must Offset Damage. Where stream-blocldng structures are permitted, they shall be required to incorporate the best available miti- gation measurest including (1) provision of anadromous fish runs or fish ladders, (2) maintenance of sand transport capability within the streams or alternative supply or other replacement for the loss of needed beach sand, and (3) replacement of any fish, wildlife, or valuable plant habitat substantially adversely affected by the project (such as by increasing hatcheries' capacity or restoring degraded areas). Costs.of such mitiga- tion measures shall be included in the operating budgets of the projects. [from L-P5, L-p6a, and L-p8] C. Delay Projects.Where Sand Supply Impact May be Irreversible. Where informa- tion is lacldng or incomplete to document sand supply from inland sources or the effect of coastal mining, an appropriately designed study project shall.normally be initiated prior to approval of any such activity that would interfere with natural sand supply and transport processes. However, if it can be established thatsuch delay @would result in unwarranted hard- ship, and that the public interest could be adequately protected through the posting of a bond or other appropriate legal guarantees, to be forfeited -50- if the project is subsequently established to be detrimental to coastal- resources, a project may be allowed to commence prior to the completion of such a study.. [L-p8J 22. Provide Special Protection for Anadromous Fish Streams. In addition'to the regulation of stream-blocking structures, the upstream spawning and nursery areas needed by salmon and steelhead trout shall be protected and restored. [L-pQ The coastal agency shall work with appropriate Federal, State, local, and private entities to develop implementation methods'for appropriate prote'c- tive and restorative measures. [Ip6c] To this end: a. Extend Authority of Existing Agencies. The authority and funding of the DeDartment of Fish and Game, the Regional Water Quality Control Boards, and the Division of Forestry should be extended to ensure that salmon and steelhead trout habitats will be restored and protected from the adverse effect of man's activities. Sections 1601 and 1602 of the State Fish and Game Code should be amended to provide for the denial of permits by the Department when a request would adversely affect the f-ish,and wildlife resources of the State. 'Where spawning areas cannot be restored, appropriate mitigation measures (such as the building of additional- fish hatcheri es) should be employed. [L-p6b] b. Systematic Stream Surveys Needed. The Department of Fish and Game should be adequately funded and staffed to systematically survey anadromous fish streams to determine fish populations, to identify and delineate critical spawning habitat (and associated riparian vegetation), its conditions, and its potential for improvementland to develop and undertake appropriate management and restoration programs. Appropriate maps and report's should forwarded to the California.Division of Forestry to effectuate those pro- visions of the Forest Practice Act relating to.stream protection and to -51- appropriate agenciesp including local agenciesp for control of polluting discharges. [I,96c] 23- Protect and Restore Sand Supply.and. Movement. In addition to the regulatory functions described in Policy 21(regarding stream-blocking.structures) and Policy 18 (regarding shoreline structures), the coastal agency shall give overall direction to a program to conduct ongoing studies of sand supply and movement and to undertake restoration measures to maintain positively balanced sand budgets,,[G-p8] including development.of.sediment bypass techniques, monitoring sediment buildup behind dams, and other methods for providing continued beach sand replenishment. 'L-p5RA] The appropriate technical resources of agencies such L as the U.S. Geological Survey, U.S. Army Corps of Engineersp State Department of Water Resources, Department of Navigation and Ocean Development, Division of Mines and Geology, State Lands Commission, and Department of Parks and Recreation, universitiesq collegesp and marine laboratories should be utilized in this program. [Ip8 and from G-p8b] OF Water Supply Management FINDINGS Groundwater and Surface Water Are Interrelated. Groundwater and surface water are naturally interrelated. Surface waters recharge-groundwater supplies and groundwater often feeds springs and streams. Over-exploitation of surface water will prevent adequate recharge of aquifers, especially where stream flow is important in recharge. Overuse of groundwater can affect surface supplies by drying up streams and springs fed by the groundu-ater and can adversely affect the groundwater supply by drawing in saltwater. This can often have a damaging effect on the native habitats that depend on this water supply. At present, there is no,effective coordinated environmental management of groundwater and surface water resources. [-I-f2l] Groundwater'Supplies Are Recharged from Many Sources. Groundwater supplies are recharged by precipitation, seepage from rivers and streams, absorption and storage of rainfall by soils, and in some cases-'from underflow from adjacent areas. The rate of recharge is dependent on the type of soil, density of vegeta- tion, intensity of rainfall and;terrain, buildings, coverage with impermeable sur- faces, and compaction of soil. The recharge area of an aquifer (water supply) can be reduced by development that decreases the rate and area of permeability for rechargeby compaction of soi4 and by channelization of rivers and other flood -52- control projects. The underground geology of an area.must be well known in order to have a clear under standing of the recharge and movement of groundwater. . Overdraft of Aquifers Has Adverse Effects. If an aquifer is overdraftedt in addition to the adverse effects on surface.waters noted above, the geologic structure of the aquifer itself (especially in thick clay formations) may be changed. The aquifer may lose its future water storage and structural capacity through subsidence or compaction. Subsidence, an actual-sinking of the ground surface can also cause damage to roads, buildings, and other structures. [I-f22] Overdrafts Also Threaten Water Qua lity. As a result of continuing overdraft of groundwater supplies and the reduction of freshwater recharge, saltwater.has intruded into underground freshwater reservoirs. Natural causes, such as long periods of low rainfall, may also contribute to saltwater intrusion, but are relatively insignificant compared to man-induced causes. Saltwater intrusion con- taminates the water supply and can harm soil quality for agricultural use by. increasing the level of various salts with continued irrigation. [G-f25] The quality of the water can also be damaged by septic tank effluent, buildup of nitrates and pesticides from irrigation water and other pollutants. [I-f22] Effective Groundwater Management Is Needed. Because of these potential develop- ment impacts, it is crucial in effective water resources management to prepare and,use accurate maps showing the geology of the groundwater basins and their re- charge areas. The impact of development, both in terms of the amount of ground- water to be drafted and the effect on groundwater recharge should be assessed in terms of this.geologic information. [1-f22] Alternatives to Groundwater Draftina Should Be Developed, To offset the con- tinued depletion of water supplies (both surface and groundwater), alternative sources will be.needed. Importation of water and use of reclaimed water are the main sources. [from I-f23] Reclamation of waste water can help conserve limited water supplies, thus avoiding the potential adverse effects of bverdrafts,@ including the problems of subsidence and saltwater intrusion. It can reduce California's dependence on costly and environmentally disruptive interbasin water transfers. Reclamation of waste water can also eliminate the adverse effects of disposing of partially treated waters into coastal waters. [from M-f9RA] -In many areas the use of reclaimed wa@er is preferable to importation because agricultural water costs (at lower than drinking water standards) may be stabilized or even lowered (incontrast with the often higher cost of im orted fresh water), because water Imp importation may entail high energy costs, and because water importation may in some instances induce development in coastal resource areas. EI-f231 On the other hand, in some coastal areas the initial quality of the water may beso poor as to preclude its reclamation for beneficial uses. [new] Water Injections May Be Able to Co rrect Saltwater Intrusion. Saltwater intrusion can usually be alleviated, either by reducing overdrafts that lower the water. table or by creating a freshwater barrier (by injecting water into wells located along the coast to raise the water level above sea level). Freshwater injections can also replenish underground reservoirs for continued use from inland wells, but.they may.be expensive and require consideration of complex hydrologic conditions. [G-f251 Water Conservation Reduces the Problems Associated with Increasing Water Supply. The adverse economic and environmental effects,of overuse of@water supplies can all be reduced by lowering the rate of growth in demand for water use. Much water -53- use is inefficient or unnecessary, such as overwatering of agricultural and land- scaping areas, planting non-native vegetation that requires more water, and use of inefficient plumbing fixtures. [new] POLICIES 24. Relate Water Management to Coastal Protection. Water supply development, wastewater reclamation, and water conservation should be related to comprehensive watershed management. Coordinated programs at local, regional, and State levels are required: [f rom I-p2l, 221 a. Local Water Plans Should Stress Reclamation and Conservation. Water service agencies should develop comprehensive local water management plans based on a thorough inventory of surface and sub-surface supplies, coordinated waste- water management, and conservation of water resources, consistent with regional basin plans and with the Coastal Plan. Wastewater management programs and water conservat ion measures should include the reclamation of wastewater, espe.cially f or- non-domestic uses, restructuring of user charges to discourage unnecessrily high consumption, monitoring of private wells, and public education. [1-p2l] b. Local and Regional Water Manaaement Plans Should Prevent Adverse Impact. Both local and regional water management programs should prevent adverse effects on coastal resources with particular regard for the following: (1).saltwater intrusion having adverse impacts on agriculturef wildlife, or other resources; (2) loss of natural riparian vegetation that has sig- nificant value for erosion control, flood restraint, and wildlife habi- tat; (3) adverse alteration of saltwater-freshwater balance in coastal wetlands; (4) degradation of anadromous fishery resources; (5) reduction of coastal sand supply where needed for protection against coastal erosion, for maintenance of recreational beaches, or for industrial sand supply; (6) loss of water-oriented summer recreational opportunities on specified streams; and (7) reduction of existing agricultural production and processes. [I-p22] (See also previous section on Coastal Streams and Watershed Management.) -54- C. Local General Plans and Building Codes Should Include Conservation. Cities and counties should incorporate water conservation in both their planning and building code programs. [M-p6d] The Legislature should mandate that all local general plans include an element that specifically addresses water con- servation. Appropriate alternatives for recycling and conserving water should be implemented. [G-plO], d. State'-and Regional Water Plans Should Be Reevaluated. The Department of Water Resources should be adequately empowered and funded to gather and disseminate information on water use and@supply, to research and implement ''regional and statewide programs for water conservation and reclamationf and.to assist in local programs, [G-pIOJ State,water policies and research should be reevaluated to reflect the benefits of water reclamation. [M-p6d] (See also Policy 7 regarding reclamation of waste water,). 6. Prevent Saltwater Intrusion. The freshwater supplies within coastal ground basins shall be protected from seawater intrusion by injecting water into wells to create hydrologic barriers,or other proven techniques where neces- sary. High priority in the planning of such projects shall be given to the use of reclaimed water to the extent possible consistent with appropriate water quality and health standards. [G-plo] Regional Amplificaticn South Coast: High priority for implementing reclamation programs within the State shall be the South Coast Region as it is the State's larg'-st consumer and importer of water and the largest ocean discharger. A joint powers agreement between the Metropolitan Water Districtt the Los Angeles. Department of Water and Powerand the Los Angeles County Sanitation Dis- iricts shall be entered into to develop a coordinated plan of water reclama- tion and reuse. [M-p6RA] 25. Development Decisions Should Relate to Water Management Plans. Development decisions shall be related to water management plans and programs that minimize the need for interbasin transfers and that consider total water basin impacts. 55- a. Avoid Need for Future Water Importatio Development,that has the poten- tial, individually or cumulatively, for inducing the future importation of water shall not be permitted unless local, regional, or State water plans that have been determined to be consistent with the Coastal Plan provide for such importation. [I-p2l] b. Development Should Not Adversely Affect Local Water-Resources. New develop- ment shall be allowed to make demands on local water supplies only if it can be demonstrated that no adverse impacts will be generated, either directly or indirectly, on coastal zone resources (e.g., degradation of anadromous fish runs, saltwater intrusion into groundwater supplies, reduction of ground- water recharge). In addition to other policies of the Coastal Plan, the impact of development should be evaluated in terms of potential effects on the subsurface geology of underground water supplies and on the capabilities of surface drainage for water supply replenishment. Impervious surface limitations, floodplain zoning, and other development standards designed to protect groundwater and surface drainage areas shall be established at the local or regional level before development with the potential for ad- versely affecting water supplies is allowed. [I-p221 Natural Habitat Areas FINDINGS Important Habitat Areas Are Found in the Coastal Zone. Many and varied species of animals and plants make their homes in the natural environment of California's coastal zone.. Each living community harbors a distinct group of birds, animals, and plants9which interact with each other and their environment as a complex, often unique ecosystem. Some of the types of living communities (ecosystems or habitat areas) in the coastal zone are: dunes, wetlands (including salt and fresh- water:marshes and associated vegetation), riparian (banks of water bodies) vege- tation, tidepools, redwood and other forestsq'coastal scrub and sagep and grasslands. Many species of animals range through several ecosystems for diverse food and shelter and some plants are found in more than one.tle of ecosystem. But many species can survive only in.one such ecosystem L-f2'1 -56- Coastal Zone Natural Areas.Provide Benefits to People. Thevarious natural areas- within the coastal zone are utilized by people for food and fibet-ptoduction', for enjoyment, for recreation as varied as bird.watching and hunting, for scientific investigation and experimentation, and 'for education and training. [L-f3l Many Human Activities Have Destroyed Coastal Natural Areas. Substantial destruc- tion of naturallareas along California's coast has been caused by such factors as expanding'urban development, the noise and pressure of recreational activities, alterations of vegetative cover, and the indiscriminate use of.pepticides. These activities are reducing the habitat areas available to all plants and animals and are threatening some species.and some unique communities, which.can exist only in'limited ar@as, 'with extinction. The continued existence . of abundant and varied life forms on the coast depends upon proper safeguards for.whole.,living communities as well as for plant and animal habitats. An especially serious problem in coastal zone wildlife management is the degradation..or reduction of wetlands, tide pools, and dunes--the narrow and often fragile transition zone' between marine and-terrestrial ecosystems. [L-f4l Unique Habitat Areas and Rare Species Need Protection.. Public land ownership, including wildlife refuge areas and parks, preserves many habitat areas, but. much of the unique natural area of the coast is still unprotected. The State Department of Fish and Game has some regulatory power to protect habitat -areas of rare and endangered animal species and to restrict hunting of threatened animals. Rare and endangered plant species have recently been extended.'some limited protection on the Federal level, but no protection for rare and endangered living communities now exists. Mor6over,-there is limited, if any, regulatory power to assure that more living communities, and,individual plant and animal species, do not become.Tare and endangered in the future. EL-f5l POLICIES 26. Preserve Sia!21ficant Natural Areas and Rare Species. Ecologically signifi- cant areas of all coastal natural living communities shall be preserved.by public ownership 6r other appropriate means. [L-PI] (see Policy 88.regarding @he establish-. ment of coastal reserves to protect such-habitat areas-and Part IV, maps and notes, for identification of areas.) Rarelor endangered plants (such as old- growth Coastal Redwoods'and Torrey Pines), animals, and communities shall be protected,from destruction or further degradation, and restoration efforts shall be aggressively pursued. Activities shall be restricted and public access shall be carefully managed to prevent'any disruption af the'habitat values. New legis- lation to assist in the designation,,,,preservation, and restoration of rare or endangered plants and communities (habitat types) should be adopted, patterned after or expanding existing laws mandating protection for endangered species. L_P31 -57- 27. Restrict use of Fragile Habitat Areas. Natural habitat areas that are fragile, such as tidepools, sea caves, coastal wetlandsv indigenous dune plant habitat areas, and riparian habitat areas, shall be used only for those activities that are directly dependent on these natural resources and only to the extent to which it can be demonstrated that no significant disruption of habitats or environmental damage will occur. [R-p5a@ (See also Recreation section on Control-ling Recreation to Protect Resources.) Regional Amplification Central Coast: Until acquired or otherwise protected, access across dunes which are stabilizing shall be limited. Furthery no future-develop- ment shall be allowed that may adversely affect "living" Flandrian dune formations. [L-plRAI 28. Control Adjacent Development. Development in ai@eas adjacent to significant or fragile habitat areas shall be controlled carefully to prevent adverse impacts which may significantly degrade the qualities of those areas. [L-pl] Specifically: a. Priority for Complementary Uses. Priority shall be given to proposed develop- ments or uses that are complementary to wildlife uses, such as grazing lands that serve as auxiliary feeding areas for protected wild fowl. b. Restrict Disturbance of Shoreline Habitats. No development or use proposed along the coast or adjacent uplands that unnecessarily disturbs or destroys shoreline and intertidal habitats or dune vegetation shall be permitted. C. Maintain Buffers to Protect Habitat Areas. Development, including new divi- sions of land and construction on existing lots, shall be regulated to main- tain a natural vegetation buffer strip as necessary for protection of habitat areas, but in no case less than 50 feet wide except for minor intru- sions upon natural vegetation, along all intermittent and perennial rivers, streams, lakes, lagoons, and wetlands in the coastal zone. [I-P41 29. Minimize Habitat Damage Wherever Development Is Permitted. Where permitted in or near any area with natural habitat value, urban development, roads, log- -58- ging, farm operations, or.other human activities,that reduce or affect natural areas shall be regulated to minimize the amount of natural land and vegetation that is altered and to strictly avoid unnecessary impact of such activities on these life resources. [L-P41 Agriculture FINDINGS Coastal Zone Soil and Climate Create Special Conditions for Agriculture. 'Particu-m:,. lar combinations of soil and climate along the coast create special conditions which are required by,certain "coastal-dependent.' crops and provide high,produc- tivity for other "coastal-related" crops and for general agricultural uses. The moderating marine influence extends the-effective growing.season, provides timing, advantages for national markets, and reduces the dangers oflarge-scale crop loss from freezing. Crop adaptability maps are-available to demonstrate the broad categories of crops suitable for particular areas, combining info-mation from the Department of.Water Resources land classification maps with climatic data. The rich soil resources of the coastal zone are not limited to the production of specialty crops,. and in the event of need, agricultural production could be con- verted tostaple crops...Many of the soils could grow.varieties of wheat, oats,,. and other'basic cereals, vegetables, and,many other necessary crops.. [L-fil] Type and Extent of Coastal Agriculture. Over-3-21 million acres ar. e now being used for agriculture within the coastal counties, with about 340,000 of this acreage used for principal coastal-depende 'nt and coastal-related crops (24 fruits and vegetables). The balance is used for irrigated or non-irrigated pastures for sheep and dairy.and beef cattle. Some.pasture lands could be converted to pecialty crop-producing areas if marketv financial, climatic, and water supply conditions were favorable. Even for grazing.uses, coastal lands enjoy unusually S high productivity. Coastal-related agricultural lands may extend far beyond the present 1,000-yard permit line. EL-M! Much Coastal Agricultural Land Is Prime. Much of the coastal agricultural land is considered prime by,USDA Soil Conservation Service,Standards and by.the broader definitiont including economl*_c,factors,.used for t.he.@Statel-s,preferential.tax' program, the*Williamson Act,-as follows:. (1) All land which qualifies for rating as Class I and ClassJI in the Solll,.., Conservation Service, land use-capability.c,lassificatio,n.s., (2) Land which.qualifies for rating.80,through-1,00 in.the Storie Index Rating. (3) Land: which supports.. iivest'ock@ used for the production of .@food and fiber and which has an.arinual carrying,:.Capacity equivalent to at least one animal unit per acre.as-defined by the.U.S. Department of Agriculture. (4) Land,planted with.fruit- or nut-,bearing tree.st vines, bushes-t or cro 'ps which have a nonbearing period of 'less than. f iV& years' and "which will normally - -59- return during the commercial bearing period on an annual basis from the production of unprocessed agricultural plant production not less than $200 per acre. (5) Land which has returned from the production of unprocessed aD7icultural plant products an annua-1 gross value of not less than $200 per acre for three of the previous five years. Enew] Non-Prime Lands Are Also Valuable. Lower quality soils can also be valuable for producing crops with special climatic requirements, such as avocados, brussels sprouts, broccoli, artichokes, and celery. Grasslands constitute a major renew- able resource converted to milk-, meat, and other products on a short-term basis. [L_f18] Coastal Agriculture Is Economirally Important to California. Coastal agriculture provides many jobs. Estimates are as high as 350,000 jobs in and serving agricultural operations within five miles of the coast. Agriculture and food processing employ- ment is substantial in some counties (e.g., Santa Cruz and Monterey). Gross revenues from agricultural crops are a major portion of the State's economy. In 1969, the value of the 24 principal coastal crops in the 15 counties was estimated at almost $500 million--more than half of the State total for these crops. Nationwide coastal crops are important economically and as food supply- EL-f19] Urban Development Threatens Coastal Agricultural- Lands. Vast areas of agricul- turally productive lands have been lost to urban expansion. More than eight per cent of the croplands in the coastal counties in 1958 were lost in the succeeding decade. Although some recent studies indicate that public revenues from agriculture are greater than public costs, the traditional concern for an expanding economy, employment, and tax base, combined-with current tax assessment policies, continue to give precedence to urban dev.'elopment. Urbanization pressure causes other problems for agriculture: subdivisions and lot splits fragment land and owner- ship patterns, making some farm operations less practical; high land costs and taxes increase operating costs; residential development near agricultural areas brings complaints about farm dust, odor, pesticides, and noise, while it increases the problems of vandalism, trespass, dogs and other animals, and air pollution that adversely affect agriculture. [L,-f2O] Retention- of Coastal Agricultural Lands Provides Many Benefit@@. A growing public desire for open space to limit urban sprawl, combined with well publicized food shortages, price rises, and balance of payment considerations, have spurred public interest in preserving agricultural production areas. Projections of future food needs--and the lesser efficiency or impossibility of growing many crops outside the coastal zone-make existing coastal agricultural lands a natural resource of statewide and national concern. Fuel and fertilizer shortages, and the probability that future yield increases will be relatively small and achieved only through energy-demanding techniques, add to the value of naturally fertile coastal lands. Retention of agricultural land, whetherfor specialty crops or less intensive grazing, not only helps provide food but can also guide urban growth, reduce public expenditures for urban service extensions, preserve open space and wildlife habitats, provide beneficial use of land that is hazardous or inappropriate for other types of development, and maintain future land use options, such as conversion of grazing lands to more intensive crops. [L,-f 21] Agriculture Also Has Adverse Effects that Reg1dre Control. Agricultural opera- tions may have such adverse effects as introduction of toxic pesticides and -6o- nutrients leading to eutrophication of watercourses, removal of large areas of native vegetative cover (common in the development of citrus and avocado or- chards), and heavy drafts on surface and groundwater supplies- EL-f18] Additional Preservation Measures for Coastal Agriculture Are Needed. Some agricultural preservation measures are now in effect in California, but new and expanded techniques and increased public awareness are needed to preserve valuable production areas. Local and State efforts to preserve agriculture are hampered by the lack of a.Federal agricultural land policy, although the agricultural lands are a national resource. Existing laws are generally defi- cient in providing for the preservation of valuable agricultural land. This - problem is not unique to the coast, although perhaps more urgent due to high urbanization pressures. Further revision of State and local tax assessment policies, strengthening of the Williamson Act (for instance, by authorizing the coastal agency to designate preserves), revision of State and Federal inheritance taxes, a "land gains" tax on land sale profits, or other techniques to discourage land speculation should be investigated. Development easements, development rights transfers, or purchase-leaseback arrangements (scenic lands could be leased for limited grazing) could offer semi-permanent public protection of agricultural lands. Loan programs (such as long-term low-interest loans for capital improve- ments needed to meet environmental quality regulations) and subsidies may also be necessary to-,i-naintain the economic viability of agricultural operations, as might the mandatory application of protective measures by local jurisdictions (for examplef by requiring local governments to zone prime agricultural lands for exclusive agricultural use). [L-f22] POLICIES 30- '11'reserve Prime Agricultural Lands. All prime agricultural lands (as defined in the Williamson Act, Goverment Code Section 51201) and all lands now being used or appropriate for producing coastal-dependent and coastal-related crops shall be maintained in agricultural use EL-pl2] except (1) where con- version is required for public service facilities such as airports, roads or coastal trails, energy facilities, or mineral extraction after it has been conclusively demonstrated that the proposed facility or activity is nec- essary and is consistent with other Coastal Plan policies, and there is no alternative location that would result in less environmental damage; Efrom I-p2 and new] and (2) small parcels within already urbanized areas, as provided.in Policy 35 . Where permitted, any such facility shall be sited and designed to minimize impact on resource areas. EL-p-U? Regional Amplifications South Central: In this region, many of the prime lands threatened by growing urbanization that shall be protected are: the Oxnard Plain, Ventura, Carpinteria, Goleta, and Oceano. A shift to greenhouse agri- culture and to non-food production should also be considered by the coastal agency. [I-p5RAI San Diego: Because of the unique dependence of floriculture activities on locations along the North San Diego County coastline; because of the community character and visual amenities they provide; and because of their importance in State and national flower and bulb protection, these uses shall be preserved and protected. [Ipl2RA] 31. Maintain Non-Prime Agricultural Lands. Non-prime coastal lands that are now in use for agriculture or grazing, or that are suitable for use as agricul- tural or grazing lands, shall be protected for productive use and their open space values retained. The conversion of such lands shall not be permitted unless (1) it can be clearly demonstrated that continued or renewed agricultural use of the parcel is infeasible because of the location, size, soil type, or other characteristic, or (2) as specifically provided for prime agricultural lands above. [L-pl3 and R-p1bj If the infeasibility is economic in formt before conversion is permitted all types of public subsidy and public acquisition and probable future needs for agricultural production should be examined. This should include the possible recombination of small parcels into larger units where agriculture can be profitably practiced. Such determination of infeasibility for continued or renewed agricultural use shall be made after consultation with local agricultural producers and appropriate professional advisors. The proposed alternate use must be fullyconsistent with other Coastal Plan policies. [L-pl3l Regional Amplifications Central Coast: Because of the special value of all agricultural lands within this region, their limited supply, and their significant contribution to the regional economyt non-prime agricultural lands shall be preserved unless it can be clearly demonstrated that there is no possible alternative location for a conflicting use. [I_p12RA] South Central: Use changes of non-prime agricultural lands, including grazing lands, on coastal terraces and hillsides between Ragged Point and Morro Bay, south of Montana de Oro State Park-i and intermittently -62- through Santa Barbara County to Ventura, such as erosion-prone conversions to avocados or development of energy-related facilities, shall also be given special consideration by the coastal agency. [I-P5RAI 32. Permit Only Agriculturally-Related Development on Agricultural Lands. Except for facilities approved pursuant to Policies 30 or 31, new development on produc- tive and potential agricultural lands shall be limited to construction necessary for farming and timber harvesting such as farm buildings, farm worker accommoda- tions, farm and lumber service facilities, farm and lumber roadspor other uses attendant to an agricultural or timber-harvesting economy. Even those develop- ments, however, shall be located within rural communities unless such a location can be demonstrated to be infeasible, and shall be sited and designed to minimize impact on coastal resource areas- El:-p2] Regional Amplifications North Central: Local jurisdictions should provide for control over agricultural pollutants.- [Lr-P15RAI South Coast: Local jurisdictions may determine the type of agricultural activities permitted (i.e., light agriculture--nurseries, ornamental plants, row crops, etc., vs. heavy agriculture--feeding operations, grazing, etc.). [L-p14RA] 33. Limit Division of Land Within Agricultural Areas. Subdivisions and lotsplits shall not be permitted to reduce agricultural parcels to a size that could be uneconomic or impractical for continued agricultural production. Where divisions of agricultural lands are allowed for agricultural purposes such as long-term leasing of specific parcels, the approval of such divisions should be conditioned on the recording of appropriate restrictions precluding the future division of the parcels and limiting the use of the parcels to agricultural activities. L--P 141 34. Regulate Development and Land Division Near Agricultural Areas. New develop- ment or land division shall be allowed adjacent to existing orpotentially productive agricultural lands only if it can be demonstrated that (1) it will not interfere with -63- continued agricultural use; (2) it is designed to avoid conflict with farming practices (e.g., clustering housing as far away from agricultural spraying areas as possible); and (3) it does not have an adverse economic effect on the long- term preservation of agricultural lands (e.g., adjacent lands are' under agricultural use restrictions). EI-P4 and from L-pl41 35- Specifically Designate Use of Remaining Agricultural Parcels in Highly- Developed Areas. Specific agricultural-urban use designations shall be made on a parcel-by-parcel basis as part of the subregional planning process (see Policy 183) for the numerous small isolated parcels (10 acres or less) of vacant prime agri- cultural land or land usable for coastal-dependent or coastal-related crops that exist within,highly developed areas. (Highly developed areas are those where 80 per cent of the land area within one-half mile of the parcel is developed to a density of at least four residential units per gross acre or developed to 80 per cent of the maximum zoned commercial or industrial uses.) [E-P51 a. Criteria for Designation. The designation of a parcel for either agricultural or urban use should consider at least each of the following: (1) the long-term agricultural production yield potential of the parcel in question; (2) Whether the parcel can be combined with adjacent or nearby agricultural parcels for agricultural purposes; (3) energy, transportation, and water costs com- pared with inland areas where the same crops are grown; (4) potential for generating development pressure on nearby agricultural parcels; (5) the absence or presence (for five years or more) of agricultural-urban use conflicts and the severity of such conflicts; (6) whether the parcel could provide recreational uses; and (7) whether the conversion of the parcel to urban development would further other Coastal Plan policies (e.g., con- centrating development in existing urbanized are as). b. Designated Parcels Should Remain in Agricultural Use. If a parcel is -64- designated for agricultural use, the designation shall be for a time period of not less than 10 years. C. Prevent Conversion Prior to Making Specific Designations. Prior to adoption of subregional plans,.parcels or contiguous areas of prime land that are five acres or more in size and have been in agricultural production for at least two seasons in the past 10 years shall not be converted to development in whole or in part; conversion of other small-parcel agricultural land within a highly developed area shall be allowed only in accordance with Policy 30. [I-P53 Regional Amplification South Coast: Publicly owned lands that are surplus lands not needed for recreation or other public purposes shall be maintained in public ownership .and shall be used for producing specialty crops when feasible and where the land,is neither a natural habitat area nor is suitable, because of size or locationt for public open-space recreational purposes. [L-p14RA] 36. Provide Programs for t he Protection of Agricultural Lands. High priority shall be given.to appropriate regulatory, taxation, and research programs to assist in preserving and maintaining productive agricultural@uses. Those considered should include-,State, regional,.and local land use controls to prevent unwarranted con- versions of land, strengthening of the Williamso n Act, strengthening of subdivi- sion regulations, a land gains taxg inheritance and.income tax changes, development easement or purchase-leaseback techniques.(ideally used prior to urbanization pressures), farm loans or subsidies,. encouragement of multiple use of farmlands, and research in new crop strains, pest control management, agricultural pollution controlt the use of reclaimed 'water in agriculture to'avo'id overdraft of coastal aquifers and possible saltwater intrusion (see also Policy 24), and long-term land management practices designed to avoid soil erosio n or soil degradation. 11-p153 Agricultural pra ctices that, minimize soil loss, such as contour plowing, shall be encouraged; [I-pll] where severe erosion or soil depletion is occurring, governmental agencies should be authorized to require range improvement practices. [L-p15RA] Acting in accordance with Article 28 of the State Constitution, which establishes the importance of agricultural soils for the production of food and fiber and as an economically viable way to retain land in open,space, the State should provide permanent protection of valuable lands through legislative action and should-require the application of such protective methods by local jurisdictions- EL-pl5l (See also Part III. Specific recommendations will be part of the final Coastal Plan.) Forestry FINDINGS Commercial Timberland Is a Valuable Coastal Resource. The commercial timberland of the coastal zone is a valuable natural and economic resource. It must be managed carefully to ensure its maintenance as a renewable economic resource, to retain its valuable wildlife.,fisheries habitatand scenic and recreational poten- tial, and to protect watersheds from erosion and excessive runoff due to the removal of vegetation. EL--f23] The California Forest Practice Act of 1973 has as major objectives the maintenance of commercial timberland to ensure long-term sustained yield, and the protection and enhancement of fish and wildlife habitat, soil and watershed resources, and recreational use of timberland. [L-f241 Improper Management Has Reduced Forest Resources. In the past, unsound forest management practices, conversions of timberland to other uses such as residential development or agriculture, and site dominance by non-commercial.succes@ional species have contributed to the decline in the historical timber inventory in California. [L-f20 Land division activities have produced small uneconomic parcels that force the harvesting of timber when it is not desirable. EIf25-1 Revision of Timber Taxation Methods Is Needed* Current methods of timber tax- ation, which treat most mature standing ti as "property," encourage un- sound forest management on small timber ownershipst resulting in reduced forest yield. Revision of present timberland taxation practices (for example, replacing the property tax with a "yield tax" that would tax the timber as it is removed) is needed to encourage conservation and long-term renewal of this resource. [L-f251 POLICIES 37. Protect Coastal Forest Resources. Forestry resources should be managed as part of comprehensive watershed management, as set forth in Policy 19. In addi- tion, the coastal agency shall regulate timber harvesting and timberland conversions -66- on a case-by-case basis to maximize protection of the public interest while allowing appropriate utilization of this important renewable resource.. The following criteria shall apply to all timber harvesting in the coastal zone: [ipl63 a. Restrict Conversion of Timberlands. Conversions of high-quality,redwood, Douglas fir, or other coastal commercial timberlands (site I, II, or III) to other uses or their division into non-commercial size units shall be prohibited, except for necessary timber*processing-and related facilities (see Policy 32) and for specific uses that may. be permitted as provided in Policy 30 for prime agricultural lands. [L-p16a] Orther coa stal open spaces now in use for forestry shall be protected for productive use and open space value except as provided for non-prime agricultural land conversion (see Policy 31). ER-pl] b. Protect Scenic Qualities of Timberlands4 Coastal timberlands with high scenic value.visible to coastal visitors from public roads, foot and bicycle trails@ coastal rivers@and streams, beachesor parks shall be identified and mapped, and timber harvesting, including road -construction and debris removal, shall be regulated to protect these scenic qualities. [L-p16b] Buffer areas shall be preserved to effectively screen new logging opera- tions from such public viewing points, [A-pl6a] ce Protect Wat@er Quality from Adverse Effects of Logging. Timber harvesting in key watershed areas and along stream banks shall be strictly regulated, with specific "buffer zones" established (with assistance from water quality, wildlifet and fisheries-agencies) where no harvesting of timber will,be allowed. (Key watershed areas? and where possible the depth of required "buffer zones'," will be identified in the final Plan,-) Watershed areas"'that' are vital to th3 water supply' of coastal communities shall be identified, and forest management practices within these areas,shall recognize the local* importance of these water supplies. 47- 38- Restore and Enhance Timber Resources. Programs for rehabilitation and enhance- ment of commercial timber resources should be developed, subject to approval of the coastal agency, with State financial assistanceland implemented according to priorities developed as.part of watershed plans. [L-p16d] 39- Modify Taxation to Encourage Sustained Yield* The coastal agency shall work aggressively to ensure that State laws governing taxation are modified as appro- priate to encourage a sustained yield basis for timber production. [L-P171 (specific recommendations will be a part of the final Coastal Plan.) Soil and Mineral Resources SOILS FINDINGS Soils Are Important to Coastal Resources and to Development Decisions. Soils are a valuable and irreplaceable coastal zone resource that form the basis for all land-based activities, absorbing and storing rainfall that recharges under- ground aquifers, sustaining agriculture and timber production, and supporting natural vegetation, wildlife habitat, and other uses of the land. Soils map inventory the distribution, quality, and limitations of the land. Such maps can aid in land use planning and in review of development proposals by identifying areas of prime soils for agriculture and timber production and areas with poten- tial soil erosion, waste disposal, instability or other problems. Several coastal counties have already completed detailed soils surveys. Data presently available includes Department of Water Resources surveys classifying California lands for suitability for agriculture in terms of slope, soil texturep and other limiting characteristics. Major land use categories, including urban developmentt agriculture, and certain types of recreation, are being mapped periodically to determine changes in land use. Most of the coastal areas have been mapped twice at an interval of about ten years, which demonstrates land use trends. [L-f161 POLICY 40. Protect Coastal Soil Resources. Soil productivity shall be protected and development regulated to prevent soil depletion or degradation. Existing building and grading regulations aimed at minimizing erosion shall be strengthened and strictly enforcedy including review of local ordinances by the coastal agency to ensure that such ordinances are in full conformance with the Coastal Plan. To this. -68- end,.@. m4tural,respurcei irrventQriept @, including, -detailed soil surveys, should -be completed f or the :entire coastal: . zone. and used.to .,.identify -valuable soils;that-, should-be protected when formulating land use plarL.9,:&nd-evaluating.proposed projects. L-pil]: -MINING FINDINGS Several Non-Petroleum Minerals are Extracted in the Coastal Zone. California's coastal zone contains many non-petroleum minerals; sand and gravel are the most important economically. Construction material needs can be largely met by.mining non-coastal mineral deposits, with the ekception of s@ecialty-sand and other unique coastal minerals. Increased demand for non-petroleum minerals is leading to increased interest in offshore mining. Recent developments in offshore mining technology are helping to make offshore mining competitive with land opera- tions. Seawater also holds promise as a source of more salt, magnesium, and- othermineerals. On land, the@geographic sprawl of cities threatens to cover many mineral depositst primarily sand and gravel resources located near urban areas. Also, urban residents often object to nearby mining operations. [L-f141 Sand and Gravel Extraction Involves Environmental Hazards. Mineral extraction, pr1marily of sand and 'gravel, involves many environmental hazards. Open-pit mining removes all vegetationg creates disposal problemst may pollute both air and. surface waterg and deprives wildlife of habitat. Suction. dredging (usiilg vacuum pressure to recover underwater resources) disrupts bottom life, can pollute the water with silt and residual material, and can create dredge-spoil disposal problems. Dragline mining, which scrapes off surface materials with a bucket suspended from an ar Im, either on land or underwater, can cause the environmental damages of either open-pit mining or suction dredging. Sand and gravel.extraction also can reduce spawning grounds.' Mining of coastal sands has noticeably depleted this resource in some locations. Mining Regulations Are Needed. Strict environmental contr ols, such as dredge dis- posal, standardst dust and noise control equipment, and:r@eclamation of pit mines, could alleviate many of the problems, although they would also increase mineral,extrac- tion costs. Some such regulation is-now being done, but it is not uniform through- out the coastal zone. [L-f 151 POLICIES 41, Regulate Mining Activities. Mining shall not be allowed in sensitive areas like estuaries, marshes, lagoons, "living dunes," some streams, and other coastal water areas and landforms that are fragile, valuable natural environments. Mining shall be allowed in other coastal areas only if it can be demonstrated: (1) that the -.69-- minerals cannot feasibly be supplied,from. inland locations; (2)that.tlie mineral extraction will not have a Isubstantial-or long-lasting adverse impact upon coastal zone resturces;-and (3). 'inthe case of sand mining', that the sand supply of the of the particular watershed is sufficient or alternative sand supply provided to allow mining without adverse impact. [L-pgj (See also Policy 17 regarding dredging and spoils disposal, and Policy 21 regarding stream mini@.) In addition: a. Provide Buffer Areas. Buffer areas shall be preserved to screen new on-land extraction operations from coastal roads, trails, water bodiesy beaches,' and recreation areas. [from A-p16a] b. Restore Mined Areas. Aft er completion.of,permitted mining operations, mineral extraction areas shall be reclaimed and replanted in order to ensure slope stability, erosion control,'and adequate drainage and to offer as natural an appearance as possible. [A-pl6c] Where feasible, extractive sites shall be restored for future park or open space utilization. [L-plO] C. Establish Environmental Protection Standards. Noise and dust, surface water pollutioN and waste materials and spoils disposal shall be controlled to m3-n=ze adverse impacts. Uniform statewide regulations should be adopted and enforced to provide appropriate standards for these impacts, as well as for reclamation of extractive sites. Implementing these requirements will require the cooperation of the many local, regional, and statewide agencies that would be involvedg coordinated by an agency such as the State Office of Planning and Research or the coastal agency. [I-piol Regional Amplification San Diego: Mineral extraction operations shall not be permitted to degrade highly scenic or visible areas and shall not permanently alter coastal visual qualities. [A-p16RA1 42. Inventory and Reserve Mineral Deposits. To reduce the pressure to mine sand and gravel and other non-petroleum mineral resources in fragile coastal areas, -70- the locationv'quantity, and@quality of%resource deposits-shotild be inv'entoried statewidei concentrating on potential resources near-urban areas'where.mAterials canbe transported at reasonable cost. Near-city mines and reserves shall be protected-from urban encroachment. [L-p9] Designating appropriate mining sites should be- a part of comprehensive watershed management plansp des!cribed.in Policy . '[new'] AirQuafity--. FINDING& Clean Air,Is.a Coastal.Zone Resource. Clean air is'an identifiable resource contributing to needed economic activities in many coastal localities, such.as cut-flower and specialty crop agricultural areas and recreational locations valued for their clear and healthful air. Clean air portions of the coastal also,provide a needed refuge for people with.,asthma and other illnesses.' Beyond these tangible benefits, the fresh ocean breeze is appreciated by residents and visitors throu'ghout.the coastal zone. [from L-f26] Air (;@dality_Vari_es Throughout the Coastal Zone. Air.quality varies greatly among different portions of California's coastal zone. Pollution sufficiently.severe to damage human health occurs in some locations (generally urbanized areas with. adverse meteorological and topographic c Ionditions) and contrasts with normally clean air in others. Studies made under Environmental Protection Agency auspices are increasingly quantifying the.detrimental effects upon'health of air pollution levels.even,under-existing secondary standards. [L-f261 Air.Pollutants Originate from Mary Sources. Air pollutants originate from many sources. Motor vehicles constitut,e the single largest source of nitrogen oxides, carbon monoxide, and organic gases; industry, including fossil-fuel electric plants, is..the chief source of sulfur dioxide. Suspended particulate matter comes from.miningg agricultural, and lumber operations, as well a s.from motor vehiclesv incineration, the combustion of fuel. All these are.in addition to natural sources such as dust and saltwater particulates. [L-f27] The Distinct-Climate ofthe Coast@Affects Air Pollution. Several distinct, meteorological aspects of the coastal zone aff 'ect air pollution problems. -Tempera- ture inversion layers, which trap pollutants by stopping upward air movement, tend to occur more frequently, at much lower levels, and last longer into the day along much of the California coast, due to high-pressure centers off the Pacific Coast or to land-water tenTperature differentials. Land-sea breezes are caused by the temperature differential between the land surface and the ocean surface, on b,oth a daily and seasonal basis@. These.breezes may.push-p'ollutants'back,and forth without dispersing them throughout a larger area,,,especially. where the topography helps trap pollutants and when winds are relatively weak, as they are in winter. -During the summer season, the fog and low clouds along the coast usually prevent formation-of photochemical smog, but as .winds move the air 1 nland, pollutants _71- produced in the coastal-zone can.contribute to severe smog at inland locations where the pollutants react with sunlight. Sulfur dioxide pollution is more dan- gerous in coastal tog areas, where chemical reactions can produce a weak solution of sulfuric acid, injurious to human, animall and plant h ealth, and damaging to many materials. [L-f28] Air Pollution Threatens Coastal @one'Resources. Air pollution limits specifically set to protect human health are now being exceeded in some locations along the coast, creating riot totally quantified but very real damage and human suffering.- The extent of air pollution damage to wildlife and vegetation resources (including native plants, forestsy landscaping, and agricultural crops) is increasingly being documented. A statewide study estimates crop losses alone from air pollutants in 1970 to be almost $26 million, not including invisible damage. [L-f29] Devel*@ent,Pat@terns May Affect Air Pollution. The location and intensity of air pollution concentrations greatly influence its effect. Studies suggest in- tensive transportation corridors are major sources of concentrated vehicle emis- sions creating a special hazard for humans, wildlife, and plants located nearby. When freeways encourage a net increase in vehicular mileage, they also add to total air basin pollution. Buildings also affect pollution dispersalf generally slowing wind speed over urban areas and modifying wind.patterns within particular building masses. [L-f301 Project Design Can Help to Minimize Air'Pollution. Careful project design can minimize interference with wind currents, especially in local circulation patterns@ and can thus-maintain natural ventilation. Properly located vegetation barriers (11gr---en belts") can substantially reduce particulate air pollution and some types of gaseous pollutantsi especially near ground level, by trapping it on the foilagei Even a 30-foot-wide strip densely planted with trees and shrubs can filter out ' more than a quarter of some types of pollutants. Project designs which minimize automobile use also aid in reducing pollution. [L-f3l] Further Air Quality Regulations Are Needed. Present regulation of air pollution in California is shared among local air pollution control districts? the State? and the Federal goverment, and is coordinated by the State Air Resources Board. Present regulations focus on limiting pollutants emitted from stationary and vehicular sources. There is currently no authority to coordinate land use and transportation systems as a means to control air pollutiong but this is now being proposed by the State Air Resources-Board and the Environmental Protection Agency. Indirect source controls are also being developed. The Environmental Protection Agency is also considering limiting the'extent of allowable degradation of existing air quality in any air basin, rather than setting only upper limits on total pollution levels. In addition to requiring each state to prepare and enforce a plan -to meet the primary national ambient air quality standardst the Federal Clean Air Act also requires each state to prepare and submit by June 1975 an Air Quality Maintenance Plan showihg how air quality standards will be maintained. [I-r-f32] POLICIES 43. New Developments Shall Protect Coastal Air Quality.. Allnew coastal develop- ment (including small-scale development that taken with other projects of the same type would have a cumulative 6ffect upon coastal air quality) shall be de- -72- signed to protect and restore coastal zone air quality to the maximum extent possible. All developments that could have substantial air pollution potential shall be allowed in the coastal-zone only if it can be demonstrated that there will be no significant degradation of air quality and no significant adverse effect upon coastal resources. [L-p18] Specifically: a. Major Pollution Sources. Major pollution-generating developments, including refineries, oil storage and separation facilities, freeway s, new coal or oil-fired electric generating plants,and modernization or expansion of existing plants,shall meet all applicable Federal, State, and local air qualit,y standards and all criteria specified in other Coastal Plan policies. (See also Transportation chapter and Policies 134 regarding electric power plants and 149 regarding refineries.) Such developments shall not be built in areas of the coastal zone designated by the Air Resources Board as critical Pir areas or in areas where coastal resources (such as resort or agric ultural areas) would be adversely affected unless the coastal agency determines there is no alternative inland or coastal location where siting would result in less environmental degradation. Any approved project shall be designed and sited to minimize pollution, including use of best available technology. [L,-p18a] b. Residential and Commercial Development. Additional residential development shall wherever possible be located in areas served by public transit systems. [L-pl8b] (See Policy 166 regardipg limitation on remote, auto- dependent developments.) Alternative transportation modes and reductions in total vehicle miles traveled shall be strongly encouraged in all new and existing developments by r,equiring financial contributions to public transit systems in lieu of parking spaces, through public subsidies of bus systems, by restricting arterial design capacities and on-site parking, or by other appropriate means. ELP18d] (See also Transportation chapter.) -73- C. Project Siting and Design. All new projects in the coastal zone shall be evaluated and appropriate mitigation measures required to reduce pollution problems (e.g., on-site open space, green belts, internal circulation systems, and buildings designed and sited to maintain favorable wind currents). EL-P18e] Regional Amplification South Coast: Because of the critical levels of air pollution already existing in the region's coastal zonep new intense pollution-generating developments shall not be located in the coastal zone. Modernization and expansion of existing pollution sources shall be permitted provided that new emission levels are decreased for individual projects; however, as these sources become obsolete (e.g., due to technological considerations or as they attain their life expectarkray) consideration shall be given to recycling to more coastal-dependent land uses. All new service station developments in this region of the coastal zone shall be required to install devices by which evaporative losses during fueling operations will be minimized. [L-pl8RA] 44. Stress Maintenance and Restoration of Coastal Air Quality. The coastal agency shall work actively with existing agencies now preparing-Air Quality Main- tenance Plans for localities with air quality problems. Similar cooperation shall be exercised in developing air quality carrying-capacity estimates for each clean air region. The coastal agency shall also vigorously support the development and utilization of improved air quality technology for both stationary and mobile sources and development of improved means for assisting and evaluating air pollution technology. [L-p18c] -74- Special Coastal Communities and Neighborhoods FINDINGS Certain Communities and Neighborhoods Are Significant Coastal Resources, Certain communities and neighborhoods have particular cultural, historical, architectural, and aesthetic qualities that are as important to the coastal zone as are its natural resources. These areas are resources either because they have a physical coherence that complements the visual character of the coastal area, or because they provide significant opportunities for access to the coast through pedestrian orientationand through the provision of housing and recreation-oriented commercial facilities for a wide range of economic groups* Special Characteristics of Such Coastal Communities. These resource areas include individual small coastal towns and coastal neighborhoods in larger cities that are characterized by orientation to the .water, usually a small scale of development, pedestrian use, diversity of development and activities, public attraction and use of facilities, distinct architect-Ural character, historical significance, or ethnic or cultural characteristics sufficient to yield a sense of identity and differentiation from nearby areas. Examples include such different coastal communities as the Ocean Beach and La Jolla areas of the City of San Diego and the community of Encinitas in San Diego County; the Naples area of Long Beach and the Venice area of the City of Los Angeles; the Pierpont Beach area of the City of Ventura; Summerland in Santa Barbara County; Morro Bay and Cayucos in San Luis Obispo County; Carmel; the town of Bolinas in Marin County; and the towns of Mendocino in Mendocino County and Ferndale in Humboldt County. Careful Development is 2.egu.Ly@e(k.Lc@_CpaLe@m r@t the Distinctive Qualities of Special Communities. As recreational and tourist attractions and as an in- tegral part of the experience of the coast, distinctive coastal communities are of value to their residents and the public at large. Maintaining the qualities is dependent on maintaining the prevailing scale and mix of deve- lopment. In some areas large-scale condominiums, townhouses, high-rises, shopping centers, and motel developments are replacing architecturally inter- esting and lower-density, smaller-scale uses, destroying special places and neighborhoods, displacing lower-income residents in favor of the more affluent, and increasing the level of traffic congestion in the community for residents and visitors alike* [I-f6l POLICY 45. Protect and En1,1ance Special Coastal Communities and Neighborhoods. The unique cultural, historical, architectural, and aesthetic qualities of special -75- coastal communities and neighborhoods that contribute to the enjoyment of the 01 coast shall be protected and enhanced. Developments that would alter the special qualities of these resource areas shall be regulated to protect and enhance the special qualities of such manmade resources. EI-p1b and Ilp6l a. Identification of Special Communities and Neighborhoods* The special coastal communities and neighborhoods cannot necessarily be quantified or defined with absolute precision, but their distinguishing character- istics can be readily discerned throughout the California coast and can be found in only a limited number of places. These special coastal communities and neighborhoods which contain manmade resource qualities include any of the following: (1) areas characterized by a particular cultural, historical, or architectural heritage and continuity that is distinctive in the coastal zone; (2) areas presently recognized as important visitor destination centers on the coastline; (3) areas whose small-scale and limited automobile traffic provide opportunities for pedestrian and bicycle access for visitors to the coast; (4) residential neighborhoods that contain small-scale commercial areas that both serve and are located within walking distance of coastal recreation areas; (5) areas whose current physical scale is consistent with and complemen- tary to coastal landforms or whose particular physical coherence adds to the visual attractiveness of the coast for residents and for the general public traveling to the coast; (6) areas that provide a diversity of coastal housing opportunitiesq particularly. for low- and moderate- income persons and the elderly; or (7) areas within walking distance of a beach with generally over 20 per cent of all parcels in either hotel- motel or beach-oriented commercial uses. Normally such coastal neigh- borhoods and communities will be within walking distance of the coastline-roughly 1,000 yards;..-but in some cases they may extend further 01 inland. b. Community Participation. As part of' the subregional planning process recommended in Policy 18.3, residents. of a special coastal neighborhood or communityperhaps organized in community advisory committeesp should assist in determining the particular values of their area and how new development can be consistent with them. co Restrict Inappropriate Development. Development out of scale, size, or social character shall not be allowed in designated special communities and neighborhoods. In determining the appropriateness of a proposed development,'consideration should be given to intensity of use (eege, lot size, unit size, residential composition, height, bulk), pedestrian accessibility, open space, economic and social factors, and the cumula- tive impact that potential development would have on an area's resources* [i-p6] d* Coastal-Dependent Uses and Access Facilities Desirable. Considerations of appropriateness ofdevelopment should not preclude coastal-dependent uses Or coastal access and visitor-serving facilities. [I-P61 In areas characterized by coastal villages in rural surroundings, visitor facili- ties should be limited in size and should not necessarily concentrate in any one village or location. [I-p91 .ee Desj&n Guidelines. Where permitted, new or expanded development in such communities and neighborhoods shall be designed to be compatible with the special values and character of the community and should avoid the overcrowding of access roads and local streets. EI-p6] Development shall (1) strengthen the physical form of the community or neighborhood, (2) enhanc-e.and restore visual qualities by being of a bulk, height, and color that'is compatible with the ex isting character [A-P26aJ9 and (3) harmonize with the essential design characteristics that distinguish the place from other communities (e.g., a rustic weathered or whitewashed appearance of the waterfront)v and (4) protect ocean views.from many -77- vantage points, [A-p26b] and (5) provide for maximum pedestrian circulation and shoreline access. Motels in rural coastal villages , for example, should be unpretentious in appearance (stereotyped motel-chain architecture should be prohibited) and should feature some small separate structures rather than large bulky facilities so as to complement the detached homes and small commercial buildings that characterize most such villages. [I-pq1 Regional Amplifications Central Coast: Examples of special coastal neighborhoods and communities in the Central Coast Region include the northern Palisades area of Daly City; Sharp Park west of Highway 1, Rockaway Beach, Pacific Manor, Pedro Point, Shelter Cove neighborhoods of Pacifica; the Lighthouse Point, Beach Hill, and Yacht Harbor neighborhoods of the City of Santa Cruz; the Yacht Harbor neighborhood in Santa Cruz County; the Vill-age and Esplanade area of Capitola; the Moss Landing Harbor area; the coastal area of Marina; the Oak Grove, FishermWs Wharf, and Cannery Row neighborhoods of the City of Monterey; the coastal neighborhoods of Pacific Grove; downtown Carmel; and the Pebble Beach area of Monterey County. [I-p6RA1 South Central: Communities of special character in the South Central Region include but are not limited to: San Simeon, Cambria, Cayucos, Morro Bay, Baywood Park, Avila, Pismo Beach, Oceano, Isla Vistav downtown Santa Barbara south of 101, Montecito, Summerlandj Carpinteria @from Carpinteria Ave. to the beach), the Rincon Beach communities, Pierpont Beach in Ventura, Hollywood and Silverstrand Beaches, and &.<:mrd Beach. [I-p6RA] D,ft&% Historical and Archaeoln"ical "WSOUrces FINDINGS Archaeological Resources. The archaeological sites resulting from the thou- sands of years of human settlement along the coast are among the most fragile non-renewable resources in the coastal zone. Prehistoric California Indians kept no chronicles of their rich and varied cultures that spanned 100 centuries or more. Knowledge of their ancient heritage can be gained only from the detailed study of archaeological remains, tne only source of information for over 95 per cent of California's cultural storye [R-f131 Also valuable are the paleontological resources, the fossilized remains of plants and animals contained in coastal rocks and sediments, Historical Resources. California's rich cultural history is also a valuable heritage, and its traces are irreplaceable. The historical record of the Spanish, Russian, Mexican, and early American eras of California's past can be found in many historical buildings and sites along the coast. Many other buildings may have historical value as significant examples of architectural styles. Protection for Archaeological Resources. Historical, paleontological, and archaeological sites are protected to some extent by existing laws. But pre- historic sites are often destrdyed because their precise locations are not always known and because construction may be carried out without concern for their protection. On the other han d, public knowledge of archaeol *ogical sites often leads to their destruction by vandals when they are not properly prot-ected* ER-f131 Protection for Historical- Resources.' Historic and architecturally valuable structures may be destroyed because of insufficient protective measures but could be appropriately protected if maintained in use under private ownership. [R-f131 -Even those historic areas that are designated or under active consid- eration as National Historic and Natural Landmarks (being sites of national significance) are, due to lack of protective State statute, now subject to adverse development at the pleasure. of the owner. The same problem is appar- ent at sites of State and local significance. For instance, although the San Francisco. Bay Discovery Site above Pacifica is now much more likely to receive sensitive treatment since its designation as a National Historic Landmark, Santa Cruz's McHugh-Bianchi building was recently demolished even though'it too was listed on the National Register. Further analysis will be required to ensure that all areas of national I State, and local significance are considered for listing in the California History Plan as well as the National Register. ER-f13RA1 POLICY 46. Protect Historical and Prehistorical Resources. Representative and unique archaeological, paleontological, and historical features shall be iden- tified and protected from destruction-and abuse. -ER-pllj These sites shall be permanently preserved.throughpublic acquisition or other means and shall be integrated with recreational and 6ther-cultural.facilities where feasible. [R-pllb] To this end: a. Make Systematic Survey of Coast. The State Historic Preservation Officer (in conjunction with qualified,professionals) should draw up a program for the systematic archaeological and paleontological survey,of the coast. The program shall include a system of ranking site importance and level of-protection necessary and shall give highest priority to surveying the following areas:. (1) thoselareas:where substantial infor- mation has been recorded but still require a systematic overview; (2) those areas of high "sensitivity" because suspected resources are endan- gered by proposed development; (3) those sites most likely to yield signi- ficant new information; and (4) those unsurveyed areas located within areas zoned and designated for near-future development. [-R-pila] -79- b. In-Interim.-Rectuire professional Survey of Large Development Sites. Until the State Historic Preservation Officer's survey is completed, large 0+ acres) parcels proposed for development shall be systematically surveyed by a qualified professional* The development of small parcels shall be permitted without professional survey unless the State Historic Preservation Officer has identified the property as having probable archaeological or paleontological value. ER-plld] ce After Surve-y. Require Protective Measures at Resource Sites. Where development would adversely affect identified archaeological or paleon- tological resources, adequate mitigation measures (e.g., preserving the resources intact underground, fencing the resource area, or having the resources professionally excavated) shall be required. [R-plld] d. Strengthen Laws Protecting Pre-Zi.storical Resources. Existing laws per- taining to protection of archaeological and paleontological resources should be amended to ensure effective preservation, protection, and management of significant resources. In addition, new legislation should be enacted to declare that significant archaeological and paleontological resources are in the public domain. The State Legislature, or an appro- priate State agency designated by the Legislature, should: (1) formulate criteria for determining which resources are "significant" and therefore within the scope of the law; and (2) develop a program for the protection and,where appropriate, professional excavation and study of the resources, State funding should be provided to implement these programs. ER-pliel ee Provide Tax Relief for Owners of Historic Places, Pursuant to Article XXVIII of the State Constitution, State legislation should be enacted whereby cities and counties can contract with owners to preserve historic buildings and features in return for reduced tax assessments. Sites of -80- national, State, and local historical importance shall be nominated to the National Register, and if designated for public acquisition should receive interim property tax relief and development protection. [R-plic] (His- toric areas of high scenic value ar,e covered by Policy 48; see also Policy 88 regarding inclusion of appropriate sites in a coastal reserve system.) -81- AppeaTance and 083,UOR FINDINGS The Coast is a Visual Resource. For the most part, the California coast-line is an outstanding visual resource of great variety, grandeurt-contrast, and beauty, that can be enjoyed by all the people of the State. Visual attractions such as the dramatic meeting of land and water, clear skies, unspoiled natural areas filled with wildlifet and the rich texture of urban shorelines add to the quality of life for coastal residents, visitors, and workers, and contribute to the'economic success of'the tourist industry by attracting many vacationers to the coastline. [A-fl] Complexity of Analyzing Coastal Visual Resources. The systematic analysis and management-of coastal visual resources are complex and difficult because of.the great variety of natural conditions and the wide spectrum of the degree of development along the coast. At the broadest level the following nine types of landforms (1 through 9) and three patterns of development (10 through 12) have been found to encompass most conditions along the coast; therefore, these are reasonable categories for statewide appearance and design policies and lend themselves to greater specificity based on detailed inventories of existing conditions and problems: (1)'-Beaches that may be narrow to broad sand, shinglei cobble, or rock with a a wide degree of vegetation'ranging from none to thick grasses,-including the Silver Strand, Ten Mile Beac4 and Stinson Beach. (2) Sand dunes that vary greatly in height and in the degree-of vegetation they support, including Murray Dunes, Monterey Bay dunes, and Salmon Creek Beach. (3) Coastal bluffs that are the angular, irregular coastal edges of marine terraces rising at least ten feet above sea level, including Point St. George, Santa Cruz North Coast, and Goleta Point., (4 Headlands that U'usually fall steeply into the sea along a jagged angular, irregular shoreline, including Big Sur, Cape Vizcaino, and the Golden Gate Headlands.' 5) Estuaries that encompass bays, lagoons, inlets, and their surrounding wetlands, including Bolinas Lagoon" San-Dieguito, and Pescadero Lagoon. (6) Islands ranging from large roc ks t o the exp ansiv e Channel Islands incl uding .Indian Island,- Farallon Islands, and. Santa Catalina, Island'. (7) Upland terraces and plains that are generally broad, flat coastal lands stretching inland from the sea to the coastal mountains, including much of the Mendocino Coast,lSan"Mateo-coastlin'et-and'the Irvine'Propert.ies., (8) Canyons and hillsides that are usually s teep a nd rugged and includ e rare veg6tation@- sffall@[email protected]' abundant@@wildlifev@ and: out standing v isual' features, including Bixby Canyon, Los Trancos Canyong'and San'Clemen'te.. .-83- (9) Rivers and streams that are the upland portion of estuaries that are connected to the sea and that are often meandering, broad open areas shaped by the paralleling hills, including the Smith River, Tia Juana, and Russian River. (10) Village waterfronts where residents live and work in the community with little, if anyt reliance on commuting to other areas because a full range of community services and facilities are present. A small-scale of develop- ment and an atmosphere of close relation to the sea is often present because of an agricultural or fishing economy. Coastal villages include Morro .Bay, Mendocino I Laguna Beach, and La Jolla. (Village waterfronts, for the most part, are classified as special coastal neighborhoods and communities; see Mamade Resources chapter for further findings and policies.) (11) Suburban waterfronts that are within commuting distance of major employment centers, predominantly residential with some supporting commercial and service facilities, and that have often grown around older coastal villages. They are the transition area between urban and rural areas and often contain remaining-undeveloped areas including some agricultural lands and'scenic open spaces. Coastal suburbs include Huntington Beacht Pacifica, and Belmont Shores. (12) Urban waterfronts that are developed with a full range of residential, com- mercial, industrial, and other uses--often with such intensity that the shoreline is obscured by development. Coastal urban areas include San Diego, Long Beach, Los Angeles, and San Francisco. [A-f2] Deterioration of the Appearance of the Coast. In some areas, manmade changes have provided new access to the coast and new opportunities to enjoy the coastq while respecting the special visual quality of the coastal environment. But in other areas, the coastline has been degraded by new developments and other alterations that do not harmonize with the scenic qualities of natural areas or do not respect the unique visual resources found in developed coastal areas. In its most general terms, this deterioration is due to various aspects of urbanization that could have been better designed to minimize their negative effects. These issues include: (1) Scale, height, materials,and colors of buildings and structures that,.when inappropriate to the landform and existing patterns and scales of development, can degrade the appearance of both communities and natural areas.. (2) Community boundaries that are often ignorec4 creating visually displeasing "sprawl" development. (See Policy 164.) (3) Signs that can block views, create visual clutter, and deteriorate the appearance of otherwise attractive communities. (4) Al teration of natural landforms by cutting? grading, filling, or vegetation removal that can cause visual scars, result in unsightly erosion, and destroy scenic areas. (5) Landscaping that is often lacking in new development,creating the appearance of harsh structures imposed on the coastline. (6). Views that when blocked destroy the most important visual quality that iden- tifies coastal areas. (7) Utility and c6mmunications facilities,that can cause visual blight when over- head lines towers and poles intrude into scenic areas or clutter views of the coast,in developed communities. (8) Public service facilities such as power plants,. sewage treatment facilities, solid waste disposal facilities, water storage tanks, pumping stations, and power and communication substations that can be major visual intrusions in the coastal environment because of their size and appearance. (9) Transportation and parking facilities that can result in cutting and filling of the natural landscape and the well known "sea of asphalt" in urban areas. (See Transportation chapter policies on roads and parking lots (10) Industrial and commercial uses that can have a major visual impact because of their size. 11) Mineral extraction and timber harvesting that are generally considered to be unattractive activities that should be screened from public view. (See Policies 37 and 41. ) [A-f3] The Need for DesignEvaluation. The Coastal Zone Conservation-Act of 1972 states that one objective of the Coastal Plan is "the maintenance, restoration, and enhancement of the overall quality of the coastal zone environment, including, but not limited to its amenities and aesthetic values (Public Resources Code Section 27302(a)). In order to achieve this objective it would be ideal if highly specific design criteria could be established for all new development along the coast. But because of the great variety in the existing character of the coastline because of the dynamic changes taking place in social values and building technology, and because different people have different concepts of "beauty necessitating intensive involvement of community-residents in determining the desired visual qualities that should exist in the hundreds of communities along the coast highly specific criteria cannot be established for the entire coast at this time. Until design plans specific criteria, and enforcing-regulations can be formulated by coastal communities and the coastal .agency, the application of general design guidelines, refined to as much speci- ficity as possibleby regional and local amplification, through a design,review process, appears to be the best method for guiding development to preserve or restore the attractive appearance of the,coast[A-f4] (For findings and policies relating to restoration of visually degraded areas, see Restoration of Coastal Resources chapter.) Protecting- CoaStal Visual, Resources..., POLICIES 47. Evaluate Development to Protect Coastal Viewshed. The entire California "coastal viewshed" shall be considered a public resource. Within this area the designs for all development proposals shall be evaluated so that the viewshen quality can be preserved where existing natural or manmade areas are scenic, -85- enhanced by the addition of attractiv6 imprpvementsp [email protected] the removal of undesirable visual elements. (See R6storatio n of Coastal Resources chapter for restoration policies.) The viewshed shall be defined to include all land and water areas that can be seen.from the sea, from the water's edge, from principal coastal access roads, trailsq and railroadsp. from major lateral transportation corridors leading to the coastt as well as other areas specified by the coastal agency as being of statewide importance based on subsequent view- shed studies, [A-pl] Regional Amplification South Central: In the South Central Region t he coastal viewshed would include the large expanses of undeveloped land immediately adjacent to the coast through which no present public access exists. In these cases the coastal viewshed shall be from the coast to the crest of the nearest mountain ridge. EA-p1RA] 48. DeveloDW-ent to Be Compatible with Highly Scenic Areas. New development shall be compatible with scenic areas and shall not be permitted to degrade natural, historicalt or open areas of high scenic value. Programs to protect these areas shall include development controls that require all future development to be visually compatible with the existing scenic values, public acquisition of some areast and other techniques recommended in Part III, Carrying Out the Coastal Plan. Natural, historical, or open areas of high scenic value shall include (1) landscape preservation projects designated by the State Depart- ment of-Park .s and Recreation in the Cal:itornia'Coastline'-Pres'ervation and Recreation Plan [A-p2a]; (2)historical sites identified by the State Department of''Parks and Recreation in the California History Plan and the second-phase Inventory of Cultural Resources [A-2pb]; (3) open areas identified and mapped in the Coastal Plan as being of particular value in providing visual relief from urbanization, in preserving natural landforms and significant vegetationt in providing attrac- tive transitions between natural and urbanized areast in carrying out the --86- policies of,the Coastal Plan, or as scenic open space. (Ad@Utional:areas may beldesignated in the final Coastal Plan.) [A-p2c]. Regional Amplification Central Coast: Additional areas of high scenic value include areas of fragile' open space values identified in local and regional plans, and in the Intensity of Development Element.,_as important visualltr.ans.i- t1on areas,-urban, industrial, or agricultural buffer zones, particularly: Pacifica hillsides and ridges, Montara Mountain, midcoast agricultural lands, Santa Cruz Mountains, Rancho San Andreas agricultural lands, Santa Lucia Mountainsl,,Moss.Landing wetlands and,agricultural lands, and the Monterey Bay dunes. Scenic areas also include critical ocean view areas, including.the,entire area seaward of the public roadnearest the coast where offshore rocks or surf are visible from the traveled way'or turn- out; and generally all lands lying between.the Highway and the ocean where the average right-of-way to mean high water is 100 yards or less. Also included are 11 scenic routes in the Region and areas of outstanding scenic quality identified by the Highway 1 Viewshed Study (in progress), and.outstanding landmarks, natural areas, historic areas, and prominent landforms not publicly owned specifically for scenic'preservation, as identif ied in, the Plan, Maps in Part IV. [A-,-.p2RA] 49. Require Localities to Have Design Elements. The Legislature should require 10 and fund cities and counties along the coast to develop and implement Design Elements in their general plans. These Elements shall be required to include: appropriate guidelines, criteria, and standards that are consistent with the appearance and design policies of the Coastal Plan; a sign ordinance to apply the standards set forth in Policy 58; and definitive design criteria for improving the appearance of the shoreline based on detailed studies of urban waterfronts carried out by local municipalities. [A-P4 and A-p28aj Areawide design guidelines should be formulated as part of Design Elements so that development proposals can be coordinated in order to maximize open space preservation; to protect view corridors, natural vegetation, landforms, and other features; to effectively link open space systems with paths and bikeways; to reduce the need for duplicating circulation systems; and to minimize the appearance of visually intrusive structures. [A-p29b] Transportationg land use, utility, and recrea- tional.planning should be coordinated with, be'sig-n- Elements. [A--'-p-`2'9-aQ -87- 50- Establish a Design Review Process. 'Until coastal cities and counties have prepared and implemented Design Elements that carry out the Coastal PJan policies to the satisfaction of the coastal agency, all public and private development within the coastal viewshed shall be subject to design review. [A-P4] This review shall ensure that development is consistent with the de- sign guidelines contained in Policies 53 to 61 and with the special policies for each individual Region. [A-P51 a. Consider Cumulative Design Impact. The coastal agency shall consider the cumulative design impact of proposed development in evaluating permit applications while the city and.county Design Elements are being prepared. [A-p29a] b. Require Coordinated Design Plans. 'Where development is proceeding rapidly in small neighborhood areas or on adjoining or nearby properties in un- developed areas, the area shall be considered as a single unit? and the developers shall be re quired to jointly prepare an overall design plan to coordinate open space, internal circulation, design themes, view protection, and other visual elements and to meet the requirements of the design guidelines and other Coastal Plan policies. [A-p29c] C. Developer to Prepare Are a Plan for Intense Development. Large-scale new development in rural areas and urban development that would be of.a substantially greater density than the surrounding area shall be in accordance with an area plan,-prepared at the developer's expense, that specifies the general location of uses by height, bulk, and density, and that indicates the location or methods for preserving open space, ocean breezes, views, and public access. The impact of any proposed major structures on views, shadows, glare, and wind patterns shall be evaluated as part of the area planning. [A-p6] d. Large, Intensive Subdivisions and Developments Must Have Detailed Desig Plans. Subdiv ision and development of waterfront area properties larger --88- than 3 acres, or development proposals@of more than 15.dwelling units -per acre in suburban.areas (20 per acre in urban areas), shall not be permitted unless consistent with a detailed design plant prepared at the.developer's expense, that demonstrates that the development-.Will Comply with the appearanceland design guidelines and policies of the Coastal Plan. [A-p27b] e. Design_Review Process.. To evaluate visual aspectsof development pro'- posals and toadvise the coastal agency,on both design issues and the application of other Coastal Plan policies through design techniquest (1) a design professional-shall be on the staff of the.agency; (2)-design review boards should be established in coastal municipalities;, and (3) regional design review boards shall be established by the coastal agency to evaluate developEnent proposals that are of regional signifi..; cance or that are in areas not served by local design review boards. Design review boards shall consist of coastal zone residents who have displayed an understanding and appreciation of the history, aesthetics, and goals of coastal communities, and design professionals (e.g., archi- tects, landscape architectsp urban designers, planners, engineers, artists, sculptors, etc.). [A-P41 Regional Amplifications Centra'1 Coast: A regional design advisory committee (RDAC) shall be es- tablished, composed of at least two independent design professionals, one coastalagency staff member, one regional government staff member, one resident of the coastal subarea of each county in the region, and one mem- ber of the public from outside the coastal zone. [A-p4RA] South Coast: Until a precise and comprehensive skyline study is under- taken to plan and determine the location of nodes of coastal development, the Design Review Board.may require photo-montages, models or other devices to aid in the consideration of proposed medium or high rise buildings. Consideration shall include the impact of high rise buildings on views, shadow, glare, traffic and parking, wind patterns, and microclimates. Other appearance and design qualities shall be clearly understood prior to decision-making concerning their construction. EA-p4RAI Within the boundaries of any community,-coordinated design of the ele- ments of the public areas such as street furniture, street lighting, store fronts, landscaping, beach concession stands, restrooms, life guard posts, etc., shall be created, subject to local Design Review Board approval. 01 51. Establish Design Awards and Competitions. The coastal agency shall en- .courage excellence in thedesign of public and private structures and, in -cooperation with organizations of the design profession and design schools, shall (1) present design awards to development that effectively relates to -its coastal location through a sensitive use of form, color, material, texture, and layout, and to community beautification projects that restore and enhance the.vi.sual assets of the coast, and .(2) initiate design competitions for such items as street furniture, retaining walls, beach stairs, and prototypical structures, and distribute the winning designs to coastal communities for use in building project.s. [A-P311 52. Reduce Litter in Coastal Areas. All public recreational areas, scenic road turnouts, and other such areas shall contain adequate, well-designed litter containers. Maintenance (emptying) of these containers, raking of beaches, and anti-litter patrols along highways and in wilderness areas should receive high priority in state budgeting and local cleanup campaigns. [A-P5RA] To greatly reduce litter along the coastal roads, in waterfront recreational areas, and in shoreline communities, the State Legislature should enact laws to prohibit the sale in California of non-returnable glass bottles, aluminum and metal.pop-top cans, and non-biodegradable plastic packaging, if current studies by the Legislative Analyst conclude such legislation would be economically feasible and effective. EA-P32] _90- "Design Guidelines'46r the Codstal" &ne DESIGN GUIDELMES IN OPEN SPACE AND LANDFORM AREAS POLICY 53, Integrate Development with Natural 'Environment. The scenic value of natural 1andforms shall be preserved, enhanced,,and restored. Development shall be integrated with and visually subordinate to existing natural features and terrain. Structures shall be located to minimize their intrusion into scenic open spaces by being cluster6d near other existing natural and manmade vertical features (such as tree massest hills, rock outcrops, and existing structures).. To ensure that structures are integrated into the natural environment, the following guidelines for development on specific landforms shall apply except where it would make an existing parcel unusable and where public acquisition of such a parcel is not appropriate (see Policy 65). [from A-p6a and A-P17-251 a. Design Guideline: Beaches. No' structures shall be permitted on the open beach itself except facilities necessary for public health and safety (e.g., beach erosion control structures and life guard towers) or structures found to be necessary for public welfare. All other structures or other improvements shall be located inland from the open beach. [A-P171 b. Design Guideline: Sand Dune s. The scenic and natural values of sand dunes shall be protected, enhance(:4 and restored. No development shall be allowed that would hamper natural dune movement. [A-p18d] New developments shall contain provisions to preserve, restore, and.protect at least as much dune area as is used for development. [A-p18c] 'Where development currently exists or dunes are in a degraded state, high priority shall be given to restoration projects. [A-pl8b] Structures within dune areas -91- that would intrude above the ridgeline of dunes, or damage dune-stabilizing vegetation, shall not be permitted. [A-pl8a] Pedestrian and vehicular Oi traffic in fragile sand dune areas shall be minimized. [A-7p18e] Design Guideline: Coastal Bluffs. Development on bluffs shall be con- trolled to minimize their degradation. No structures shall be permitted to be built on a bluff face except for access stairways (which shall be for public uset minimized in number, and convenientl y located) and erosion control structures, such as seawalls, in accordance with Policy 18. [A-pl9a] 'Approved structures shall be constructed of materials that reproduce natural colors and textures as closely as possible. [A-pl9c] Drainpipes shall be minimized by collecting runoff and directing it landward, where possible, and shall be unobtrusive in appearance. EA-Pl9d] No dumping shall be permitted over coastal bluffs except where necessary for erosion control measures specifically authorized by the coastal agency and consistent with other Coastal Plan policies. [A-pl9e] Blufftop development shall be set back from the bluff edge sufficiently far to ensure that the development cannot be seen from the shoreline (mean high water) except in highly urbanized areas where adjoining development is nearer the bluff edget or in special cases where a facility that would be used by substantial segments of the public has been justified in an approved urban design plan for the area. [A-pl9b] (See also Policy 177 regarding development in bluff hazard areas.) d. De sign Guideline: 'Wetlands and Estuaries. The visual appearance of estuaries and their surrounding beaches and wetlands shall remain intact. EA-p2la] Public access provisions shall be designed to respect the visual and ecological fragility of estuaries and their adjacent land areas. [k-p2lb] Coastal roads shall be located on the inland side of the estuaries. [A-p2lc] (See also Marine Environment section on Coastal Waters, Estuariesy and Wet- lands.) 01 -92- e. Design Guideline: Islands. :Development on islands, except for liht- 9 houses and ancillary facilities necessary for.public safety., shall blend with the natural visual form of islands and shall not extend above the natural silhouette of the island. [A-p22] f. Design Guideline: Headlands, Hillsides._,.and Canyons. Private roads on headlands shall be visually screened, and driveways connecting to the coastal highway minimized. .[A-p2Db] The transitions between headlands and related stream cany .ons shall be left in a natural state with bridges over.canyons located as far inland as.physically feasible and environmentally acceptable. A-p20c] Gra ding, cutting, and fil ling in canyons and arroyos and on hillsides shall be in accordance with Policy .57. [A- p24a] and bridges and roads across,canyons shall be minimized, combined, and located at the narrowest crossing points. [A-p24b] Development on can-, yon edge's-and hilltops shall not be visible from the canyon or valley floors. [A-p24c] Coastal canyons with recreational and natural study value shall not be used for sanitary land fill where alternatives are available. [I-pil g. Design Guideline: Upland Terraces and Plains. Structures shall not be located in open grassland areas where'they would be highly visible [A-p23a] and development on upland hilltops and ridges shall not be visible from the terraces or plains below. [A-p23c] h. Design Guideline: Rivers and Streams. Development shall be set back from the edge of rivers, streamsi and other natural waterways to protect riparian vegetationg.minimize erosion, and preserve the visual contours of the waterway. [A-p25.a] Channelization projects, where . specifically authorized and consistent with other Coastal Plan policies, shall include landscaping, public trail.s,'and,linear parks to mitigate the visual damage resulting from,the channelization and-to maintain, enhdncei.or*restore recreational opportunities. [A-p25b] -93- Regional Amplifications BEACHES South Coast: No construction (with the exception of movable lifeguard stations, public piers, beach erosion control devices, and other facilities necessary to public health and safety) shall be permitted on any sand . I beach within 200 feet landward of the mean high tide line, when the sand areas exceeds 200 feet deep. When the sand area is less than 200 feet deep, permanent structures shall be"limited to those which are' neces- ' I sary to public health, safety, and convenience, and shall be erected.as far inland from the mean high tide line as is feasible. EA-P17RAI COASTAL BLUFFS Central Coast: Any structure below bluffs shall be limited to a maximum 20 per cent of bluff height. [A,-p19RA] South Central: Houses built in existing subdivisions will be'required to provide views of the blue water from the street. This may be achieved by side setbacks, by not planting tall tree species, and not building fences over four feet high. Stairways over bluffs: Only wooden stair- ways may be constructed without a full engineering study. No stairway may be built over a bluff more than 25 feet tall without engineering and geological justification that it will be safe and not increase erosion. No stairway may be built over the face of a bluff over 25 feet tall with- out allowing public access over from the beach to the nearest public way. Any stairway to be built on a bluff must be approved on the basis of aesthetics-that its particular design not overwhelm the face of the bluff and that it does not come so close to another stairway that it adds clutter to the environment. A proliferation of stairways should be avoided with one stairway being used by many owners. No bluff may be cut, faced, paved, or walled to allow a stairway to be built except for necessary footings. Enew RA] The visual impact of any permitted bluff protection structure shall be mini- mized in the following ways: (1) no structure may be more than eight feet in heightwithout proof from a qualified engineer or geologist that a larger structure is needed; (2) walls shall not be of rubble, sandbags,. or unfinished concrete; (3) walls shall be of natural materials, or of colors and texture that are consistent with the colors found in the rocks and sand at the site; (4) no retaining wall or seawall shall extend more than 100 feet in length without a change in direction and/or wall texture; and (5) any wall over eight feet tall or 100 feet in length shall be approved by a qualified landscape architect. [new.RA] South Coast: No development, except that of access, public safety or of a recreational nature, as safety permits, shall be permitted within 25 feet of the rim of a cliff or bluff, or 50 feet from the toe of the cliff or bluff. [A-p19RA] San Diego: No building or major structure shall be placed or erected closer than 25 feet from any point of the top edge of the bluf f except landscaping, improvements required by the Commission as part of the public access, minor developments such as fences, decks, patios, stairways. -94- EA-p19RA1 New structures shall be so located as to preclude the ne'ces- sity of constructing protective seawalls or.retaining walls. [A-p6RAI Those coastal bluff areas that are already substantially committed to' terraced homes down the face of the bluff such as Pacific.Street between Wisconsin and the Buena Vista Lagoon in Oceanside and Ocean Street in Carlsbad are exempbfrom the 25-foot setback requirement. To provide for vista corridors and on-site recreational opportunities, generally for larger projectso 50 per cent of the net usable portions of the project site should be landscaped open space. Landscaped open space is defined as those contiguous ground areas covered by natural vegetation. The net usable portion of the site does not include land lying seaward of the top edge of the bluff, portions of the site subject,to an easement for street or highway use, or adjacent street ends even though they are improved to qualify as part of the applicant's vista corridor. Every developer of a major bluff top development (e.g.lthose developments of more than two dwelling units and sited on land parcels with more than 50 feet of ocean frontage) should design and maintain a vista corridor through his development. One formula which would provide for the sug- gested vista corridor would be as follows: Vista Corridor = .33 lot width + .05 (lot depth - 1001) Where depth 1001. (100! =,per cent of lot width to be added to the 33 per cent constant for vista corridor calculation. The maximum vista corridor required is 50 per cent and the minimum is 33 per cent. The height of the structures on the project site should be dependen t on the width of the adjacent vista corridor and shouldnot exceed the width of the adjacent vista cooridor or thirty-five feet whichever is the lesser. A maximum of three levels above the natural or existing grade shall be permitted. Height shall be determined from the natural or existing grade prior to any cutting or filling on the site.. On project sites of 50 feet or less in width, developments may have a maximum height not to ex- ceed two stories providing such structures are architecturally propor- tional to the site. Property abutting a street end that meets the top edge of the coastal bluff may include one half-the width of the street end as-part of the .vista corridor so long,as the.applicant improves and maintains the street end in accordance with the directions of the'Commission. Only those portions of the project'site that are free of visual ohstruc-- tions shall be counted as part of the vista.corridor. Any.object-ex-, ceeding two feet in height obove finished grade is an- ob struction except: (1) fences with an open area to obstructed area ratio of 6:1,,,(2) trees which at maturity willnot obstruct vision'from finished grade to ap- proximately,eight feet, ab.ove.finished.grade. EA-p19RA1 WETLANDS AND ESTUARIES San Ibiego: Uses of t .he uplands surroundIing wetlc-dids"shall.be permitted only if they..are designed so as to prot.ect.the aesthetic,int,egrity,.of the wetlands and-their visibl6'surroundifig.' Em-pqal -95- HEADLANDS, HILLSIDES9 AND CANYONS South Coast: Appearance and form of coastal zone hillsides in the Region shall be treated as an amenity resource. Design consideration shall in- clude views of hillsides as well as public access to views from hillsides. All permits for grading on hillsides in the permit area shall include the requirement that all possible land shall be restored to its natural form, and that the transition zone between natural and disturbed areas shall be designed to blend with the natural form. Ground cover and other appro- priate landscaping shall be restored on the land disturbed by grading. In areas S1 and S2 development of hillsides of 35 per cent slope or greater steepness shall not be permitted. Development of hillsides of between 15 per cent and 35 per cent slope shall only be permitted very low density (maximum 1 dwelling unit per 4 acres, gross density). Such development will be subject to review for overall preservation of the natural open and rural character of the entire hillside. Variances to these standards may be granted if it can be established that the hillside can be developed in a manner that will result in less visual disruption than would occur under the standard criteria. [A-p24RA] UPLAND TERRA.CES AND PLAINS North Coast: No new structures should be permitted on the shelf when it can be seen from bridges that afford views of the ocean, river mouths and shelves. [A-P5RAI DEVELOPMENT AND COASTAL VIE WS POLICY 54. Prevent Development from Blocking Coastal Views. Development (including buildings, fences, paved areas, signs, and landscaping) shall not be allowed to significantly block views of the coast from the coastal road, inland parks, and other public areas, or diminish the visual quality of the coast by intruding into scenic areas. [A-pll] In addition: a, Views from Key Public Viewing_Points. New development shall not be per- mitted to block scenic views of the coastline and shoreline areas from key public viewing points such as roads that terminate at the coast, roadside turnoffs,recreation areas, and beaches. [A-plla] b. Views of Natural Features from Roads. In all major new development, views of attractive natural features (such as dunes, the surf, coastal bluffs, -96- outcroppings, and estuaries) from the near6st.pub;ic road shall.be protected and public vista areas shall be provided. [A-plld] C. Limit Structures in Shoreline Area. Tall structures that would destroy the existing scenic quality of low-rise urban areas as seen from inland viewing points or block views of the coast shall not be permitted along the immediate shoreline. [A-pllb] d. Limit Seaward Extent of Oceanfront Development. In developed areas,so that existing views are not blocked, new oceanfront development shall not extend farther seaward than the adjacent structures unless (1) this would make an existing parcel unusable and where public acquisition of such a parcel is not appropriate (see Policy 65), and (2) such develop- ment is in accordance with other policies of the Coastal Plan. [A-pllc] Regional Amplifications Central Coast: Additional public access to scenic views shall be consid- .ered a public benefit when included in projects under review (provided that environmental degradation does not result from access). EA-p29RA] South Coast: No new structure shall substantially increase the distance between views of the ocean and shoreline nor eliminate such views where they currently exist. Tall buildings may be required to provide public access to an appropriate vantage point in an upper level, roof, plaza, or suite for viewing, or be,required to maintain ground level view access beside or through their ground level structures. The appropriate view access shall be determined by the coastal agency. [A-p11RA] San Diego:, Development shall not be allowed to infringe unnecessarily on those views which are considered by the San Diego Coast Regional Commis- sion or any implementing agency to be of regional significance, or those high quality views identified on CPO's Coastal Vistas map. In most areas,* multistory development shall be located back away from the oceanfront far enough to maintain the existing scale and open feeling characteristic of the coast. [A-p11RA] -97- GENERAL DESIGN STANDARDS POLICIES 0 55. Design Guideline: Scale, Height, Materials, and Colors. All new develop- ment shall either be compatible with the character of the surrounding attractive area or shall enhance the quality of areas that have been degraded by existing development. [A-p6] Materials and colors used in building construction should be selected on the basis of their compatibility both with the structural system of the building and with the appearance of the building's natural and marnade surroundings, rather than to use pre-set architectural styles (e.g., pseudo-Spanish mission and standard fast-food restaurant designs). [A-p6c] Regional Amplifications North Coast: If higher intensities are desired, plans should show an increase in the amount of open space currently found in existing develop- ments. If larger scale developments are desired, adequate buffers between the new developments and existing developments must be provided. In urban areas, new developments should be in keeping with existing skylines. Different building heights are desirable when they break monotony and do not block views. [A-p6RAI Central Coast: When private housing and other uses are permitted in rural areas, the major design determinant is the open space resource; landforms, vegetative masses, and available public views should strictly determine the location, scale, bulk, and height of the structures., [A-p6RA1 56. Design Guideline: Landscaping. Plant materials shall be used to integrate the manmade and natural environments, to screen or soften the visual impact of new developments,and to provide diversity in developed areas. In new develop- ment, existing attractive vegetation shall be protected and plants common to the particular coastal region shall be used as the predominant additional land- scaping material to reduce the need for irrigation systems and extensive mainte- nance programs. [A-p1C] Regional Amplification San Diego: Groundcover planting shall be required when and where erosion 01 control is necessary to stabilize soils. EA-plORA] _98- SPECIAL DESIGN GUIDELINES POLICIES 57. Minimize Alteration of Natural Landforms. The visual destruction of natural landforms caused by cutting, filling, grading, or vegetation removal shall be minimized. A-pq ] Specifically: a. No Si nificant Alteration Allowed. Development or its support facilities (such as road and utility expansions) shall not be permitted if they would require grading, cutting, or filling that would significantly alter the appearance of natural landforms. EA-p@a] b. Restore Natural Contours. After any permitted temporary alteration of natural landforms during construction, timber harvesting, or mineral extraction, the topography shall be restored to as close to the natural contours as possible, and the area shall be planted with attractive vegetation common to the particular coastal region. [A-p9c] C.- Minimize Alterations for Permitted Developments. In permitted development, landform alteration for building sitest access roads, and public utilities shall be minimized by (1) concentrating development onlevel areas so that hillsides can be left undisturbed, (2) waiving minimum street width requirements and using one-way circulation systems so that necessary hillside roads can be as narrow as possible, and (3) running hillside roads along natural topographic"contours. [A-p9b] 58. Restrict Visual Degradation from,Signs. Signs and billboards shall not be allowed to block co astal views,.cause visual clutter that conflicts with the-ordered design of coastal communities, or detractfrom the natural beauty of the coast'. Gities and counties, as part of.their Design Elements, should be mandated to develop sign ordinances for the pur pose of applying the following standards. Until these ordinances have been enactedthe standards shall be -99- applied by the coastal agency to specific coastal areas that can be seen from principal coastal access roads, trailsy railroads, and major lateral trans- portation corridors leading to the coast. [A-p8] a. Ban Off-Premise Commercial Signs. New off-premise commercial signs (tho se that do not advertise (1) a use being made of the premises, (2) the name of the owner or use, or (3) a productt service, or entertainment avail- able on the premise) shall not be permitted. [A-p8a] After the periods of time specified in the following amortization schedule, existing off- premise signs shall be removed, [A-p8b] Permit value of sign Period,for removal $10 or less immediately $10.01 to $100 1year $100-01 to $500 2 years $500-01 to $750 3years $750-01 to $1,000 4 years $1,000.01 to $2t5OO 5years $2,500-01 to $5@000 6years over $5#000 8 years [source of schedule, City of Palm Springs sign ordinance, 1967] b. Alternatives to Commercial Signs and Billboards. In place of off-premise commercial signs, coastal communities should provide alternative means for informing the public about commercial services and products avail- able in the communities. These alternatives could include low-power radio broadcasts or local radio station programs and spots designed for travelers, and kiosks or other well-designed, integrated displays at roadside turnouts near major community entrances. The California Department of Transportation should cooperate in designing and erecting attractive signs to alert travelers about these informational displays and in providing roadside turnouts. [A-p8c] co Design of On-Premise Commercial Signs. On-premise commercial signs, for identification and information purposes only, shall be designed as an integral part of the structure they are identifying? shall complement _100- or enhance -the appe aranc@e of the ;surrbundihg-area', and shall'not bl O'c k coastal views. [A-p8d] d. Types of Prohibited On-Premise Signs. The following'kinds of signs are specifically prohibited except where the coastal agency finds either that this prohibition wouldr6sult in dgreater negative impact than would allowing one of these types of signs (e.g.? where prohibiting a roof sign woul d necessitate cutting down trees to make a wall sign visible), or that the sign represents a creativey artistic,' and effect ilve design solution consistent with other Coastal Plan policies and design guidelines: (1) signs that are located on or project over the roof of a bui lding or structure; (2) fabric signs and banners;' (3)'flagsl other than those of any nation, s tate? or political subdivision; (4) pennants, streamers, buntingg and wind signs; (5) "All frame and portable signs of any nature; (6) statues'used Ifor advertising purposes; (7) the outlining of a build- ing by' means of exposed neon tubing, exposed incandescent lightingg or other artificial lighting; [A-p8d] and (8). commercial signs that ro, tate, change, reflect, blink, flash, or give the appearance of performing any of these actions. EA-p8e] e. Design Few, Simple, Harmonizing Information and Direction Public- -information and direction signs shall be of a simple,-easy-to-r.ead design, shall make use of mat.erials and colors.that. harmonize-with surrounding elements, and shall be as few in number as-possible. [A-p8f] Regional Amplification South Coast: Signs that have been abandoned or have fallen into disrepair shall be removed or brought into conformance with acceptable standards, respectively. Signs shall not obscure or detract.from building silhouet- tes and architectural detail. Sign height-should be within the normal cone of vision (not to exceed in height -1 the distance from the viewer as seen at a horizontalangle 'of 30 0 from Athe center .of the right-or-way). No private signs shall be allowed to block, part'i 'ally block or be in visual conflict withpublic'regulatory, dire ctional, identificationg -101- .,scenic route or other instructive.signsi All local and State agencies responsible for location, maintenance and design of public signs shall coordinate their efforts and plans in the future management of public Signs in order to minimize conflict, redundancy, and unnecessary visual clutter. [A-p9RA] 59- Minimize Visual Impact of Utility Structures. The visual degradation of the coastal landscape caused by power and communication lines and towers shall be minimized: [A-p12] a, Avoid Duplication of Facilities. Utility distribution and transmission facilities shall be designed as a coordinated system to avoid unnecessary duplication. [A-pl2a] b. Place Facilities Underground. Distribution facilities and service con- nections shall be placed underground except where undergrounding would be inconsistent with sound enviromental planning. [A-pl2b] Transmission facilit ies (i.e., powerline of more than 40 KV) within the scenic areas identified in the Coastal Plan shall be undergrounded in accordance with a program developed jointly by the coastal agency and the State Public Utilities Commission. [A-pl2cI ce Desi= of Above Ground Facilities. Except where inconsistent with sound environmental planning, new above ground transmission facilities shall (1) follow the least visible route (e.g., canyons, tree rows, and ravines-)-, (2) not be visible above ridgelines, (3) follow, not compete with, either natural features of the terrain or manmade features in de- veloped areas, and (4) be well designed, simple and unobtrusive in appear- ance, have a minimum of bulk, use the minimum number of elements permitted by good engineering practice, and make use of colors and materials com- patible with local surroundings. EA-pl2d] d. Determination of Feasibility Feasibility of the foregoing shall in each case be determined by the coastal agency based on analysis of environmental, economic, and technological information. [A-pl2] 0 Regional &Mlifications Central Coast:. Utility lines.should be.severely restricted in scenic highway corridors. Undergrounding of existing overhead facilities shall be a high priority in all developed or developing areas, and shall follow all land divisions unless proved infeasible. [A-pl2RA] San.Diego: Coastal communities shall give priority to the und.ergrounding -of aerial facilities in scenic coastal areas. [A-pl2RA] 60. Screen Public Service'Faciliti'es from View. Ma or public.service fa cilities, such as power plants, sewage treatment facilities, solid waste disposal facilities, water storage tanks, pumping stations, power and communications substations and other such facilities,shall not be located along the immediate shoreline unless there is no less environmentally damaging alternative. Wherever located, they shall either be screened from public view (by use of natural terrain and vegetation or buffer areas and artificial screening) or be designed in a manner that is subordinate to natural landforms or compatible with the sur- roundings (e.g., by use of harmonizing colors, textures, and massing or by undergrounding). [A-P131 Regional Amplification North Coast: Solid waste disposal sites (sanitary landfills) should not be permitted in the planning area when within public view or when the disposal site might degrade the esthetic or environmental quality of this area. [A-P13RAI 61. Design Industrial and Commercial Structures for Lessened Visual Impact but Greater Access. Facilities such as manufacturing plants and shopping centers shall,except as provided below: (1) be of a height, bulk, and color that blends well with that of surrounding structures, (2) provide physical and visual access to the coast for workers, visitorsp and,the general public, (3) not have significant adverse impacts on the visual quality of clean air and water, and (4) not generate excessive noise or unsightly congestion. Where safetyy noise, or other functional considerations make it impossible to integrate industrial facilities into the community structure, adequate open --103- space for buffers, bermst and landscaping shall be provided between industries and other uses so the facilities can be screened from public view. [A-P151 Regional Amplification South Coast: In order to restore. openness to areas now congested, crowded, and/or blighted in areas U1, U21.0 and S3, open land shall be used to buffer conflicting uses such as heavy industrial and residential use. In areas where conflicting uses are not buffered, long-range acqui- sition plans will.include land clearance projects to create the neces- sary buffer zones. [A-p7RAI -104- [Pulfflc Access b @hs 032M FINDINGS Constitutionally Guaranteed Public Access Is-Being Lost., Of the 1,072 miles of California coastline, only 408 miles are in public ownership, and 156 miles of the publicly owned shoreline are along military lands generally not avail-.;. able for public recreation. However, the right-of public access to all coastal tidelands is guaranteed by the California Constitution and has been expanded ' in scope by various statutes and court decisions. In addition to the publicly- owned coastal recreational facilities, much of the coastline has historically been used by the public for recreation. In recognition of similar public use? Texas and Oregon have enacted "Open Beaches" laws to guarantee public access to larger parts of their coastlines; similar legislation has been considered by the U.S. Congress. Despite legal guarantees and historical public use of the California coastline, much access to the shoreline has been lost by the erection of fences, buildings, and other structures. [R_f9] Ways to Provide for.Public Access. P ublic.use of the coastline can be provided both by strengtheningthe public's existing legal rights and by expanding the area along the coast in public ownership. State legislation,could be enacted that would protect the -public's right to use coastal dry sand and rocky beaches and those coastal bluffs and headlands customarily used by the public. Existing ,Powers that-enable regulatory agencies to require either public access as a condition in the approval of subdivisions or,developmentsv or where public access is not feasible or desirable, the payment of "in lieu" fees for the acquisition of access elsewhere could be more fully utilized. The Subdivision Map Act,could also be amended to make such requirements mandatoryv Experience indicates that access can be required without undue hardship to private pro- perty'owners., A State agency could be charged with the explicit responsibility for enforcing the public's right to have access to and use of the coastline by brin,ging-suit on behalf of the public. In addition, the power of eminent domain could be employed to acquire access to the coastline in areas where it cannot be secured through the regulatory process; the State Department of Parks and Recreation presently is not empowered to use eminent domain to acquire trails and beach access. ER-f81 Public Ownership Can Expdnd.Public Use of the Shoreline. Finally, public en- joyment of the coast-could be maximized and the resources of the shoreline : could be-preserved and managed for the benefit of all Californians if more of the shoreline area.were owned-or.controlled by public agencies. Such owner-@ ship could include recreational areas, ecological reserveaq and military and institutional uses that provide resource protection and public uses [new]... Institutional Facilities Provide Public,Access Opportunities.% Because their, peak use times do not generally coincide.'with peak coastal recreational use,. and'because of their public service orientation, certain institutional facili- ties such.as libraries, city hallsland colleges, if properly planned, can provide substantial opportunities for greater public access and'enjoyment of the shoreline, and can complement the protection, enhancementyand restoration of coastal resources. [I-f8] -105- Military Iands Have Potential for Providing.Public Access. Military bases located on the coas@ have often served to protect coastal resources* However, many such bases also have the potential of providing additional significant opportunities for public coastal access that would be consistent with both military uses and resource protection. EI-f 9] Private Development in the Coastal Area Can Impede Coastal Access. Along the immediate.shorelinet homes, businesses, and industries have often cut off existing public access to the coastline, have used up available road capacity and off-street pe&k and have precluded use of the coastline area for recreation* ER-f5brgDevelopmeht back from the shoreline also affects the ability of residents and tourists to get to and to use the coast. In addition to,its impact on transpor-tation systems serving the coast, development can re- duce upland recreational opportunities that would otherwise relieve demand on the shoreline. [New] Commercial recreation, on the other hand, is a private use of the land,that can provide.benefits for the general public when public ownership is not possible. (See also the Recreation chapter.) [New] High-Cost Housing and Touristlacilities are Restricting Coastal Access, Because of rising land a'nd.construction costsi and high property taxes, the limited amount of land available on the coast, and the demand for higher- priced housing and visitor accommodations, few housing and tourist facilities for persons of low and moderate income are now being built in the coastal zone. Moreoverv existing housing and tourist facilities serving low- and moderate- income persons. are being replaced by higher cost apartments, condominiumsand motels. This trend, begun several years prior to t 'he passage of the Coastal Act, is in several coastal areas changing the character of the population near the coast. Many elderly and low-income people, for example, can no longer afford coastal living and are forced to live elsewhere, [I_f131 Condominium Coversions Dis placeLow-and Moderate-Income Persons, The process of converting rental units to condominiums often causes the lderly7 and other mo'derate-and lower-income persons and families to move out of the coastal zone due to difficulties in obtaining mortgage financing, their lack of savings to cover the down payment requirements and their inability to afford monthly payments higher than apartment rents, and the reduction in the amount of rental housing caused by the cumulative effect of condominium conversions elsewhere in the coastal zone. EI-f141 Expensive Recreational Facilities Can Exclude Equal Access. Some areas of the coastline have been used for recreational activities involving expensive items such as second homes, large boats, and exclusive clubs that are limited to a relatively small portion of the general public. Unless these and other such costly recreational resources are made available to the general public through rental programs, many people will be precluded from enjoying certain areas* ER-f5l The Pixysically Handicapped Should Also Have Access to the Coast. Many recrea- tional areas and facilities can be made more accessible to the physically handic'apped through better design. Natural and scenic trails that accommodate the needs of the handicapped have been developed by various governmental. agencies* ER-fl.61 -106- The Right of Public Access POLICIES 62. Guarantee Traditional Public Use of the Coastline. The rights of public use of the coastline as mandated by the State Constitution and the courts of California shall be effectively guaranteed. To this end: [R-P7] a. Prevent Development from Encroaching on Public Use Areas. Development shall not be permitted to interfere with the traditional public use of the tidelands, dry sand and rocky beaches, and those coastal bluffs and headlands historically used by the public. [R-p6] b. Broaden the Public's Legal Rights. Legislation should be passed to: [R-P7] (1)'Preserve and. maintain, consistent-with the U.S. Constitution, the public's right, acquired through historic use and. custom, to use dry sand and rocky coastal beaches to the first line of terrestrial vegetation? and those coastal bluffs and headlands customarily used by the public. [R-p7a] (2) Recognize that,in judicial proceedings, showing that an area is a coastal beach should establish a presumption that the public has traditionally used the area up to the line of terrestrial vegetation for recreational purposes, unless the affected landowners can show that such historical use could not reasonably have taken place for the public to secure any legal rights to continue using the beach. [R-p7b] c. Enforce- the Public's Rights The LegislAture should direct the Attorney General 0ffice or the coasta1 agency to more actively, enforce the public's existing rights under the implied dedicAtion decisions to have access to and use of the coastline and to take all necessary steps t protect the public's rights including bringing.suit,on,behalf of the.,.,-. public.[R-p7g] -107- d. Restrict Signs that Discourage Access., No signs shall be posted that would discourage' the public from exercising its legally guaranteed rights of access to the coastline- Efrom R-p6RA] Regional Amplification San Diego: The coastal agency shall establish a repository 'of all infor- mation gathered by local jurisdictionsg private groups, and citizens regarding the establishment of prescriptive rights through implied dedi- cation and the extent of public trust rights. Local jurisdictions and State and Federal agencies shall not be permitted to unreasonably restrict public access to beach areas by preventing the development of access facilities designed to serve the general public. [R-p6RAI 63. Provide Public Access to the Coastline. Public access from the nearest public thoroughfare to the coastline shall be provided in and where approp*riate separated from new developments, [B--p6e] Specifically: a. Reqi@ire Access Through New Developments.. New developments shall provide public access by dedication of an.easement or fee title to an access way to a public agency or by the recording of a deed restriction guaranteeing access across the property. However, where the coastal agency determines that public access is inappropriate such as where (1) adequate access exists nearby, (2) the topography makes access dangerous, (3) the proposed development is too small to include an access way, (4) the coastal resources are too fragile to accommodate general public use, or (5) public safety or military security precludes public usep the developer shall pay "in lieu" fees (to be established as the cost of obtaining reasonable access at fair market value across the property) to a fund for the acquisition of public access. at a suitable location elsewhere. To the maximum extent feasible, in lieu.fees shall be spent in the region in which they are collected. ER-p6e]. b. Provide BlufftoI2 Paths and Linear Parkse A coordinated system of paths and linear parks shall be provided on coastal bluffs, where consistent with other plan policies, linking these areas with community trail and park systems, such as the Coastal Trails System recommended in Policy 91. [A_p19f] C* Expand EnabliM Legislation for Requiring Dedications. New legislation should be passed to: WAmend the Subdivision Map Act (Government Code 66410 et seq.) to provide for review and approval by the coastal agency of local determinations that "reasonable public access is otherwise avail- able within a reasonable distance from the subdivision." [R-p7c] (2) Extend the statute of limitations on government acceptance of coastal access dedications in the,Subdivision Map Act or other appropriate.statutes from the present three years to ten years. ER-P7d] (3) Continue the access dedication requirements of the Coastal Act (Public Resources Code Section 27403(a)) and make such requirements for access dedication a condition of local government permits for all coastal development- ER-P7e] d. Authorize State Agency to Acquire and Maintain Access_K@ys. A State agency (eege, Department of General Services, State Lands Division, Depart- ment of Parks and Recreatior4 or the coastal agency)'should be authorized to: (1) receive and adequately maintain and police public access ways and to hold liability for these areas; (2) require and receive the pay- ment of a fee in lieu of the dedication of'access if actual access is not appropriate; (3) exercise the power@ of eminent domain and expend the in lieu@fees to acquire public access in areas where access cannot be secured through the regulatory process.' [R@-p7f] Regional Amplifications South Central: Public access to,the top of bluffs should be provided in all new subdivisions, on all..develo.pments on sites greater than 5,acres, and wherever a site in an existing subdivision is heavily used'.' The access-provided.shall reflect the density of the community and.the type of use expectedg and the current use by the public of the site. The access,shall-take into account,t,.he,erosion:.rate.o,f-the bluffs so that -109- I I it can continue for the life of the project. Where possiblet access along the top of the bluff shall be provided. Maintenance and liability shall be assumed by an appropriate State agency. [New RAI San Diego: Where appropriate,each applicant for a major bluff top develop- ment whose project site liesbetween the coastal bluff edge and the nearest existing public street shall dedicatep improveg and maintain a public ease- ment from the nearest existing-public street to and along the bluff edge' Jor the full extent of the project site. When a project site abuts a street end, the access from the nearest public-street to the bluff edge may be located on the street end as long as the applicant improves and maintains one half of that street end in accordance with the directions of the coastal agency. The public access shall be improved with an all- weather walkway, adjacent landscapingf protective railingsq ground level lightingg trash receptacles benchesq and other improvements which may be deemed necessary. [A-pl9RAI Public Management and Use of the Shoreline PUBLIC OWNERSHIP ON THE COAST POLICIES 64. Public Ownership and Regulation of Coastal SIX@iR. The long-term goal @possiblY 50 years or more away) of all coastal zone planning and development should be public ownership of and access to a strip of land paralleling the coast.. [I-P111 Specifically: a. Area of Strip Will Vary. The strip should contain those areas determined to have statewide and regional significance. The width of this.strip should vary according tolocal conditions but should be large enough to permit significant opportunities for public use and enjoyment, In urban areas this might mean a strip several hundred feet to several hundred. yards wide. Wherever appropriate, the strip should include all the area between the mean high tide line and the first public road. (See Policy 102.) b. Exceptions to Public Ownership Goals Port facilities, occasional clusters of intense development (such as downtown areas), and those areas determined to be manmade resources in ac cordance'with Policy 45 _110- should be the only major exceptions to this goal, In those areas and in all other excepted areas, public access ways through or around the facilities connecting with other'portions of the strip should be provided, Ce Control Access. Access shall be controlled by the coastal agency to en- sure that the level of use does not degrade fragile resources, public safety is considered, and trespass prevented. (See Policy 86 regarding control of access to protect resources,) d. Productive Uses N ot Precluded* Public ownership should not preclude pro- ductive uses; for instance, the acquisition of scenic easements over coastal grazing lands to protect views would meet both recreational and agricultural needs.. ee Minimize Develo ent in Potential Area of Coastal Strip. Where new pri- vate development is permitted within the likely area of the strip, such development shall be minimized and shall be complementary to the long-term goal of public use and access. [I-pil] 650 Priorities for Public Acquisition. Highest priority for public acquisition of coastal areas should be given to open space along,urban waterfronts where visual and pedestrian access to the coastline is limited and to presently sub- .,divided-small'lots in scattered ownership if development on them wouldimpede public access by using up remaining road capacity or would-unavoidably despoil coastal views. [from.I-p11,A-p28c,A-p3O] High priority 'Shall also be given to-areas.ofihigh recreational value (identified in Policy 75), areas proposed for park and reserve status (identified in Policy 88),@and areas of @ high scenic value (identified in Policy 48),. Regional Amplifications Central Coast: Among,the highest priority public useareas in the Central Coast Region are: (1) in Dal@ City,''the area between t he m.ean high tide and the old, coast highway; '( 2 in Pacifica,-all the sandy beachg-headlands and points (Mori Pt., San Pedro Pt. and Creek, Devil's Slide); (3) in the Montar,a-Moss Beachareaq Montara-Pointt undeveloped.land west of the high- way adjacent to the Fitzgerald Marine Reserve (to be in an agricultural preserve), and Pillar Point Harbor; (4) in Half Moon Bay, the lands included in the San Mateo Mid-Coast Beaches Acquisition Plan; (5) all beaches and upland support areas between Santa Cruz City and Half Moon Bay? especially Davenport*Landing? Scott Creekand eastern portion of Pescadero Marsh; (6) in the City of Santa Cruzq inholdings at Natural Bridges State Beach, Lighthouse Field, vacant property on East Cliff Drive at the San Lorenzo river mouth, and the vacant land adjacent to the Yacht Harbor; (7) the continuous band of undeveloped shoreline area from New Brighton Beach to the Pajaro River; (8) a continuous band around Elkhorn Slough; (9) in Seaside, Sand City, Marina, and the part of the CI*tz of Monterey adjacent to Seaside, the area west of Highway 1; and (10@ below the Carmel River, all undeveloped land west of Highway 1 within the Highway 1 viewshed (as,defined in the Appearance and Design Element) including the Big Sur area beaches and upland support area, excludin vacant lots in substantially built up residential subdivisions. [I-plIRAI South Coast: Publicly owned lands in the coastal zone of this region andq in urbanized areas (S3 through Ul), any land in the permit area which comes into the public sector through tax defaultv gift, or abandon- ment shall be maintained in public ownership. Such lands should be: (1) preserved and restored as natural areas if endangered or important habitat types exist; (2) held as public open space or developed (possibly throuf a lease to the private sector) for facilities serving the public; or (3 where habitat preservation or open space/recreational use is not appropriatev used for agricultural production. Land now in public owner- ship in the permit area shall not be sold for private use without approval'of the cc astal agency. [from L-pl, L-pl4I A-p2, and A-P3RAI 66. Techniques for Gaining Public Use. Public use of the coastline shall be secured through public purchase, dedications from subdividers, purchase and leaseback, scenic and open space easements, scenic restrictions, resource management contractsi incentive zoning, and the transfer of development-rights. [from I-p11 and A-p28c] Acquisition programs should proceed as rapidly as possible and should include leaseback and life estate provisions as incentives for placing privately-held lands in public ownership and to prevent hardships to present ownerso.[Rpla] Each -affected parcel shall be separately evaluated and the most appropriate and equitable means to secure the public interest selected, [new] 67. Protect Potential Acquisition Areas. Until lands designated for public acquisition can be secured, they shall be protected from development and from abuse through public regulatory powers, and property taxes should reflect- this -112- limitation on their use* If theseareas cannot be secured within a reasonable period of time, development tha t complies wi th all other Co ast al Plan policies may be allowed to proceed. [from R-plaq R,-ploc, and A-P301 PUBLIC INSTITUTIONS AND MILITARY LANDS ON THE COAST POLICIES, 68. Permit Institutions that Provide Public Use, Only those institutions that have the potential for encouraging public use and preserving coastal resources@ (e.g., marine laboratoriesy librariest museums, city halls, and colleges).shall be permitted in the shoreline area. Such uses should be given priority over residential uses in the shoreline area. EI-pj;@] Approval.of.such institutional uses shall'depend on (1) the,amount of public access generated (e.g., public- spaces, not private offices, on the ocean side of & building); (2) the degree to which the proposed development takes advantage of & coastal location by utilizing coastal amenities; (3) the way it combines public use with-the protection of natural resources; and (4) 'its visual impact and the relation- ship to surrounding uses. [I-P'12] 69. Maximize Public Use of Federal Lands. Maximum public use of Federal lands should be' encouraged. Specifically: a* Make Military Lands Availabl e to Public. The U.S. Government should con- tinue and expand its already outstanding program of making military lands on the coast (for example, parts of the Golden Gate National Recreation Area) available for public recreation and preserving vital coastal resources. [I-p161 b. Increase Public Access to Military Bases. Public access to the coastal areas of Federal military installations sho uld be increased to the max- IMUM degree consistent with military security and safety requirements and envir6nmental'p'rotection. [Rp6f] -113- c. Retain Federal Surplus Lands in Public Ownership. If military or other Federal lands and water areas are declared to be surplust they should be retained in public ownership for public use. Any leasing or development of such areas should.be in accordance with a subregional plan (see Policy 183), approved by the coastal agency and consistent with the Coastal Plan. [I-pl6l Eque'lityof Access POLICIES 70. Basic Policy: Maximize*.Ac'dess to the Coast for All People. Access to the coast for persons of all income levels, ages,and social groups shall be maximized. Developments.that provide recreational and residential access for the general public over a wide range of income levels shall have priority over other private development- EI-pld] 71. Provide Lower-Cost Tourist Facilities'. Provision should be made in areas near beaches for tourist facilities (including campgrounds, hotels, youth hos- tels, recreational vehicle parks,,etce) for low- and moderate-income persons through the -use of all available financing techniques, including the tax in- crement obtained from high.@cost coastal housing and tourist facilities. Lower- cost visitor facilities-such as campgrounds, rustic shelters, ranch houses con- verted to inn. s, bed and board in private homes, summer home rentals where several families*can share the cost, and new tourist accommodations that provide some percentage of moderately pricedunits and short-term rentals of other recreation facilities (e.ge, boats) shall be given priority over exclusively expensive facilities (e.g., private residential developments, some yacht clubs). EI-p14 and from R-pld] Recreational vehicle campgrounds should be provided both by the public and private sectors consistent.with other. Coastal Plan.policies (see especially Recreation chapter). Where possible, vehicle camping areas should be designed separately from tent.camping areas. Such facilities.shall be located well back from the water's edge and shoreline pedestrian access.pr6vided. [R-p2g] 72. Increase Coastal Access for.Low- and Moderate-Income Persons. Housing for persons of-low and moderate income shall be adequately provided to increase access,for all people to the coast, New developments that provide some per- centage of moderately priced units shall be given priority over.exclusively expensive facilities, [I-P141 In addition: a* Preserve Existing Low- and Moderate-Income Housing. The demolition of low-moderate income housing in coastal neighborhoods shall be permitted only if it can be assured that the new or rehabilitated housing will provide at least the same number and type of dwelling units at the same price in the same general area. [I-P131 P I. b* Provide New Low- and Moderate-Income Housinge A significant percentage of new housing within coastal neighborhoods shall serve low- and moderate- income persons and those employed in coastal-related industries and agriculture to the extent that funds are available from State and Federal sources, such as the Community Development Act of 1974. [I-P141 State and national programs to assist low- and moderate-income housing, such as the bills (pending in the State Legislature) to provide increased mortgage funds,shall be encouraged and expanded. [I-P27c] Ce Regulate Condominium Coversionse Condominium conversions in areas which provide significant rental opportunities for low- and moderate-income persons, the elderly, and families with children (as determined by the 1970 census figures) should be approved only if (1) other rental units are available in the immediate coastal area at similar rental rates (eog,, -115- the rental vacancy rate in the coastal area of the local jurisdiction has remained above 3 per cent for the preceding six month time period); (2) first option to purchase is provided to present tenants; (3) ninety days notice of conversion is prov-ided to present tenants. [I-P151 73- Provide Recreational Access for the Physically Handicappede Reasonable access and accommodations in recreational areas and facilities shall be provided for physically handicapped persons by complying with State statutes and State Department of Rehabilitation design criteria, [R-P141 Optimum Recreational Use of theCoast FINDINGS' Coast Provides Variety of Recreational Opportunities. The@California coast pro- vides an,almost endless variety of recreational opportunities for peopie-to play, to be refreshedj.@and to be inspired: wide sandy beaches for cooling off from the heat of the city; rocky headlands for exploring; high bluffs for watching the ever-changing ocean; waters-for swimming,,boatingf surfing, and fishing; and tide poolsp sea caves, and coastal wetlands for nature study. In short, the coast is a major determinant of the quality of life in California. [R-fl] Shortage,of Recreational Facilities Persists. The coast is heavily used for 'recreation because 65 per cent of California's population lives within 30 miles of the ocean and because the coast,provides many year-round recreational opportuni,- ties not found.at inland areas of California and other states. Many public and commercial recreational facilities exist along the coastline, but a shortage of @ f acilities persists f or almost every popular-@ recreational activity. The exact demand for specific types of recreational facilities is difficult to project,. but there will probably be a continued high demand for traditionally popular coastal activities such as fishing,.sightseeing, beach use, skin diving, boating, camping, hiking@ bicycling,and general day use. [R-f2] Recreational Pressure Will Increase'with,Further Development. Large-scale urban development in the:coastal zone that does not include adequate internal op en space-or is not balanced with provision of public recreational areas away,from the coas'tline.increases congestion and limits access to coastal recreational resources for all Californians as the local residents use the remaining coastline for all their recreational needs. [I-f12] At the same time, the rapid development of large open spaces inland from the immediate shoreline destroys the,scenic open space qualities of these areas and precludes use of these upland areas for recreation (picnic.grounds, golf courses,' recreational vehicle,campgrounds), transportation (parking lots, roads, bus stations),' and multi-use commercial services (restaurants, hotelsp amusements).,that could be liriked to the shoreline by trails, shuttle busesl',,or trams.. [R-f5d] Coast Subj ected to Confli cting Recreati onal Use Demands. The coast ma kes, significant contributions in satisfying. the recreational demands of the State's 20 million inhabitants. However, to meet the desires of an ever-increasing population, tliis.-irreplaceable,natural resource is being-subjected to,increasing and sometimes conflicting demands for recreational use., When there is a demand for recreational activities that are not compatible with each other, the result can be an intensive activity (e.g.9 dunebuggying) taking over'the use of , the area,from more passive activities,(,e.g.,,[email protected]'g).'-Confl'lc@ing,*' demand for recreational,faciliti.es-can.also resultin-the alteration of the coastal environment f or - one activity: (e. g. I f illing shallow waters @ f or,a park). at,. the expense of,another activity.(e.g., preserving the.water area,for boating). [R-f3l- Moreover, the construction of roads and parking lots,along the immediate shoreline uses up potential recreational areas. Oftenthese support facilities; could be.located back from the.shoreline:-area. @[from R-f5c.] _117- Coastal Recreation and Tourism Benefits State Economy. Although thare are no absolute data available that quantify the economic benefits of recreation and tourism along the coastline, according to the California Department of Commerce, they contribute at least $2.5 billion annually to the California economy and generate over 280,000 jobs. In a recent study done for the Department of Com- merce (A Study for the Methodology for a Continuous.Tourism Research Program., July 1974),it was determined that the California coastline is a major attraction to visitors from throughout the world. [R-f41 Recreational Carrying Capacity of Coastal Areas Needs Investigatio . Recreational carrying capacity, defined as "the character of use that can be supported over a specified time by.an.area developed at a certain level without causing excessive damage to either the physical environment or experience of the visitorg'.1 depends on the interrelationship of three factors: (1) the environmental or physical capacity, which is the amount and character of use beyond which the natural resource will be unacceptably altered; (2) the socialy psychological, or visitor capacity, which is a subjective level beyond which individuals feel the recreational experience is not fully satisfactory because of overcrowding, noise, loss of privacy, etc.; and (3) the facility capacitywhich is the maximum level of use the marnade facilities (parking lots9 roads9 trails? campsites) can accommodate'. Facility capacity-is not affected by natural constraints and is determined entirely by management decisiong. Very little definitive study has been conducted on the carrying capacity of coastal zone recreational areas, though these areas possess certain unique environmental characteristics that do not exist in inland locations. A model similar to the State Department of Parks and Recreation "Allow- able Use Intensity Program" could be developed for other carrying capacity assessments. Overuseq environmental degradation, and native flora and fauna declines have occurred in some coastal areas due to the lack of access control suitable to the circumstances. [R-f6] Recreational Capacity of Coastal Areas Varies. Although each coastal area must be analyzed separately to determine its optimum recreational use level, the recreational capacities of tide pools, sea eaves, and coastal wetlands are most often determined by their fragile ecological conditions while the recreational capacities of sandy beaches, bluffs, headlandsp bays, and nearshore waters are more often determined by access and the quality of the recreational experience than by the environmental qualities of the sites. Carrying Capacity Should Not Be Exceeded. To protect the environment of the coast as well as the quality of recreational experiencesp recreational use should be controlled according to the carrying capacity of each area. In urban areas where there is road access to much of the coast, it is likely that coastal recreational facilities will be intensively used by large numbers of people so that fragile resources can be adequately protected only by on-site measures such as limiting parking or erecting fences. In rural areas where access to the coast is limited to that provided by Route 11 the-extent of recreational use can be limited by the capacity of the road system, which must also serve additional commercial, industrial, and residential development along it. [R-f71 Coastal Areas May Be Misused. Excessive recreational use can damage the fragile resources of the marine and land environment. Many tide pools have been virtually stripped of all living organisms by people collecting specimens. Some areast such as marshes and dunes, may be damaged by excessive foot traffic. Islets and offshore rocks that provide protected sanctuary for seabirds and sea lions are disturbed by human intrusion. In some areas, selective hunting and fishing of certain species can deplete these resources. With adequate protection, public education, and in some cases, restoration, most disturbed areas can recover. [M-f8] POLICY 74. Basic PolicZ: Ensure Optimum Recreational Use. The optimum potential active and passive recreational use of the coastline consistent with resource protection shall be ensured by: (1) providing ample public recreational opportunities, (2) giving priority to commercial recreation on private landsv (3) reservingfthe s horeline for coastal- and water-dependent recreational activities, (4) protecting upland areas for recreational support facilities and non-coastal-dependent activities where appropriateg (5) requiri ng the prov ision of adequate op en-space and recreational amenities in new private development, and (6) managing recreational uses to protect coastal resource's from overuse and to offer a variet@ of recrea- tional experiences* [R-P11 (See the following subsections.) PRIORITY FOR RECREATIONAL USE OF-THE COAST POLICIES 75. Consider Public Recreational Potential Before Allowing Other Uses. The potential of each shoreline property for possible recreational use shall be evaluated before any development that would foreclose such opportunities is permitted. Especia lly critical are those areas recommended for public acquisition by ary Federal agency, by the State Department of Parks and Recreatio n in the California Coastline Preservation and Recreation Plan and in the 1974 State Park Bond Act program, in cityv county, and regional plans, and in the Coastal Plan, and any additional areas such as coastal Federal surplus lands found to be of high recreational value- ER-pla] (See Public Access to the Coast chapter regarding public acquisition of coastal areas.) 76. Commercialle'c'reat'ion Takes Priority Over Other Private,D .evelo.pIme.nt.., The use of private lands for visitor-oriented development,,such as commercial recrea- tion and support.facilit'i,es ('e.g. I.; reiortst J@-estaurantb,, hotelsp and campgrounds) that are designed"ta'enhance*the general'publid's opportunity to enjoy the water- _1196- front and other coastal recreation areas, shall have priority over private residential, general industrial, or general commercial development except for agriculture and coastal-dependent industry. [I-p9, R-plel Private residentialy general indus trial, or general commercial developments shall be permitted only if it can be demonstrated that the site is clearly inappropriate for commercial recreation uses (due to locationt surrounding land uset accessibility, etc.) or that present and foreseeable future demand for commercial recreation uses is already adequately provided in the area. [new] Such commercial re- creation facilities shall be permitted only where consistent with other Coastal Plan policies such as protection of natural resource areas, design standards within communities, etc. Efrom I-p9j (See also Policy 71 regarding equality of access to such facilities6) 77.. Provide'a Variety of Recreational Uses near Metropolitan Areas. Priority shall be given to providing a wide variety and numerous facilities to accommodate heavy recreational use and intensive activities along the coastline in areas convenient to population centers. The few remaining large open spaces in southern California (e.g., Camp Pendleton, Santa Monica Mountains, Channel Islands) shall be preserved for predominantly low-intensity recreational use. Where medium- and high-intensity facilities (e.g., parking lots, campsites, and picnic grounds) are necessary to accommodate concentrations of people, these facilities shall be clustered in limited areas-, where it can be determined that the site has the capacity to withstand more intensive use.. [R-p 2d] (See section on Controlling Recreation to Protect Resources.) Regional Amplification South Coast: Maps of all public purpose areas in the coastal zone (to 5 miles from the m.h.t. line) including beaches, parks, open space and environmental reserves open to the public, and information regarding access to these lands9 shall be made available to the public at nominal cost,from suitable public agencies. EA-p14RAJ Where regional park facilities are in short supply (e.g. Santa Monica Bay area), public agencies shall encourage the use of beaches for picnicking, hiking, 01 -120- bicycling, volleyballq children's play areas and other non-consumptive, use of the dry sand beach and adjacent areas. The use of portable facilities for certain of these activities shall be encouraged, especi- ally during the winter months. ER-plRA] 78. Maximize Off-Season Use of Recreational Facilities. Local and regional plan- ning agencies should prepare off-season use plans for coastal recreational areas. These plans should consider using existing beach parking lots for winter recrea- tional vehicl e camping and providing outdoor educational programs in picnic areas during low-demand periods, where consistent with Coastal Plan policies. [R-ple] 79. Institute a Statewide Reservation and Use System. A centralized state- wide reservation and use monitoring system for overnight recreational facilities, similar to that used by the California Department of Parks and Recreation, should be instit uted by public recreational agencies. The system should even- tually include all public and private facilities. [from R-p5f] P 11 RECREATIONAL USE OF SHORELINE AND UPLAND AREAS POLICIES 80. Reserve Shoreline for Coastal- and Water-Dependent Recreation. To ensure a wide range of recreationalactivities and to avoid conflicts between incom- patible activitiesl.coastal- and water-dependent activities shall have priority in the shoreline area., [from.R-p2l a. Coastal-Dependent Recreation. Coastal areas particularly suited for. specialized coastal-dependent recreational activities (e.g., surfing, SCUBA diving) shall be protected for these uses'.' Other activities shall be permitted so long as they do not conflict with the enjoyment of the primary resource-oriented-activity.,, [R-p2a]@-: b. Water-Dependent Recreation. Water-dependent recreational activities such as fishing surfing, swimming.t diving, and boating shall be given a strong and clear priority for use of the immediate shoreline over recreational activities that do not require water access (e.g. , off-road vehicle use, vehicle camping, golf).. [R-p2b] ce Criteria for Non-Dependent Activities. Non-water or coastal-dependent recreational, activities shall be permitted in the immediate shoreline area only if it can be demonstrated that: (1) there is a long history of high demand for the type of recreational activity proposed; and (2) no coastal- or water-dependent uses would be displaced or precluded by the proposed development or activity. Enew] 81. Reserve Upland Support Areas for Recreational Use. Wherever possible, recreational activities and support facilties that do not have to be located on the immediate shoreline shall be located inland and connected to the coast- line by trails, bicycle paths, shuttle buses, or trams. [R-p2f] A. Priority for Public Recreation in U 6 pland Areas Acquisition and development of such 'upland areas appropriate for public recreation shall be given high priority. Efrom R-p2c] b. Stress Upland Location for Uses that Would Degrade.Shoreline. Particular stress should be placed on reserving upland support areas (1) for intensive recreational development that otherwise would require substantial shoreline alterations, and (2) for c*ommercial recreation facilities that would other- wise infringe upon or displace public recreational, educationalg or scien- tific areas on the shoreline. Efrom I-p9, 1@-plg, and R-p2c] RECREATION AND DEVELOPMENT POLICY 82. Balance Development with Open Space and Recreation Facilities. The amount of new development shall be correlated with precise open space acquisition and -122- recreational use plans prepared by local agencies, and with provision of on- site recreational facilities determined to be sufficient to' serve the new develop- ment. a. Open Spacel'Recreation Requirements. Open space and recreational requirements shall be based on standards adopted by the National Recreation and Parks Association unless other standards are determined to' be more appropriate for specific coastal areas by the coastal agency following completion of subregional plans. b. Cities and Counties Should Assure Adequate Public Open Space. The local government recreation plans should include financing methods and an acquisition timetable forthe purchase and improvement of public recreational areas adequate to'fully meet these standards in newly developing areas and to substantially reduce any deficiencies in existing areas. C. Delay Development Until Plans Adopte If such precise' plans and implemen- tation programs have not been adopted in accordance with coastal agency requirementstnew residential development should be delayed until such plans and programs are-in effect. [I-piol d. Require Sufficient On-Site Recreation in New Development. New coastal resi- dential developments shall provide internal recreational facilities so that the increased recreation demand by the new residents is less of a burden on nearby public recreation areas. [R-p6cT Tn addition, public amenities such as pedestrian walkways, bicycle paths, equestrian trails, open spacel and,parking areas shall be provided for public use in new develop- ments large etiough to accommodate them. [R-p6b] CONTR6LILIN: G"R'ECREATION TO PROT ECT RESOU RCES@-' POLICIES 83. Restrict Substantial Alterations on the Shoreline. Recreational uses that do not require significant facilities or extensive alteration of the natural -123- environment (e.g.t tent campgrounds, walk-in campgrounds, picnic areas, hiking trails) shall have priority along the immediate shoreline over recreational uses. that require large-scale development or would result in substantial alteration of the natural environment (e.g., hotels, vehicle campgrounds, parking lots). [R-p2f] Substantial alteration of land and water areas along the immediate shoreline (by dredging, filling? paving, grading, etc.) to accommodate a specific recreational use shall be permitted only if all the following.criteria are met: (1) the proposed use is clearly water- or coastal-dependent (e.g., boating, swimmingp fishing); (2) there is a long history of high demand for the use (e.g.t public boat launching ramps and hoistst.day-use beaches, fishing facilities); (3) there is no less environmentally damaging alternative; and (4) the alterebion is in accord with Coastal Plan policies (e.g., wetlands shall not be dredged or filled, bluffs shall not be gradedy and the remaining natural sand dunes and beaches shall be protected). [R-p2e] 84. Limit Access and Recreational Use Where Necessary. Types of recreational and educational use, as well as public accesst shall be controlled where necessary to minimize humanimpact or other damage to natural resources (e.g., tide pool collectingp underwater fishing, trampling of marshest traffic on dunes and bluffs, etc.), to ensure continued productivity and recreational enjoyment of resources, and to protect public safety. [M-plOa and from R-P5b] Where information is available to determine the environmental carrying capacity of a coastal resource, the designed capacity of roadsp parking areas, and other support facilities shall be kept within the environmental carrying capacity of the natural resource. ER-P5d] Other appropriate natural areas should be made available to reduce overuse of existing areas. Enforcement of regulations should be strengthened and consolidated, with State-and Federal assistance for local or State agency inspection programs. [M-pl0a] -124- Regional Amplifications South Coast: Until a coastal access and use management system can be establishedt accessways open near urban population centers in the South Coast Region which provide entry to areas of exceptional marine quality shall be monitored by local authorities so no degradation of marine re- sources occurs. Areas of special concern include existing and proposed marine'reserve areas; the Los Angeles-Ventura County line to Malibu Point, Resort Point to Abalone Cove, Malibu Lagoony and along the Irvine Coast from Cameo Shores to Abalone Point. [M-p5RA1 The Federal government shall be encouraged to complete needed facilities for carefull controlled public access to Seal Beach National Wildlife Refuge. EM-p2RAJ High priority areas for increased protection and public edu 'cational programs in the South Coast Region include Malibu Creek and Lagoon (Surfrider Beach)f Palos Verdes Peninsula, Corona del Mar, Laguna Beach, Ballona Creek tidal system? Upper Newport Bayq Doheny State Beach, Bolsa Chica State Beachq Irvine Coast, Cataline Island, and San Clemente Island.[M-plORAI Public access to and within marginal land areas of inletsp estuariesp and bays shall be provided. Ecological fragility may require that numbers of visitors be limitedp or that access be prohibited during certain periods of time, but total prohibition of public access will only be considered for rare and extremely fragile natural areas. [A-p12RA1 San Diego: To reduce or prevent accelerated bluff erosion caused,by foot traffic.or other actions of man on bluff facesq while at the same time providing for adequate beach access in coastal bluff areas, a beach access and bluff preservation program shall be implemented by the governmental agency having jurisdiction for those areas where the actions of man are causing accelerated erosion. 85. Restrict Off-Road Vehicles in the Shoreline Area. Off-road vehicles and trail bikes shall not be accommodated on beaches, dunes, and blufftops in the immediate'shoreline area with the possible exception of the portions of Pismo'Beach in San Luis Obispo County and Ten'Mile Beach in Mendocino County that are presently used for this purpose. [R-p2g] 86. Establish Long-Range Prog@am to Protect Resources and Manage Recreational Use. A'long-range program to protect coastal recreational resources from over- use shall be established jointly by the.coastal agency and other public recrea- tional agencies. This program shall coordinate the planning of coastal access with the desired recreational use levels along the coast, and shall ensure that public recreation areas are adequately managed and maintained to achieve -125-,.. this end. This program should include effective restraints on recreational use at-peak times and inducements to use at off-peak times. ER@-Ocl a. 'Criteria for Coastal Use Zones. The foundation of this program shall be the designation of four classifications of coastal use zones: Intensive Use Zone, Moderate'Use Zone, Light Use Zone, and Remote Zone. The criteria that shall be examined in the process of designating these coastal use zones shAll include, but not necessarily be limited to, the following: (1) the area's environmental uniqueness or fragility; (2) the present and potential use; (3) the coastal recreation demand in the region; (4) the area's proximity to major population centers; (5) the availability of major transportation corridors; (6) the area's value as an isolated and relatively low-intensity recreational area; (7) the area's ability to accommodate intensive recreational use; and (8) the need for a variety of recreation facilities. [R-p5c] b. Distribution of Use Zones. Except to the extent that natural features determine coastal zone designations, the four types of coastal zones shall be relatively evenly distributed throughout each Region with the more inten- sively used areas near major population centers. [R-P5c] C. Improving Analysis Techniques for Use Levels. Research should be undertaken by State colleges and universities, the Department of Parks and Recreation, the Department of Navigation and Ocean Development, the coastal agency, and local park agencies on ways of improving analysis techniques for determining recreational site carrying capacity; once developed, these techniques shall be used by the coastal agency to evaluate all coastal recre- ational sites, and management action shall be taken to.adjust recreational use levels accordingly. [R-P5e] -126- Regional Aalifications South Central: The Guadalupe Dunes should be preserved for wilderness and./or low-intensity recreational use. [R-p2RAI The Channel Islands should not be developed significantly beyond their present levels. Those islands which now are or in the future come to be publicly owned should be administered-on a.low intensity, limited entry basis. .[R-p5RAI San Diego: Interim beach access and use management zones are: (1) Intensive Use Zone--.Imperial Beach to Zuniga Point, Ocean Beach to Tour- maline Surfing Park, Seal.Rock to La Jolla Cove, La Jolla Beach.and Tennis Clubto ScrippsPier, Del,Mar City Beach, Cardiff State Beach to San Elijo State Beach, Moonlight-State Beach, South Carlsbad State Beach, Carlsbad State Beachq Oceansidev and San Cnofre State Beach; (2) Moderate Use Zone-Border Field., Ladera Street to Ocean Beach Pier, Tourmaline Surfing Park to Seal Rockq Black's Beachl-Torrey Pines State Beach to Del Mar (17th Street), Solana Beach to Cardiff State Beach,.Sea Cliff County Park9 Leucadia@ South Carlsbad State Beach to Carlsbad State Beachi Carlsbad, Camp Del Mar, and San Mateo Marsh (intensive nodes may be located throu@h moderate use areas);(3) Light Use Zone-Point Loma (southern tip), Old California Western University Property., Scripps Pier to Black's Beach, Black's Beach to Torrey Pines State Beach; and (4 Remote Zone-Point Loma (Navy property) and Camp Pendleton. FR-p6RA1 87. Encourage Education on the Coastal,Environment. Courses of study focusing, at least in part, on the environment of the coast-as a valuable resource to be maintained, preserved, and enhanced should be introduced into the public school system at elementary and secondary level s. State funding for such educational programs should be provided. County school offices should be consulted to recommend development of.educational components when recreational areas are. being planned. ER-plof] Signs and interpretive programs should be provided in accessible natural areas to,increase pibli c awareness'and enco urage proper use of resources. [new] Cm-sta-1 Reserve System FINDINGS M@m Coastal Resource Areas Need Special Protection. -Many of the resource areas described in the marine, coastal land, and marmade resources chapters need the protec -tion of'public ownership. Some natural and historical'areas are';'alre ady preserved--for example, in military lands, wildlife refuges, and parks--but many unique and:valuable areas of the coast are,still unprotected., [from'Lr-f5l -127- Without special protection, these irreplaceable, delicate, and outstanding examples of the coastal environment and its historic features may be threatened by development and by intensive recreational uses. [from R-f12J Resource Areas Offer Opportunity for Study as Well as Recreation. The coastal lan-d environment is composed of complex, interrelated ecosystems that are as yet not fully understood. Their study can.be a source of great enjoyment as well as benefit to man. [new] In the marine environment, rocky and sandy inter- tidal areas, islands, islets, offshore rocks, kelp beds, reefs, and wetlands - I support rich and often unique marine life. Many coastal sites, such as the Channel Islands, have been'designated by local, Statel or Federal agencies as having special biological or,natural resource values. Those areas also often offer important recreational, educational, and scientific opportunities. [M-f8l A Coastal Reserve System Can Protect Resources While_Providing Public Recreation and Education. One of the problems involved in effective management of the fragile resources of the coastal zone is the lack of public awareness concerning the coastal environment. Establishment of education and research programs will provide baseline data useful in making management decisions relative to carrying capacity and change in level of environmental quality as times goes by. [R-M] Establishment of a comprehensive coastal reserve system can assure such educational and research uses, while providing managed recreational uses. [new] POLICIES 88. Establish a Coastal Reserve System. A coastal reserve system should be established to protect valuable natural, historic, and archaeological resources of the coast and to promote recreational and educational use of the coastal. environment consistent with resource protection. [from M-plOct R-plOal R-pllbp and L-pl] Specifically: a. Areas to be Included. The system should include: the areas recommended in the California Coastline Preservation and Recreation Plan (Department of Parks and Recreation), in Appendix IXI Education and Research, of the Comprehensive Ocean Area Plan, and by the State Department of Fish and Game; [from L-pl and R-plOa] all islets, offshore rocksp and other special marine features.(such as submarine canyons and banks, kelp beds, etc.) as identified in the Coastal Plan or by other State and Federal agencies; [m-pioc] historical sites identified by the State Department of Parks and Recreation in the California History Plan and the second phase Inventory of Cultural Resources or in the Coastal Plan; [A-p2b] and other ecologically significant areas identified in the Coastal Plan or by the coastal agency. -128- (Several regions have designated priority sites for reserve acquisitions in Part IV, in addition to the regional amplifications below.) b. Additional Sites Should be Designated. Additional designations of ecological reserve areas should be made,y based on the following criteria (areas meeting morethan one criterion may be especially important): (1) restricted natural communities--ecological areas which are scarce, involving only limited area; (2) rare and endangered wildlife species habitat; (3) rare and endangered plant species range; (4) specialized wild- life habitat; (5) outstanding representative natural communities; (6) sites with outstanding aestheticor educational value; and,(7) wilderness or primitive areas. The coastal agency should be adequately funded to inventory natural habitat areas and to establish the acreage needed to support the resident population of plants and animals so that additional reserve areas can be appropriately designated. Sites should be large and nlznerous enough, and appropriately located, to ensure that vegetation and wildlife will not only survive but thrive, that the genetic health and diversity of plant and animal species will be sustainedt and that the catastrophic effects of a major fire or flood would be minimized. [L-Pil Regional Amplifications Central Coast: As an alternative to public ownership, sites of scientific importance can be protected by the establishment of private preserves where appropri&teg.as within Del Monte Forest. The existing system of tracts so protected could be rounded out with the addition of remaining undeveloped old growth Monterey Cypressest the balance of the Gowen Cypress-Bishop Pine grove on Huckleberry Hill, habitat areas for the endangered dune wildflowers (Menzies Wallflower and Tidestrom's Lupine), perhaps a remnant of the unusual brilliant white silica sand dunest and several major archae- ological sites. ER-PlRAI All the remaining Flandrian and recent dunes (as mapped by Cooper, 1967) shall be preserved to the greatest extent possible through acquisition or other methods. [L-PlRAI Elkhorn Slough and its 'environs, and the southern portions of the slough system composed of Moro Cojo and Tembladero Sloughs, should*be fully protected by'public acquisition and carefulmanagement. [L-p2RA1 -129- South Coast: The reserve system'shall be expanded to embrace significant headlands and associated isletsq rocky intertidal areas@ submarine canyonsy kelp forests and submarine banks. Areas of' highest priority are: (1) along 01 the Malibu coastv from the County line to.Malibu Point, including kelp beds, islets and reefsv rocky intertidal areas, Point Dume and Dume Canyon. Selected intertidal areast kelp beds, and reefs shall be designated a's natural.reserves and limited to scientific and research use, to natural stock replenishment and to carefully controlled public observation. A kelp forest interpretative program shall be established to expand public and school appreciation of the high productivity and public values of these submarine forests. This program shall include self-guided underwater tours, tours conducted by marine naturalists and onshore displays and exhibits. Management and protection of the marine environment here and on the Irvine Coast shall be closely coordinated with management of the shore and uplands. Proposals for a State or national mountain-marine park shall be supported; (2) along the Central Orange County or Irvine coast, from Cameo Shores to Abalone Point, including the kelp beds, the sandy and rocky Intertidal zones, Pelican and Reef Voints, and reefs and islets. A combined land-marine park system shall be established; (3) the Palos Verdes Rocky Shore Reserve between Resort Point and Point Vicente (proposed for use within the University of California Natural Land and Water Reserves System). The scenic and natural values of the rocky intertidal area along Portuguese and Inspiration Points shall be incorporated into compatible open space uses for the Portuguese Bend Land- slide Area; (4) the intertidal and nearshore environment along Catalina and San Clemente. Selected kelp beds and reefs shall be designated as natural reserves. All islets shall be protected as sanctuaries for sea- birds and marine mammals; (5) a public observation and interpretative center at Crescent Bay Point in Laguna Beach. Marine life on Seal Rock including sea lionsv shall be protected from human disturbance; and (6) a public scenic overlook at Dana Point and San Mateo Point. [M-plORA] 89. Manage Reserves for Resource Values. All potential reserve areas should be managed for optimum natural resource valuesland habitat values should be restored and enhanced. EM-PlOcl Every effort should be made to provide public access for educational and recreational purposes. [R-plOd] Information and inte rpretation programs should be initiated or expanded where appropriate, with supervised or self-conducted toursy public education and school instruction, and signs to encourage proper use and enjoyment of marine and coastal land natural resources. [M-plCb and R-plOe] County school offices should be consulted to recommend deve lopment of educational components in the planning of reserve areas. [R-pl0f] However, public access and recreational uses should be restricted and controlled as necessary to protect the natural or historical resources. -130- [R-pl0d] Unique and fragile biological communities should be protected as scientific and educational reserves, with limited public access. [M-piol go.. Establish a Coastal Reserve Board. A coastal reserve board shall be formed to assist the coastal agency in coordinating the establishment of the reserve system. [R-pl0b] Specifically: a. Board Should Review Acquisition and Management Programs. This board shall review the recommendations of the Comprehensive Ocean Area Plan and other relevant reports, suggest additional areas to be includedt develop plans and strategy for acquiring and maintaining reserves, facilitate coopera- tion and coordination among rel evant organizations and agencies, explore means for financing the acquisition program, and monitor the management of the reserves., [R-p.10b] b. Composition of Board... Th,e board shall have.a membership that includes educators, biologists, coastal engineerst ecologists, geologists, paleon- tologists, geographers, archaeologists, historians, recreational planners@ coastal plannersp and representatives of public.and private organizations and agencies involved in acquiring.and managing reserves., [R-pl0b] Coastal railsSWem FINDINGS Increase Accessibility to the Coastal Zone Through Coastal Trails Syste A system.of coastal-trails, (including waterways, valuablefor rafting, canoeing, and kayaking) and overnight shelters for hikers, bicyclists I, and equestrians would make more of.the coast accessible to more people,t would.link population centers with recreation facilities, and would allow people to enjoy the scenic qualities.of the coastline. Coastal trails being plannedand,developed by public agencies will be coordinated and linked into a State coastal trails system as part of,the California trails syst.em. plan being-prepared by the State Department of Parks and Recreationt which will coordinate the overall trails system with local and,regional,agencies.and.orgai-d-zations.I [R-f1O] -131- Increase Bicycle Riding Facilities in the Coastal Zone. Bicycle riding is an inexpensive, non-enviromentally degrading transportation alternative that is also a form of recreation in itself. Although bicycles can be used on existing roadways, mixed bicycle-auto traffic is often dangerous to riders and can ad- versely affect traffic flow. Increased bicycle use in the coastal zone should be strongly encouraged by giving high priority to the construction of special bike lanes, the provision of bike storage racks at coastal destinations, and the modification of transit vehicles to.,accommodate bicycles. [T-f12] (See also the Transportation chapter.) POLICY 91. Establish a Coastal Trails System. Hikingg bicycle, and equestrian trails should be established as a continuous system along the co'ast2 consistent with the general planning concepts and safety and design standards developed by the California Department of Parks and Recreation. To this end: ER-p8 and T-pl5l a. Public Responsibility for Trail Development. The Department of Parks and Recreation should be adequately funded to coordinate the implementation, maintenance2 and policing of the State coastal trails system, and should be empowered to use eminent domain to acquire the trail rights-of-way where all other means of securing access fail. [R-p8k] Individual trail segments should be connected over State coastal trail routes (to be designated in'the final Coastal Plan in cooperation with the State Department of Parks and Recreation, the California Department of Trans- portation, other public agencies, and the general public.) [R-8pc] Public agencies should develop coastal trail segments through areas along the coast within their ownership or jurisdiction. [R-p8a] b. Best Locations for Coastal Trails. Priority should be given to establish- ment of trail systems in and near urban areasq with connecting links established as demand and resources dictate. [R-p8b] 'Where appropriate, the coastal trails system should connect existing inland and beach access trails, parks, and historic sites. ER-p8d] The routes should utilize features such as ridgetops, wide beaches, abandoned railway beds, and unused roadways. [R-p8c] To protect agricultural lands, trails should -132- be located between fields and along existing farm roads9 and should cross croplands only where there is no feasible.alternative;. provisions such as fencing and harvest season detours should be made to protect farm products. ER-p8e] ca Design of Coastal Trails. The trails system should be designed to accom- modate only hikersq bicyclistsg and equestrians. ER-p8h] Bicycle paths should be separated from the road, where possible, but bicyclists should not thereupon be barred from the road. Overpasses, underpasses, or other safe means of bike crossing should be provided where necessary. Existing roads where bikes.share right-of-way with autos should have a maintained bike lane on each shoulder of adequate paved widthy and unsafe storm drain grates should be replaced; bikes should have exclusive use of, this lane except when autos are pulling off the road or making turns. [T-P151 Speci-al trails,'such as Braille trails and paved paths for wheelchairs, shall be developed to provide access to various coastal habitats for physi- cally handicapped persons. IR-P141 d. Provide Campgrounds and Other Facilities. Campgrounds with basic neces- sities should be provided at*appropriate intervals along the coastal trails system, and camping should be,restricted,to these.designated areas. @A well-planned hostel system should be included in the trails system. ER-p8g] Coin-operated lockers, bicycle racks, or other safe means for storing bicycles should be provided and maintained at designated are as along the trails system.- ER-p8i and T-pl4c] ei. Require'Right-of-Way Dedication. The dedication of trail rigIhts-of-way shall be required as a permitcondition where the trail routes cross properties proposed for.*development, [R-p8j and T-pl4a] -133--!: Regional Amplifications North Coast: Consideration should be given to the possibility of using sections of old Highway 101 as a coastal bicycle trail. Another area where a bicycle trail could be useful is the Arcata bottomlands along the Mad River Beach Road. [R-p8RA1 South Coast.,'Where feasible pedestrian and bicycle paths shall be pro- vided between all beaches and other public areas to restore linked access to these areas where it has been interrupted by developmentp such as resid6ntialg commercial industrial, and automobile and railway trans- portation facilities. @A-pl?RAI Visual and physical access to the sea and to activities which border the sea in urbanized areas (areas U2 and UI) shall be predominantly focussed on paths for pedestrians or cyclists which allow visual access to congested or hazardous areas where public access i's not permitted (some harbor areaso refineries, some residential areas, etc.). In these areas access by auto- mobile shall, when in conflict with pedestrian or bicycle access, be subordinate. Such routes shall be designated as scenic bicycle paths or scenic promenades. [A-p14RA1 Existing trails leading to but not reaching the shoreline shall be so extended. New trails should be established in the Santa Monica Mountains to connect existing parks, open up inaccessible areas to hikers and equestrianst and to provide alternative routes to the sea. A trail route shall also be established through the Los Angeles Harbo're [R-p8RA1 Marinas FINDINGS Demand for Coastal Boating Facilities Is High, Boating is an enjoyable activity along the coast--both for recreation and fishing. The demand for boating facilities is so great that the berths planned for construction over the next ten years will barely cover the existing demand. [R-fll] Boating Facilities Can Be Environmentally Damaging. Boating facilities, however, 7an cause serious environmental damage from the extensive alteration of the marine environmenti especially by dredging and filling of coastal wetlands. Moreovert in boat maintenance areas where sanding and scraping of paints takes placep harm- ful pollutants may drain into coastal waters. (See Marine water quality section.) And exclusive.boating facilities can exclude access to the coast. ER-fll and new] Increased Boating Can Be Accommodated Without Adverse Effects. It appears possible to accommodate increased boating acti,@ity without serious environmental damage by encouraging more thorough use of existing boats and boating facilities, by developing more dry storage and launching facilitiesq and by building any, new marinas in areas less fragile than coastal wetlands. [R-f111 -134- 92. Accommodate New Boating Facilities Without Dredging,or Filling. The dredging or filling of coastal wetlands to accommodate new boating facilities shall be prohibited. [R-p9] New boating facilities may be permittedp where.they would not have significant, adverse effects, in natural harbors (e.g., sheltered areas in the deeper waters of bays, estuaries, and coves) orin new protected water areas (e.g., areas created by the dredging of existing low level dry lands or by the placement of floating wave barriers). All new boating facilities shall be consistent with Coastal Plan policies and local and.regional plans. (Potential sites will be designated in the final Coastal Plan by the Coastal Commission in cooperation with the Department of Navigation and Ocean Development, Department of Fish and Game, local boating expertst and marine scientists.) Each proposed alteration shall require a careful analysis with the final determi- nation made on the basis of the long-term environmental effects. [R-p9e] Regional Amplification South Coast: The short term rental of small boat craft, such as snipes and lightnings and other small craft, shall be encouraged and should be provided in existing and proposed boating areas. While there is insuf- ficient information at this time, marina proposals which appear to have the least potential for adverse impact are the Dana Point Marina expansion (900 berths in the west basiri)v and 'the Long Beach Harbor Marina (39000 to 4,500 berths). Consideration of the Cabrillo Marina should be post- poned until a community plan is prepared for the San Pedro area. If the new plan calls for the.retention of existing low-density and neighborhood character in the Cabrillo Beach area, then the Marina must be reconsidered in the context of its effect.on those community goals. Minor marina expansions such as proposed for Alamitos Bay and Marina del Rey may be approved provided some maximum capacity figure is established and 'accepted by the Coastal Commission. Because Paradise Cove is the only boating, facility offering protection from storms from Marina del Rey to Port Hueneme in Ventura County@ its mooring capacity should be increased by 50 to 100 spaces. There should'also, be -some mooia';ng'capacity..in'crease,,-at Santa Catalina Island and San Clemente Island. Marina proposals at the Santa Ana River mouth and Bolsa Chica require large reductions in scale before the ould be compatible with wetland preservation and restorati6n@- goals. [[email protected]] 93- MAJdmize Use of Boatin& Facilities. The.present and.future nee.d for new c.oast&l boating facilities shall'be.reduced by,use'of 'methods that wo.uld'not have -135" significant adverse effect on the environmental quality of the coast. Such methods may include: (1 ) developing' dry storage areas and-stacking devices with nearby-public launching to the greatest degree possible in all new and existing harbors; (2) increasing the number of public launching facilities; (3) providing additional berthing space in existing harbors; (4) limiting nearby non-water-dependent land uses that congest access corridor's and overtax boating support facilities; and (5) maximizing the use of each boat by encouraging the multiple ownership of boats, by giving priority for slip'rental in existing small craft facilities to boats available for rent to experienced boaters (i.e., those individuals who have successfully completed U.S. Coast Guard-recognized boat operation courses), and by giving priority for the use of public funds for the expansion or development of small 'Craft harbors to facilities that have devised acceptable systems for encouraging rental and multiple ownership of boats. [R-p9a1btc1d] 94. Provide Public Access to Marinas. 'The maximum recreational value of existing and future marinas shall be achieved by providing the general public with greater access to in-water marina facilities (e.g., pierst.floats)g consistent with necessary security and public safety precautions. (Appropriate agencies and leaseholders should participate in resolving safety and security problems.) Designs for both new marinas and expansion projects shall include in-water facilities designated for use by the general public. [R-p9f] Financing Coastluftl Recreation FINDINGS Additional Funds are Needed to Finance Coastal Recreation. The California Depart- ';ent of Parks and Recreation has estimated that it would cost over $1 billion to acquire, protect, and develop coastal public recreational facilities needed by 1980. Projections indicate that the demand and price of lands for'public recrea- tional pursuits will continue to escalateg commensurate with the competition for coastal locations by other land uses. The public funds available for recreational projects that have traditionally been insufficient to meet past needs have been further reduced by the enactment of the Federal Revenue Sharing Act of 1972. -136- Potential Sources of Funds, The following are potential sources of increased funding for coastal recreat ional facilities: [R-f!41 (1) The Federal Land and Water Conservation Fund, which derives mu ch of its revenue from the coastal zone in the form of royalties paid to the govern- - ment for the extraction of minerals from offshore lands. (2). Local governments, which could use more of their funds available through the Federal Revenue Sharing Act for coastal recreational projects. (3) The 1973 Federal Highways Actf which provides up to $2 million per year for three years for bicycle facilities. (4) New State programs which might include: (a) a bond act to purchase large portions of the coastal zone with a leaseback of those areas not neededfor recreation to help pay off the bond; (b) tapping the revenues generated by mining, kelp harvesting, and the resumption of oil drilling in State-owned tidelands (if such drilling is allowed); or (c) a special real estate transfer tax on the sale of coastal properties. (5) The California Environmental Protection Program Fund, which is supported' by fees for personalized environmental license plates, provides up to $3 million per year for environmental projects. (6) State grant programs such as that provided in AB'3927 (1974) which would have provided $3 million from the General Fund enabling cities and counties to have the funds needed to fully complete a coastal trails system. [R-f 141 (7) State park system entrance and user fees. Some monies from other recreational use fees are available to the Department of Parks and Recreation for acquisi- tiont plannin& and development of the State P-ark system as a result of SB 1644 approved and-signed into law in the 1973-74 legislative session. [R-fl4RA] Beach Maintenance Costs Need Reevaluation. When local communities are responsible @or maintaining beaches used by the general public, the cost of maintenance is sometimes inequitably borne by the local taxpayers' (when public costs exceed the "return" to the local economy) while there is an inequitable economic benefit to people from other areas who do not share the maintenance costs and to the local recreation-related businesses which profit from the spending of -Ksitors to the coastline. [R-f151 POLICIES 95- Increase Funds for Coastal Recreation Facilities. Funds needed for public recreational facilities along the coastline should be provided. To this end: a. The Federal goverment should increase the maximum limit of the Federal Land and Water Conservation Fund by using the increased royalty income or higher value from the expanded extraction of offshore minerals to further support the fund and should earmark the increased funds for spending on coastal projects. (Refer also to-Part III.) -137- b. Special funding programs should be provided? such as.bond acts with purchase and leaseback provisionst dedication of State revenues from any extraction of mineral resources in State-owned.tide and submerged lands, or special taxes on the sale of coastal properties. C. The State,should allocate funds from the California Environmental Protec- tion Program Fund for,coastal recreation and reserves such as interpretive facilities and programs, archaeological surveys, or research on carrying capacity. A State grant program should be established to ensure that cities and counties will have adequate funds needed to complete portions of the coastal trails system in their jurisdictions. Legislation similar to AB 3297, which would have provided $3 million from the General Fund for this purpose and was approved by the Legislature but not signed into law in the 1973-74 legislative sessiont s'nould be enacted. [R-p12] 96. Establish Equity in Cost of Maintaining Beaches. Because local taxpayers can be inadvertently penalized when a local municipality is responsible for main- taining beaches used heavily by inland residents, countyv State, or Federal governments shall assume greater responsibility for paying some of these costs in communities where it can be established that this inequity exists. Legislation such as AB 3611 (which would have provided funds to help rectify this inequity and was passed by the Legislature but not signed into law in the 1973-74 legisla- tive session) should be reintroduced. [R-p131 0 Manqpw@aUon Transportation Planning and the Coast FINDINGS State Transportation Planning. Planning, for all modes of transportation in Calif or- nia is conducted -by the Department of Transportation (in the Business and Transpor- tation Agency), and by statutorily designated regiona'I transportation planning agencies (RTPAs). A statewide California Transportation Plan now being prepared by the State Department of Transportation will be presented for adoption to the State Transportation Board this year@and then.submitted to the State.Legislature by January 1, 1976. [T-fl] 1hphasis on Vehicular Transportation. Current State transportation planning still heavily emphasizes vehicular transportation facilities and, to some extent, airports. Port, railroadjand mass transit planning are still not given the weight necessary for truly comprehensive transportation planning. [T-fl] Inter-Agency Coordination Needed. The relationship between local and regional transportation and planning agencies is a source of'conflict in some areas, creating a need for interagency coordination. Additionally, local municipali- ties with State or Federal assistance, or through their own capital improve- ment programs, carry out their own street and highway improvement programs. In coastal areas, such improvements (by creating developments that increase traffic and parking) can often adversely affect coastal accessibility to resources of regional or statewide significance as well as the mobility in and among coastal communities. Factors Influencing Inter-Regional Policy Decisions. The level of urbanization, type of terrain, the traffic mix, and the influence of corridor traffic be- tween major metropolitan areas (e.g., San Diego-Los Angeles) are crucial factors-in making inter-regional policy decisions. [T-f 15.1 Traffic'and Parking Congestion Critical in Coastal Zone. A pressing trans- portation problem in the coastal zone is traffic and parking congestion. Congestion is actually a cluster of problems appearing in many forms: (1) workday rush-hour congestion in metropolitan regions; (2) weekendpholiday, special,eventstand summer recreational traffic-and congestion along urban and intercity coastal routes; (3) parking and local traffic congestion.in coastal communities; (4) decreased roadway capacity and safety resulting from conflicts between different types of traffic; and (5) increased air and visual pollution caused by slow-moving traffic. In addressing these problems., coastal transportation policy and planning must deal with the characteristics and limitations of automobile traffic in a high-use recreational area (includ- ing special recreational peak travel periods, longer average trips, and recreational trips where the experience of driving along the coast is an important part of the trip) as well as the effects of commuter traffic. [T-f4l -139- Strategically Plan Coastal Access Improvements. Transportation systems are needed to improve public access to coastal resources. But certain kinds of improvements to the transportation system may change the character of existing natural resource areas and may lead to the expansion of urban centers or the creation of new ones. Coastal access improvements of all types--roads, transit services, bikeways, and footpaths--must be strategically planned to serve the following goals: provision of public access to the oceanfront; service to resi- dential, recreational and commercial areas; and the protection of manmade and natural resources of the coastal zone. [T-f6l -Emergency Trans2ortation Needs Are a'Special Problem. The coastal zone has experienced blockages of roads and railroads because of slides and severe flooding. In 1964 the coastal area of Mendocino County was isolated for several days. Adequate airport facilities are important for search-and-rescue and forest fire-fighting operations. The Coast Guard provides boats and helicopters for emergencies along the coastline and harbor police and fire departments serve the port areas. Bus systems are an important means of evacuation. Communication among the operators of all emergency transportation systems is essential. Existing facilities are considered adequate for expected situations. ET-fl6l 0 POLICIES 97. Plans Should Consider Coastal Concerns. The coastal agency should par- ticipate directly in ongoing local, regional, and State transportation plan- ning to ensure that all transportation concerns (e.g.,weekend travel) and resource protection goals (e.g., air quality, energy conservation) of the Coastal Plan are considered in regional and State transportation plans. Principal concerns are as follows: [T-pla] a. Weekend, Holiday, and Special Events Travel Requires Special Attention. State laws that now require local, regional, and State agencies to prepare transportation plans should be modified to require the addition of a weekend, holiday, and special events travel component to the plans as they affect access to and within the Coastal Zone. ET-p2a] This component should be prepared by a technical study group composed of representatives of the coastal agency, the State Department of Trans- portation, Regional Transportation Planning Agencies, and local juris- dictions. The study group should determine the compatibility of Coastal Plan policies with existing transportation plans and should -140- -make recommendations for modification of transportation plans and the Coastal Plan, where appropriate, in order to ensure plan consistency. [T-p2b] b. Encourage Energy-Conserving and Non-Air-Polluting Transportation Forms. Transportation plans should include provisions for bicycle lanes and -paths and for public buses, trains, and:other energy-conserving-and non-air-polluting transportation modes to the maximum extent possible. The Legislature should mandate that the Circulation Element of local Gen- eral plans include a section on bike paths and lanes. [new and from E-P3b_l ce Consider Emergency Transportation Needs. Transportation plans should include consideration of emergency transportation needs. [T-P171 98. Review of Coastal Transportation Plans. The coastal agency shall review, nodify if necessary, and approve or disapprove those aspects of State, regional, and local,transportation plans for coastal areas that affect coastal resources or coastal access (e.g., roads and transit systems to and along the coast,, inland-to-coast.highway segments, ports, airports) as described in the Coastal Plan. ET-p1b] a. Permit Authority for Projects Included in-Approved Plans. Where a State, regional, or local transportation plan has been approved by the coastal agency, the permit authority over specific projects (within the coastal agency's jurisdiction) shall consist of requiring conformity to coastal policies through mitigating measures and shall not extend to denying projects where they otherwise conform to the Approved plan. [T-pic] b. Permit Authority for Projects Not Part of Approved Plans. The coastal agency should have the' authority to review, recommend changes inland, approve or reject proposals for transportation construction and development that directly affect c'oastal resources and coastal access that are not part of a plan Approved by.the coastal.agency. [T-pic] -141- Land Transportation HIGHWAY 1 AND COASTAL ROADS FINDINGS Multiple Types and Modes of Traffic on Coast. Along the urbanized coastline are many different types of traffic (commuter, recreational, local ' and a variety of traffic modes (cars, buses, trucks, bicycles) that all use the same road facilities. This combination of types and modes causes conflicts .that greatly increase traffic congestion..[T-fl4l, Roadway Capacity and Traffic Flow. Increased road capacity can initially work to reduce congestion on coastal roads, increase traffic flowi and im- prove the level of service. In many cases, however, expanded road capacity is absorbed by traffic generated by additional developments, so the resulting overall level of service is often not greatly improved and in some cases is diminished. [T-f2] Adverse Impacts on Highways or Coastal Resources. The automobile is the principal means of transporting people to the coast, but roads'can have adverse environmental-impacts on the coast. Poor construction methods can cause soil erosion, resulting in mud- and landslides, water pollution,flooding, and fire hazards, can reduce tidal flushing in coastal wetlands and lagoons, and can destroy natural-ecosystems. Valuable coastal land and beach areas can be taken for road construction. Auto-generated air pollution can be a sig- nificant problem in coastal valley areas. High noise levels create an un- pleasant experience for people and can also be harmful to wildlife. Some of the natural beauty of coastal areai has thus been destroyed by the con- struction of roads. [T-f51 Highways Induce Growth, IMpede Access in Some Coastal Areas. Development is most likely to follow highway construction when a new or improved road is pro- vided in a desirable area of the coast near a growing metropolitan region. Where-rodd improvements spur development by placing coastal areas within commuting distance of urban employment centers, such development can impede coastal access-for-all users in two ways: by decreasing the amount of potential recreational land available while increasing demand for recreational use in the immediate area; and by increasing traffic-loads on coastal roads, causing traffic and parking congestion problems. On the other hand,'new or improved roads are not as likely to spur additional development in congested already-developed areas, or distant rural areas, or where growth is effectively managed through direct land use controls. [T-f31 -Coastal Scenic RoaIds Need Protection. The State Scenic Highway Program was established in 1963 @o protect viewshed corridors along State scenic roads. In 1965, the California Legislature passed the California Parkway Act to complement the Scenic Highway Program but it was never funded. The Park- ways serve as "ribbon parks" giving access to a number of recreational areas along with preserving particularly unique scenery.. These ribbon parks are desirable in some areas of the.coast but the scale of the parks does not lend itself to all coastal areas. Therefore, a lesser-scale or-in-between type of-parkway is necessary, and could be encouraged by amending existing -142- legislation or d aftl w programs for parkway., r I nei serving parts of the coast. T-fq] all the various POLIC .IES 99. Relate Land Use Decisions to Transportation Caacity. IDevelopment controls should be the principal means of relating land use and coastal resource pro- tection decision Policies to transportation capacity. However, where the road system capacity is or should be limited based on coastal policies, Ia sysItem Of budgeting the remaining or Planned capacity should be developed so that private residential and commercial development will not limit public recreational and scenic uses of the c :oast al road system. [T-P41 a* Create Capacity Budget for Coastal Roads. A "capacity budget" should be determined for each through road.segment (existing, new or expanded as approved by the coastal agency) along the coast and intersecting with the coast. The Coastal Plan indicates the remaining capacities Of several coastal road segments and,to the.extent possible, balances this remaining,capacity with the traffic impacts of new.development so that a portion of theremaining*capacity -can be used for recreational access. For those areas of the coast.where-this has not been done the coastal agency shall budget the.,remaining capacities in accordance. -with the adopted Coastal Plan.. For development-impacted road segmentsi ..the coastal agency,should determine.*(l) levels of service needed for-- peak periods and normal traffic,..and (@) what portion of-capacity, ,given that level of servicej should be allocated-to the uses proposed. and.-what portion,should be - reserved-,for other public, and@. private uses. E.T-P41 b. Allocate Development According to Remaining Capacity. New development in the coastal zone"sh6uid 'be' 'evaluated with respect to the remaining road capacity and should not preempt that portion of the budgeted capac ity set aside for recreati onal ac cess and for coastal-dependent uses. [T-P41 Development that would overburden road capacities needed to accommodate public access to the coastline shal I not be built in coastal areas served by roads that are presently used to near capacity. [T-p6d] ce Preserve Scenic Nature and Recreational Capacity of Rural-Highway 1. Highway 1 in rural areas of the California coastline shall be kept a scenic two-lane highway. [R-p4a] Improvements shall be limited to those needed for safety and for developing vista areas, park.ingo and other amenities of scenic routes (see Policy 102)f ER-P4b] A substantial portion of the road's capacity shall- be allocated to recreational use,, and other types of development shall.rLotbe permitted to significantly draw on this capacity. ER-p4a] 100. Restrain Expansion of Coastal- Road -Capacity 'The construction or ex- pansion of coastal roads shall be given second priority to development of public transportation-and shall be allowed only where: [T-P31 (1) the project would not open coastal rural areas for development or would not allow for increased development except in accord with Coastal Plan land-use policies; [T@Ocl (2) existing roads are carrying,traffic volumes in excess of their assigned_.service volumes (capacity) and no alternate route is available or means of transportation is feasible; [T-P3d] (3) the project is necessary to provide public access to an important coastal resource and other means of meet- ing this goal (e.g., public transit, diverting non-coastal traffic) have been found to be infeasible; [T-p3a] or (4) the project is absolutely necessary for traffic safety and no other safety measures are possible. ET-p3b] (See also .Policy-43 regarding restriction of freeway construction in critical air areas.) 101. Develop Alternatives to Excessive Use of Coastal Routes,.Except where greater adverse environpental impact would occurv major.transportation routes and public transportation systems shall be located sufficiently far inland -144- to protect the scenic quality of the coastal road system @A-pl4b] and.to reserve Highway I primarily for recreational use. [R-P4c] Inland and.lateral routes should be improved and properly signposted to attract non-recreational through traffic away from coastal areas, consistent with the State Department of Transportation planning concept, now recently expired, which states, "Traffic which is not specifically oriented toward use of the coastal zone will be encouraged to use other nearby traffic corridors." ET-P51 Coordinated bus services, bus tours, bus lanes, carpooling, and segregation of heavy vehicles from regular coastal traffic shall als'o.be.encouraged to.reduce excessive traffic loads, as well as to reduce air pollution along coastal roads. [T-p121 Regional Amplification North Central: The improvement of lateral connecting links shall be considered as one means of providing coastal access without changing the design qualities of the coastal road system. Because portions of Highway 1 in Marin and Sonoma Counties are presently not adequate for good bus service and are difficult and expensive to improve, exist- ing east-west roads between Highway 101 and the coast should be utilized and improved to the minimum extent necessary for bus transit serving the coast. [T-p3RAJ 102. Maximize Recreational and Scenic Value of Highway 1 and Coastal Roads* The recreational use of coastal Highway I and other coastal roads shall be maximized and their value as scenic roads, especially along the rural coast- line, shall be protected. [R-P41 New and existing roads along the coastline with expansive views of the coastal waters shall be regarded as scenic routes. [A-pl4al Toward this end: a. Establish a Coastal Scenic Parkway ProgEam. A Coastal Scenic Parkway Program should be established in conjunction with the State Scenic High- way Program, as provided for in State law. State Highway 1 and all eligible State highways and county roads within the coastal zone should be designated as part of the Scenic Highway Program, and, where applicable, -145- the Scenic Parkway Program should be instituted. Particular emphasis should be placed on protecting the highway corridor in scenic areas. [T_P91 b. Use Shoreline Land Acquisition Law. The State law which gives the State Highway Commission the authority to acquire shoreline property, between the mean high tide line of the ocean (including bays and esturaries) and a State highway up to 300 feet, should be vigorously utilized where appropriate. Thislaw should be amended to enable the acquisition of all the area between,the highway and the mean high tide line. [T_p93 C. Provide Roadside Recreational Amenities. Funding should be provided for additional roadside parks, information centers vista points,and rest stops, including picnic grounds, drinking water, and rest rooms. [T-p9 and from R-p4b] Parking shall be on the inland side of the road wherever safety permits, with safe pedestrian access prpvided to the coastline wherever possible. [A-Pl4a] To protect-the visual experience of traveling along coastal roads, as adequate off-road parking and roadside view areas are provided, parking shall be prohibited along the seaward shoulder; . ER-p4b] Provisions shall be made where feasible along all such scenic routes for pedestrians, equestrians, and bicyclist. [A-P14a] d. Design Standards for Scenic Coastal Roads. New and existing scenic routestincluding roadways along the coastline with expansive views of the oceanishall be designed, constructed, and maintained with the highest regar d for aesthetic considerations. Bridges, overpasses, parking areas, guardrails, and other such transportation and roadside facilities shall be integrated into the natural landscape so as to complement and enhance the surrounding area, and to retain scenic views and vistas. [A-pl4a] These facilities shall be harmonious with the scale and character of the existing road axfd/or any improvements suggested in other Coastal Plan policies. .[T-pg] Small-scale elements such as lighting fixtures, -146- directional signs, street furniture, and landscaping materials shall be designed to visually identify coastal roads and to help orient coastal -viewers. [A-Pl4a] ee Regulate Development Along Scenic Routes. Viewshed and roadside controls shall be required to protect the. scenic qualities of roadway scenic corrid ors. [from T-p9RA] (See also Appearance and Design chapter.) f. Prom ote Coastal Highway Tour Bus Service. To reduce automobile traffic on Parkways and scenic routes, attractive tour bus service, on the model of the European tour bus system, sh ould be vigorously promoted. IT-p9] (See Policies,107-111 regarding public transit.) g. Provide Public Information on Scenic Routes. Information on the scenic corridors shallbe made available to the Automobile Club, bicy cle clubs, YMCA, YWCA9tourist organizations, etc. [A-pl4RA] Regional &Rlifications 10 Central Coast: Route 1 between Carmel River and San Simeon, and be- tween,Half Moon Bay and Santa Cruz, should be kept a scenic two-lane highway. Through legislative action, these segments of Highway 1 should be designated as the Big Sur and Portola State Parkways respective- ly, and would link many other existing and planned State park units. These portions of Route 1, as well as the Devil's Slide area between Pacifica and Montara, should be viewed as linear parks. IR-P4RA] South Coast: A coastal scenic route shall' be established, to include special signst markersq.rest stops, and vista points equipped with informational signs identifying landforms and landmarks in the view. Some information centers.shal-I be established.. The scenic.route should be continuous, uninterrupted, and cover the entire South Coast Region. The alignment chosen should maximize the view of the ocean, flora ah.d faunag coastal geologyv physiography@ as well as the social ecology, activity settings and extractive uses of.the coastal land., The alignment should include unique.scenic@areas, vista points9 and panoramic view areas. Wherever possible the same scenic corridor should include pedestrian paths9 bikewaysj,and@navigation routes. for small- boats. .[A-pl4RA]@ San Diego: In addition to scenic highways which are currently de- signated or proposed in San Diego County', old-Highway 101 between Oceanside and Mission Bay should be so designated. [T-p9RAI -147- 103- Restrict Road Access to Sensitive Areas. Environmentally sensitive areas shall be served only by roads of rural character, trails, or board- walks if appropriate. In some areas, no access may be desirable. De- cisions on road improvements and capacity increases in these areas must be based primarily on the suitability of the area to increased access rather than on the desire of users for more convenient access. [T-P81 where information is available to determine the environmental carrying capacity of a coastal resource (see Policy 86), the designed capacity of roads, parking areas, and other support facilities shall be kept within the environmental carrying capacity of the natural resource. [R-p5d] Where use limits are required, and where increased automobile traffid,cannot be accommodated with- out adverse consequences, public transit or trails should be the exclusive means of access." . [T-p8] 104- Regulate Road Construction to Minimize or Eliminate Impacts. Road construction shall be permitted only if adverse environmental, social,-and econ mic impacts have been eliminated or'-minimizede CT-P7] sandy beaches and environmentally sensitive areas, including but not limited to coastal water or wetland areas or estuaries shall not be significantly disturbed or displaced. CT-p7a] Significant historic or archaeological sites shall be protected. [T-p7c] Significant marunade assets.of coastal communities shall not be significantly disturbed or displaced. [T-p7d] Mitigation measures for all other impacts...shall, be employed in planning, design, and construction of new or expanded roadways, [T-p7e] including minimizing interference with natural drainage patternsg [T-P7b] and the need for cutting, filling, and grading for roadway construction, in accordanc e with Policy 57. [from A-p9] .-148- PARKING FINDINGS Adverse Impacts of Parking Facilitiesi The demand for parking facilities is high along the coastline, but additional parking facilities would generally have negative environmental impacts and consume scarce coastal land. Encouraging automobile traffic as a form of local transportation may be detrimental to the overall quality of the coastal zone environment, causing air andnoise pollution and the loss of visual and environmental amenities. Where parking is inadequate, however, cars spill.over into surrounding streets and neighborhoods, or onto the shoulders of hi hwals-, causing congestion and impeding public access to the shoreline. Shuttle Systems to Reduce Shoreline Parking Needs. Shuttle systems, by acting as collectors from remote parking areas or transit transfer,points, can great- ly reduce the need for parking along the immediate shoreline. Shuttles can also be used to provide exclusive transit access to.areas thatare environ- mentally fragile or overused. Care must be exercised@ however, for it would be possible for the.remote parking reservoirs themselves to have detrimental environmental impacts. FT-f8] POLICIES C 105- Minimize,Impact of Parking Fa ilities The adverse impact of parking facilities upon coastal visual resources shall be minimized while allowing for increased public access for the enjoyment of theseresources. [A-p141 a. Use Shuttle From Remote Parkin& Areas If Possible. New shoreline parking facilities shall be allowed only if it can be demonstrated that shuttle bus service or other transit alternatives from remote park- ing areas is not a practical means.of meeting the public access require- ments. Shuttle bus service from remote parking Areas should be institut- ed at peak periods, along with encouraging the use-of existing but underutilized,parking facilities. [T-pll] b. Design Standards for Parking Facilities. Wherever possible, parking facilities shall-not be located on.the seaward side of the coastal road. Where appropriate, parking shall be consolidated for joint use by sur- rounding businesses and neighbors, and shall be below grade or under- ground, or in multi-story structures to prevent large, obstrusive lots, -14.9- and shall be attractively designed and buffered with landscaping, berms,,. or other attractive screening materials. Where improved on-grade park- ing lots are permitted,in addition to similar berms or buffers, they should generally have trees planted throughout the lots. [A-Pl4c] 106. New Development Must Fully Meet Parking Needs. New, intensified, or expanded public or private coastal development shall be permitted only if: (1) adequate parking facilities are provided to meet the demand generated by the development [T-plO] (in residential projects, one parking space per studio un it, 1-1/2 spaces per one-bedroom unit, two spaces per unit of two or more bedrooms, and one space per hotel or motel unit, may normally_be re- garded as minimum requirementst though a higher standard may be required in areas with serious on-street parking problems) [A-pl4RA];or (2) access by public transportation replaces the need for private vehicles and parking spaces to accommodate them. [T-plOl PUBLIC TRANSIT FINDINGS More Coastal Transit Is Needed. Transit systems are presently used very little to gain access to and through the coastal zone, especially for recreational trips. Coastal transit systems could help reduce congestion and pollution and help provide coastal access to those without cars and those who wish to avoid the-problems of traffic congestion and limited parking, though some improvement in roads may be necessary to accommodate improved bus service. Ninety per cent of the public demand for recreation is generated within two hours driving time of metropolitan areas, therefore this is where there is the greatest need for public transportation. Existing bus systems could provide service in metropolitan coastal regions throu h weekend use of idle vehicles. Pre- sent.service is currently limited and& inadequate in most coastal areas. [T-flO] Rail Passenger Service on Coast Is Increasing. Railroad passenger service to and along the coast, now provided almost exclusively by Amtrak, was on a - steady decline from the 1920s and 30s but has been increasing since 1971 along with the public's desire for effective mass transit. New coastal passenger railroad service is being proposed but limited funding is available. [T-f131 Problems of Coastal Transit Travel. Problems of transit travel on the coast, including recreational travel, include: (1) inconvenience due to time re-- -150- quirements for home todestination trip, frequency oftransit service, inflexible schedules7 difficulties in traveling with children and the use of vehicles not equipped to carry recreational equipment; (2) high farebox charges, es- pecially for groups and families; and (3) lack of personal mobility at the destination. While it is clear that transit operations cannot always sub- stitute for coastal automobile travel, transit improvements-e.g., improved capability for handling recreational gear and expanded schedules-could increase transit use. [T-f111 Need For Funds For Transit Operations* Mass transit generally cannot pay for itself with fares alone. Although it has long been established practice for government to encourage automobile travel systems through highway construction, government support for mass transit has been limited. While transit's major financial need is for operating costs, State and Federal subsidies provide primarily for planning and capital expenditures. Labor costs constitute the major portion of costs for bus transit, and the problem is compounded by the need for weekend service when labor costs are higher. [T-f7 Possible Sources of New Funds. New sources of funds could include placing responsibility on major traffic generators (e.g.9 by requiring contributions to transit service), assumption of some costs by other agencies that have jurisdiction in coastal areas (e.g4, park and recreation agencies), or sub- sidizing transit through charges on automobile travel (e.g., gasoline taxes, license fees, parking taxes). ET-f7l POLICIES 10,7., Provide New Funding for Coastal Zone Transit. New sources of funding for the necessary expansion of public transit in the coastal z1one should be provided, with emphas'is on su'bs'idies for extensions or upgrading of such service and providing operating costs and increased user conveniences (e.g., bus shelters). High priority in the allocation of transit funds byAransportation agencies should also be given to': (1) feasibility studies for alternative transportation systems in the coastal zone; (2) seed.money for, the establishment, of new transportation services to serve the coastal zone.;,and (3). demonstration pro- jects for new service,, with emphasis on innovative approaches that will maximize access while protecting coastal resources. [T-P141, 108. Establish Priority of Transit Over Roads for Cars. Public transit should be given' priority over new or expanded roads for automobiles,particularly: (1) where public transit' is most economically feasible, due.to high population -15 1- cIoncentrations and concentrated recreational uses, and/or where existing transit districts or facilities could expand weekend service; (2) where present highway or parking facilities are congested and public transit could provide additional access without the adverse effects of new roads and parking; (3) to provide exclusive access to fragile coastal areas, in order to limit the amount of use; (4) to link all coastal communities currently lacking such connections, especially northern California coastal communities with the San Francisco Bay Area; (5) where existing rail right-of-way or service could be improved to'provide increased access to and along the coast;ET-P12] or (6) where critical air pollution levels either exist or are projected. ET-P131 log. Expand Transit in Urban and Critical Air Areas. Public transportation in urban areas and in critical air areas should, be developed, improved, and expanded in order to lessen dependence on the automobile for access to the coastline and in order to reduce air pollution levels- ER-P3 and from T-pl3l Toward this end: a* Provide Remote Parking with Shuttle Service to Coast. Public transporta- tion to coastal beaches should be provided from existing centralized parking lots when available, such as at schools, shopping centers, drive-in theaters, or offices during peak recreational use periods. Public transit authorities should inves tigate means and scheduling to implement such sys- tem. [R-p3a] Where it is physically possible to do so, upland parking facilities should be provided, linked to coastal recreational facilities by trails, shuttle buses, or trams. (See also Policy 81.) ER-p3b] b. Improve and Expand Bus Service. Coordinated bus service and tours, bus lanes, dial-a-bus service, jitney service to and from the coast, and intracity shuttle loops should be developed. [from T-p131 Commercial recrea- tion and support facilities should be clustered and multi-use complexes that can be served by public transit facilities. [R-p3c] -152- co Design Bus Service for Recreational Users. Public transportation should include accommodations for'the'phy .sically handicapped, bicycl ist s,surfers divers, and others with bulky or specialized equipment, and weekend schedules should be established with specific stops and pickup points de- signed to serve recreational users. [R-p3d] 110.. Encourage Expanded Rail Service. Amtrak and the rail companies should be encouraged to expand inter-city passenger rail service along most existing rights-of-way in the'coastal zone. a* Protect Rail Rights-of-Way. An inventory of all existing coastal rail@- road rights-of-way shall be made and all rights-of-way usable for rail- road passenger travel shall be preserved for future rail service. No use should be made of these rights-of-way that would preclude-their use fo r some form of transportation. [T-p161 b. Link Rail Service with Other Transit. All passenger rail service should be connected with public transit that provides door-to-destination service. ce Regulate New Construction and'Service Changes. Modifications of train service., new construction, or alterations- in alignment shall be in ac- cordance with the goals and policies of the Coastal Plan., [T-p16l Regional Amplification Central Coast: Future options for the reestablishment of coastal railway service to Monterey and Santa Cruz counties shouldbe maintained by pro-: tecting existing rail corridors to-the nearest.Amtrak mainline connections,. as well as along,the Monterey-Davenport coastline and through the San Lorenzo River canyon. . [T.4p16AAJ San Diego: Expanded and improved train serniices.could be .provided along much of San Diego County's coastline, with relatively'small adverse coastal environmental impact. Such passenger rail service should be care- fully considered as a part of.the regional transportation plan, to.serYe as a major mode for accommodating future coastal.travel d6mand.,'Such consideration should also examine the contingency qf,rail improvements in the event a rapid,transit,system is not accepted by the voters of the San Die.go Region. [T-p16RA] -15.3- Ill. Develop Uni ied, Comprehensive Transit Schedules. The coastal agency shall work with the variety of public and private companies (e.g., Greyhound, Peerless, Amtrak, local bus lines), which are sometimes in competition with each other, to develop unified, comprehensive, and convenient schedules show- ing access to the shoreline. These schedules should be distributed in areas where people are likely to use transit facilities to the coast (eeg., San Jose, San Francisco, Salinas) and especially to schools and senior 'citizens' centers since the young and old are particularly dependent on public transit. [T-p12] AirTransportation FINDINGS AiERorts Consum@, Large Amounts of Coastal Land. By their very nature, and ,especially with new requirements for noise buffer areas, airports consume large amounts of land. Satellite business and industry also can consume large amounts of land, especially at the larger airports. ET-fl7a] Airport Noise Has Severe Impacts. The most severe environmental impact of airports and air travel is their noise impact, particularly on residential and recreational coastal areas. This is most severe in the cases of Los Angeles International Airport and Lindbergh Field in San Diego where there is intense urban development around them. To mitigate this impact, the State Department of Aeronautics has established Community Noise Equivalent Level (CNEL) standards with target dates for their attainment. For new airports, no residences may be located within 65 CNEL contour projected for such airports. On the other hand, airports located on or near the shoreline do offer over- water takeoffs and landings, which reduce's noise impacts on the adjacent urban areas. Existing airports must reach the same standard by 1985. [T-fl7b] Airports Generate Surface Traffic Congestion. During peak periods, airport- generated surface traffic.congestion can compete with coastal recreational traffic. ET-fl7c] Airports Could Be Located Inland. Considering airports land requirements, the scarcity of coastal land, Zd the nondepen ency of airports on coastal locations, there appears-to be strong justification for locating airports away from the coast in favor of more coastal-dependent or-related uses. No new coastal airports are now foreseen by airport planning agencies with the pos- sible exception of a site at Pebbly Beach on Catalina Island. ET-f171 15.4- POLICIES 112. Policy on Future Aiport Sitin&. Because no new airports are proposed by airport planning agencies in coastline or offshore locationsq the Coastal Plan makesno provision for them. If a substantial need for-a new airport in a coastal or offshore location should arise in the future, the coastal agency should develop siting criteria in cooperation with the State Department of Transportation addressing the possible adverse impacts airports can have on coastal lands, residents, and other coastal users (e.g., consuming of large amounts of coastal land, noise, generation of airport-related surface traffic) and adopt them, after public hearing, before considering any specific airport siting proposals. [T-p18] .(If possible, this will.be done prior to adoption of the Final Coastal Plan%-) 113. Limit Expansion of Coastal Airports. Landfill and other land expansion of existing coastal airport facilities shall be permitted only if the applicant can de'monstrate that (1) there is a need for expansion that cannot be met through more efficient use of existing facilities, or through other transpor- tation systems; and (2) all other means of expanding have been evaluated and are unacceptable because of economic, environmental, and social costs. ET-p18] Where permitted, any such expansion shall be consistent with all other ap- plicable Coastal Plan policies (particularly replacement for* filling of wet- lands, -and minimum impact on agricultural lands, scenic, habitat, and'recreational resource areas). Regional Amplification San Diego: Because the future of Lindbergh Field and Ream Field.is some- what uncertain, expansions of existing coastal I airports in the San Diego Region shall be allowed only as interim measures which would insure their efficient operation, pending the final decision concerning the ultimate location of the San Diego regional airport and the maximum feasible con- solidation and elimination of non coastal-dependent military air operations. Any propo6ed expansions should: -155- (1) Not increase the total area encompassed by the airport boundaries; (2) Not intensify the adverse environmental impacts which the existing airfields have;. (3) Increase airport efficiency and.accommodate larger quieter air- craft which would reduce the total number of flights; (4) Be of such nature that they can be ea sily amortized over the useful life of the.airport. Further, a continuing planning effort should be undertaken to accommodate the replacement of Lindbergh Field as the regional airport and establish- ment of the new regional airport at a site less damaging to the coastal environment. [T-p18RA 114. Provide Public Access in Some Airport Buffer Land. Coastal airports with large amounts of adjacent buffer land that may contain areas suitable for recreation and/or environmental preservation in conjunction with coastal waters (such as Los Angeles Airport, Lindbergh Field, and Santa Barbara Air- port at Goleta) should provide public access, where feasible, and recreational amenities, including bike paths, hiking trails, scenic turnouts, and viewpoints. Any public access to natural habitat areas on airport property that is provided shall be consistent With the carrying capacity of such areas. [T-p201 115. Airport-Related Transportation and Parking. Airport ground transportation and parking facilities serving existing or proposed airports shall not be permitted to lower the level of service or budgeted recreational capacity of surrounding street, highway, or freeway systems that serve the coastline. Further, mass transit systems, regional airline bus terminals, jitney servic e, and park-and-ride lots shall be encouraged to provide transit alternatives, replacing the need for the private car, and to reduce traffic congestion and vehicle eimissions at coastal airports. [T-pig] -156- Water Transportcoftion FINDINGS Economic Importance of Ports. The ports of California are major economic enterprises that serve major import, export, and domestic waterborne commercial needs of California and the nation. Directly and indirectly they provide a significant proportion of the,jobs and income of the State. Because of the economic importance of port facilities, necessary port growth and development should proceed, but in a manner that minimizes damage to the coastal environ- ment. [T-f18] Exclusion of San Francisco Bay from Coastal Zone Planning. The California Coastal Zone Cons;7ation Act of 1972 (Proposition 20) excluded from the ,jurisdiction of the California Coastal Commission the San Francisco Bay region, one of the State's major port areas (including the ports of San Francisco and Oakland),because this area was already under the jurisdiction of the San Francisco Bay Conservation and Development Commission (BCDC). Statewide port policies would have an impact on the relative competitive positions of all of the State's ports, including-the San Francisco Bay ports. The BCDC is present- ly involved in a regional port planning effort with the Metropolitan Transpor- tation Commission (MTC). Coordination of these efforts with the Coastal Commission planning is necessary to ensure the development of compatible regional port policies. [T-fig] Competition between Ports Can Result in Overbuilding. The major California ports are public agencies that compete with each other for cargo and business. Such competition can result in overbuilding and underutilization of port ter- minals, as each port tries to capture the most cargo and to keep pace with changes in shipping technology. Renewal of existing port areas and increased efficiency of port operation could obviate many of the current plans for port expansion* [T-f22] Unnecessary Port Development Results in Environmental Damage. While the pre- sent system has resulted in competitive rates and modern facilities for ship- pers, it is not able to adequately take into consideration the environmental impacts that may result from unne 'cessary port development. As explained in detail in the Marine Environment ohapter,-dredge and fill operations to develop or maintain ports can have significant adverse environmental impact on marine resources. [T-f22] Analysis Needed to DetermineFuture Port Development Needs.- An updated analysis of future California commodity flows is necessary to adequately as@ sess the need for port development. The Army Corps of Engineers is presently 'conducting such an analysis for the entire West Coast as well as a more de- tailed study for the-Los Angeles-Long Beach and San Francisco Bay port areas. [T-f2l] Existing Ports Are Underutilized.! Although there are no generally agreed upon estimates of thecapacity and present degree of utilization of California ports, the existing major port complexes on San Francisco Bay and San Pedro Bay (ports of-Los Angeles and Long Beach and.Port Hueneme) appear able to handle much more traffic than they do currently. It is estimated that Hum- -157- boldt. Bay! s,pQrt facilities, are used at only 20 to 35 per cent of capacity and that San Diego, s port operated at only 37 per cent of its capacity in 1973-74. The Maritime Administration in the U.S. Department of Commerce is now making a two-year study of ways to adequately determine port capacity. [T-f201 No New General Ports Are Needed. No new general port areas are required in California for the foreseeabl7future. Present projections of commercial shipping needs (Water Resources Council, 1971) indicate that most general and bulk cargo port requirements for California can be handled at existing port facilities with relatively minor modifications such as renewal (ioes, more intensive use) of port lands and equipment modernization. For-example, exist- ing Long Beach facilities, if utilized to their designed capacitycould alone accommodate the projected container flow for both Long Beach and Los Angeles ports to at least 1980 and the projected general cargo flow for both ports through 2020. [T-f2l] Coordinated Planning Could M aximize Ports, Efficiency, Capacity. Distributing commodity flows among a region's ports on the basis of available-and planned facilities, and planning port development projects according to projected commodity flows, could maximize the yield from public funds and minimize the need for environmentally destructive port development. [T-f23] No State Agency Now Coordinates Port Development, Traffic Distribution. Although a voluntary association of ports in California (California Association of Port Authorities) does exist, and although all the major ports are publicly owned, there,is no public agency"to coordinate or plan for development or traffic distribution between ports, even for ports within the same bay or har- bor. Currently, the BCDC in conjuntion with MTC is involved in a regional ports planning effort for the San Francisco Bay Area. Though the California Department of Transportation is required by its enabling legislation to pre- pare a California Transportation Plan (for submission to the Legislature by January 1, 1976) that will include regional maritime transport elements, the Department states that its role in regard to State and regional port planning is still being explored. [T-f231 New Cargo Handling Technolop-y. New methods of handling cargomay reduce some of the need for port expansion. Lighter-Aboard-Ship-Handling (LASH) ves- sels were specifically designed to on and off load barges near ports lacking sufficient draft to accommodate deep draft vessels and to permit unloading at congested ports, Use of these vessels would effectively eliminate the need for extensive dredging in some California harbors, but they are not yet being used as efficiently or economically as they were intended. The use of currently available (though expensive) high-speed vertical stacking equipment could also reduce the need for port expansion: acreage requirements for storing standardized containers can be reduced from more than 3,5 acres per berth to less than 8 acres per berth. [T-f241 Rail Use at Ports. An efficient land transportation system is a major con- sideration in port design and operation. Studies being done by,the California Department of Transportation and regional planning bodies will deal with the land transportation requirements of existing ports. Rail transportation, while less, flexible than truck, generally requires less land, generates much less air pollution and uses less fuel. However, trucks are required for short haul situations in the immediate market area of the port. ET-f251 Lack of Coastal..Water Passenger Service. The highest coastal population con- centrations in California are located around the San Francisco Bay area and from 'Los Angeles southward to the'Mexican border. Despite these high population concentrations the only existing water passenger service is from Long Beach to Catalina Island and from San Francisco to Sausalito and Tiburon. IT-f26] POLICIES 116.. No Additional Major Port Areas.Required.. No new port areas shall be de-- veloped outside existing.port cities except for possible specialized facilities such as petroleum or liquefied natural gas tanker..terminals. [T.,..p2l] 117. Maximize Use of Existing Ports, To make maximum use of existing ports, a Port Master Plan shall be prepared, taking into account potential traffic conflicts between oil tankers or LNG carriers and other vessels, [T-p22d] and' giving the highest priori ty in the useof existing land space within harbors to port purposes, such as navigational facilities, ship-berthing and materials- handling facilities, shipping industries, and necessary support and access facilities. Other uses consistent with the public trust and otherwise bene- ficial,"such as recreation and wildlife habitat, shall also.be provided.'[T-p22e] Rail service to port areas'shall be encouraged. IT-p241 Regional Amplification South Coast: Bay-wide economic and port facilities studies shall be conducted on a continuing basis for San Pedro Bay, taking into account .regional, nati.onal, and international economic factors as well as social and environmental impacts. Such studies shall guide future expansion .and renewal.programs. Public,informa.tion..,prog@rams shall..be expanded to encourage public participation in port planning. Los Angeles and Long Beach Harbors shall produce and maintain coordinated general plans to guide future development, particularly at the physical inter- face of the-two ports. Majorport activtitibs.,'recreational boating, sport fishing, research and'development,''p6ss'ible merger,.passen&-r'iise, public @access, and logistical support ofmaritime-activity shall be considered in the plans. 'Emphasis shall be placed on environmental protection. Scenic access, bicycle routes, and ferry service in the 3-outh Coast areas shall be developed for recreational purposes as pprt.of the general plans of the ports, consistent with public safety and'non-interference with cargo activities. Recreational water travel along the entire South Coast Region shall be encouraged. IT-p22RAI "159- Criteria for Approval of Port Development Involving Filling or Dredging. No new major port development or expansion projects involving filling or dredg- ing shall be allowed unless it can be demonstrated that there is a clear need for the amount and type of cargo proposed to be handled by the new development and that all regional terminal facilities capable of accommodating the pro- jected commodity flow will be utilized to their maximum practical capacity. Where available, or where required by the coastal agency prior to approval, regional commodity flow studies, such as those presently being conducted by the Army Corps of Engineers, to be reviewed and accepted by the coastal agency, shall clearly indicate the need for such developmentyand a detailed examina- tion of berth occupancy, port tonnage, and other relevant port performance indices, including those presently being developed by the U.S. Maritime Administration, shall indicate that the proposed development is needed to ac- commodate amounts and types of cargo for which there are no existing and available terminal facilities. ET-p22avbtcl In addition, a Port Master Plan must be completed and a final environmental impact report of the Port Master Plan carried out as prescribed by the California Environmental Quality Act. [T-p22e] This @olicy does not apply to minor in-harbor dredging, which shall beallowed in existing ports to maintain existing or previously constructed water depth, in accordance with other Coastal Plan policies on dredging and spoils disposal. [F,-p29] (This policy is consistent with port develop- ment requirements in San Francisco Bay as applied by the San Francisco Bay Conservation and Development Commission.) [T-p22] 3-19. Minimize Environmental Impacts of Port Projects. Where permitted, port development and expansion activities shall minimize the direct and significant environmental impact of diking, dredging, filling, and preemption of land and water ET-p22] -16o- a* Use Least Destructive Methods* Where permitted, port expansion or de- velopment projects and port renewal or maintenance projects (such as pier modifications, maintenance dredging, handling or storage facilities renewal) shall be required to incorporate the least environmentally de- structive methods available. Dredging and spoils disposal operations shall conform to the policies set forth in the Marine Environment chapter of the Coastal Plan. [T-p231 b. Utilize Available Port Land. Wherever feasible, the backup land area required shall be minimized and existing areas more intensively used through the use of improved equipment and handling methods such as vertical stacking of containers and more efficient vessel scheduling. [T-p231 120. Study Feasibility of Expanded Coastal Ferry Service. An in-depth study should be conducted as part of the State Transportation Plan to determine the feasibility of implementing inter-and intra-regional recreational and commuter ferry service along the coast. All existing ferry service should be vigorous- ly promoted and expanded. [T-p251 -161- Energy and the Coast FINDINGS California Coastal Zone Can,Pote@ntialiy Contribute t6the State's Energy SUPP1.Y in -Several Ways. The land and water of the California Coastal Zone can potentially be used to contribute to the State's energy supply in five princi- pal ways: to provide sites and ocean cooling water for power plants that generate electricity; (2) to provide oil drilling, production, and handling sites for recoveri petroleum from submerged lands beneath State and Federal offshore waters; (31 to provide terminals to moor and'offloadtankers and barges bring' _n2 crude oil and refined products to California, the region,@and- the natio4; 041 to provide sites for oil refineries; and (5) to provide special terminals and onshore plant facilities for liquefied natur@l gas imports. EE-f1j Coastal Plan Will,Protect the Coast Yet Provide for Needed Ener . A princi- pal goal of the Coastal Plan is to protectt enhancet and.restore the coastal environment while still planning for those energy facilities for which a clear public need and a need for siting along,the c.oast.can be shown. Coastal planning must not sacrifice the environment of the rest of California; little would be gained if a coastal area were to be saved at the price of even greater environmental damage inland. Energy plannin for the coastal zone must take into account (1) estimates of energy needst @2) strategies for reducing the need for coastal energy development through energy.conservation programs and application of alternative energy forms, (3) the environmental impacts of locating energy facilities in the coastal zone and inland, and the effect of new energy legislation in California. [E-f27 Present and Potential Demand and Supply Forecasts for'Primary Conventional Energy Sourcess Primary conventional energy sources used in-California are petrole=77criide oil)f natural gas, hydropower, and nuclear.' Based on present*demand/supply forecasts (using traditional forecast methodo- logy) demand-for these primarylsources will exceed supply. Specific considerations follow concerning: .(1) demand/supply characteristics of each primary source; (2) the planning implications of conventional demand/supply forecasts;'(3) prospects for potential demand grbwth,reduction; and 4) the' need for revised methodologies that give propenconsiderati .on to' changing economic,. environmental, and technological conditions. PETROLEUM SUPPLY AND DEKAND Petroleum Demand Exceeds Supply, California-petrol6um demand at@present out- strips in-State production, and the deficit is likely to increasee [E-f5l -163- New Sources Needed to Meet Even a Reduced Demand Growth. To meet even a reduced demand growth for petroleum, new sources Of supply will be needed. Supply requirements can be met by: (1) increased development of the in-State onshore resource, including increased exploration and expanded secondary and tertiary recovery; (2) development of the State and Federal offshore petroleum resources; and (3 foreign and Alaskan imports. Increased onshore production )ffers the least environmental risk, but has a limited potential for increasing supplies. New sources could require major,new developments in the coastal zone which could have substantial adverse environmental impacts. [E-f5l California's Role in National Petroleum Supply Needs Updating. At present, California's only defined role in national energy supply is based on its his- torical and continuing role within Petroleum Administration for Defense District V (PAD V--Californiav Arizona, Nevada, Oregon, Washington, Alaska, and Hawaii). EE-f5l California Is Heavily Oil-Dependent. Oil now accounts for over 50 per cent of California demand for primary energy. The major oil requirements are for energy (electricity generation, agricultural and municipal water pumping, industrial process heating, vehicle fuels, liquid petroleum gas) and production of oil- derivative products, EE-f6l Present Oil Demand Growth Projections Foresee Increased Demand Levels. Leading studies on oil demand growth for California completed in early 1973 forecast high oil demand. rowth due to: (1) a continued decrease in the availability of natural gas; M failure of nuclear plants to come on line as scheduled; and (3) a continuation of pre-1973 gasoline consumption growth, Howeverl such projections did not consider the significant potential for demand reduction from (1) increased oil prices, (2) conservation measures, and (3) development of alternative energy sources, among other factors that are expected to lead to reduced demand growth rates and consumption levels and consequently to reexamination of traditional forecast assumptions and methodology. NLf7l Oil Price Increase May Reduce Demand. Since late 1973, foreign oil prices have risen abruptly by as.much as 100 to 300 per cent@ in turn forcing price increases in domestic oil and petroleum products. Such oil price increases may not only precipitate a change in oil demand but also stimulate shifts to alternative energy sources and more efforts for conservation measures. A major effect of the price surge is to throw into question all public projections of demand and supply of petroleum that pre-date the increase, [E-f8] Conservation Programs May Lower Demand. Both the Federal Energy Administration and the new California State Energy Resources Conservation and Development Commission are specifically charged with developing conservation programs to help conserve oil. The Coastal Commission has a general mandate to conserve and manage coastal resources, including both energy resources and other coastal resources that would be affected by energy-related development. Most existing petroleum demand forecasts do not reflect adequate con3ideration of the poten- tial for demand reduction through such programse [E-f9] Alternative Energy Sources and Other Factors May Help R#duce Oil Demand Growth Rate. Factors besides price increases and conservation programs that may help reduce the oil demand growth rate include: (1) an increased availability of natural and synthetic fas, methanol, and alternative energy sources to replace reliance on petroleum especially for electrical power generation); (2) strict -164- goverment allocation of available supplies of petroleum products; (3) changes in lifestylev particularly in reduced use of the private automobile and of electricity; W-a continued decline in the Sta 'te population growth; and (5) a more modest growth rate in the national economy- LE-f1O1 State's Crude Oil Production Fails to Meet Demand. California crude oil production has steadily declined since 1968-69 f;om about 1,000,000 barrels per day in 1968 to about 850,000 barrels per day in 1972. In 1973, only 55 per, cent of the crude oil for California refineries came from within the State; 31 per cent came from foreign sources and 14 per cent came from other states. Projections for 1975 indicate'that California will furnish only 49 per cent of its own crude oil for refineries, with 41 per cent coming from foreign countries and 10 per cent from other states. If demand/supply trends of the recent past should continue, the portion of State demand satisfied by State crude production would drop markedly by 1985. However, because of possible demand reduction factors considered above and the potential.for increased development of California's potential recoverable onshore and offshore oil resources, a huge in-State deficit isby no means inevitable. EE7f111 Alaska Crude Oil Will Reduce Need for State Production and Foreign Imports. Much of California's future crude oil supply is expected to come from the Alaska North Slope'via pipeline and tanke'rt beginning as early as 1978. Although the Stanford,Res,earch Institute forecasein mid-1973 that oil from this source would'amount to 600,000 barrels per' day in 1980, and 8509000 barrels. in 1985? more recent information indicates.that California couldq if necessaryp receive as much as 1.2 million barrels per day.beginning as early as 1978. In addition, very substantial additional petroleum resources are thought to exist in other parts of Alaska where exploration is. in very, prelimi- nary stages. Unless such oil is required to serve needs beyond the State and region, the availability of these oil supplies could substantially reduce or eliminate the need for increased exploration and froduction offshore of Cali- fornia and the need for imported foreign crude.. E-f131 .State Demand for Low-Sulfur Fuel Oil Exceeds Present Supply. As natural gas 'Supplies have recently been c'urtailed, the sho'rt-term demand for fuel oil for use in industry and in electric power generation has increased. State air quality regulations require the use of low-wsulfur oil when natural gas is not available. Much of Californiats crude oil is high in sulfur content; and al- though several new projects are planned, California refineries presently lack adequate direct desulfurization capacity to meet low-sulfur crude oil demands. Therefore.these demands must be met either by import of low-sulfur.crude for refining in Californiat or by import of refined low-sulfur fuel oil. [E-441 State Petroleum Planning Needs Better Coordination with Energy Planning., At present no State Agency is-responsible for plannir4 petroleum related,develop-. ment activities within the.context of a comprehensive program of energy development and conservati on in Californi a. The State Division of Oil and@Gas forecasts petroleum supply and demand anddrafts policies for petroleum devel- opment, but it does not directly determine policy for,other sources of energy. The State Lands Commission m1ces decisions relating to development of -the Petro- leum resource underlying State-owned lands, The new' Stat Energy Commission will determinepolicy for. power plant siting and energy conservation and will study petroleum supply and demand and recommend development and, conservation policy, but it will not determine policy for siting-petroleum- related development. [E-f151 -165- NATURAL GAS SUPPLY AND DEVIAM Natural Gas Demand Ekceeds Supply. Natural gas is a desirable fuel because it is relatively clean burning. Its'extt-action and transportation, howevert involve many impacts similar to those associated with oil. The demand and supply of natural gas is im ortant to coastal planning because it will help determine the need.for: (1@ liquefied natural gas (LNG) facilities in California, (2) facilities proposed by electric,utilities and oil companies to provide addit ional low-sulfur fuel oil to substitute for natural gas in power plants 'and other industries, and (3) production of natural gas associ- ated with oil reservoirs in California's outer continental shelf. In Cali- forni4 as in the rest of the U,Se, the.demand for natural gas continues to increase rapidly while traditional sources of supply are dwindling. At the present projected growth rates, without additional supplies some curtailment in peak service to residential and commercial customers could occur as early as 1978 in southern California. [E-f16j Conservation Programs, Price Increases, Other Factors Influence Future Demand. Future demand for natural gas will be influenced by the impact of energy con- servation programs and price increasesi Price elasticity studies suggest that increases in price may decrease demand for natural gas through conserva- tion and customer switching to alternative forms of energy. On the other hand, although broad energy conservation programs will presumably result in more efficient use of existing gas suppliesq they may also stimulate additional gas demand in the residential and commercLal sectors, where direct use of natural gas is more energy efficient than use of electricity. Mor@)over, price increases of other energy sources may also increase customer switching to gas, TE-f 171 For these reasons it'is difficult to firmly estimate future demand. Present Natural Gas Supply Sources Cannot Meet Demand. California produces less than one-fourth of its natural gas needs, Moreover, California's total proved reserves of natural gas have been declining since 1963; if present State production and demand trends continuev only 17 per cent of demand will be met by the State reserves by 1985. In 1973, California imported 78 per cent of its gas supply-61 per cent from the southwestern states and 17 per cent from western Canada, However, both the El Paso Natural Gas Company and the Transwestern Pipeline Company have been allowed by the Federal Power Commission (FPC) to curtail their deliveries of gas to California, and further curtailment can be expected in the near term, Additionally, the Canadian NatiolalEnergy Board has recently refused to permit expanded deliveries of natural gas to the U,S. from Alberta, pending evaluation of the adequacy of reserves to meet Canada's own projected needs, [E-f18] New Domestic Sources Will Increase State Supply, Potential new domestic natural gas sources include: (1) large reserves of natural gas on the outer continental shelf; (2) large natural gas reserves associated with Alaskan oil deposits; (3) significant quantities of gas trapped in tight rock formations in the Rocky Mountains; and (4) two synthetic natural gas-from-coal (SNG) plants proposed in northwestern New Mexico using coal strip-mined in Utah* California may receive as much as 2/3 of the SNG output of these plants via pipeline beginning as early as 1978-79. Other potential sources capable of incrementally supplementing natural gas supplies are methane gas, produced from sewage, sanitary landfills, or individual units; and SNG from oil (naphtha) F roduction of which is being considered at a proposed refinery near Carlsbad* E-f19] -166- Alaskan and Foreign Natural Gas Imported.as Liquefied Natural Gas (LNG). Where pipelines for long-distance transportation of natural gas do not exist, natural gas is being transported in ships in very cold (about -2600 F.) liquid form, which reduces its volume by a factor of more than 600.. Projects have been proposed to import liquefied natural gas (LNG) into California from practically every major oil-producing'area in the world. Import of LNG into California from Alaska and abroad will require LNG port, storage, and gasifi- cation facilities, all of which will be located in the* coastal zone and involve significant environmental and safety risks. The exact.magnitude of LNGx imports is difficult to estimate at this time. [E-f20] Potential of New Natural Gas Su4lies Is Substantial. Substantially more gas may be available by the early 1980s than is presently being planned on by the gas utilities. Several studie's-conclude that even without extensive new conservation measures, if regulatory and pricing policies were altered to encourage development of sources, suffici@,Mt gas could be available by the mid- 1980s to meet nearly all of the presently projected national gas demand, It is conceivable that a modest resurgence of as consumption by large industrial and utility users would then be possible. 5,421] Less Natural Gas Available to Fuel Power Plants. Power plants, classified as low-priority users of natural gas, sustitu7 fuel oil for gas when gas supply is interrupted. In recent years electric utilities could count on natural gas for up to 90 per cent of their fuel needs, but in 1974 only about 15 per cent of fuel needs will be met by gas. If present consumption trends continue, and if no new natural gas should become available, utilities might have to depend on fuel oil for.as much as 90 per cent of their needs by 1976. [E-f22] ELECTRICITY SUPPLY AND DK\4AND Electricity Demand Determines Need for Development of New Supply* The-n eed for electricity will determine the need for various means of supplying elec-- tricity,@many of which,will directly affect the coastal zone. In 1973y 59 per cent of California's electricity generation was by burning fossil fuels (oil 30 per'cent, gas 29 per cent); 31 per cent was produced by hydroelectric sources;.and 10 per cent by other sources such as nuclear, coal, and geothermal. Most of California's fossil fuel and nuclear power plants are located in the coastal zone' and utilities are considering new or expanded power plants at coastal sites. Such power plants have ma@y environmental, safety and land use impacts,, (See section on.power plant siting.') EE-f231 Electricity Demand Is Growing. Electrical energy demand is growl both-ab- solutely and as a share of,the total energy market as a result ofli) its universal- applicability, (2).inereasing supply pressures,on oil and natural gas, and (3) development of new uses,. products, and processes@- EE-f241 Potential for Reduction in Electricity Demand Gowth. The growth in-demand,for electricity in California has averaged 7.7 per cent over the last 25 years. It has now begun to.sl.ow, but there islconsidera:bl.e@potential for.further.,.. demand growth reduction through vigorous energy conservation measures', the impact of rising electricity prices@and price rate"restructuring, and the development of alternative energy sources. -Slowed population and economic growth rates-in California will also-contribute independently to a lower electricity demand growth. [F,.f241 -167- Electrical Energy Use Varies Among Market Sectors. The principal electrical energy market sectors in California are-. residential (29 per cent); commercial (38 per cent); industrial (28 per cent); others, including pumping of agri- cultural and municipal water (5 per cent). The commercial sector is both the largest and fastest growing. [E-f251 Residential Consumption. Over half the electricity consumption in the residen- tial sector is due to three types of uses: space conditioning (heating and cooling), water heating, and refrigeration, with space conditioning growing fastest. Demand in the residential sector as a whole has increased for several reasons: (1) the number of new households has rown faster than population; (2) the use of air conditioners has increased; 3) until recently utilities actively promoted all electric homes; and (4) many new and sometimes less efficient appliances have been introduced &nd have approached market saturation. Due to stabilization in the growth rate of new households and the approaching market saturation of many appliances, however, residential demand growth has been-forecast to decline significantly, even without price rises and conserva- tion measures. [E-f261 Commercial Consumption. In the commercial sector, electricity is used primarily for air conditioning, food and products refrigeration, and lighting. Increased commercial electricity use has been forecast to continue, but the sector's sen- sitivity to electricity price increases and other market factors may help restrain growth. EE-f27J Industrial Consumption* Industrial electricity demand growth has been due to (1) increased industrial output and floor space, (2) greater electricity use per unit of output, and (3) increased use of electricity instead of primary fuels in industrial processes. The rate of growth has been forecast to slow in the future because of conservation practices. [E-f28] Consumption-Patterns Vary By Region. Electrical energy usage. tterns differ regionally within California. Southern California consumes 2/p3aof statewide electrical energy produced and has a faster growth rate than the North. Both North and South, however, have recently been experiencing declining growth rates in population and overall electrical energy use. Due to the variations in weather conditionug there are also regional differences in the months of maximum electrical energy usage. Pacific Gas and Electric system peak occurs in July, whereas the San Diego Gas and Electric system peak occurs in December. Califor- nia's maximum monthly electrical energy usage-is usually during August. [E-f251 Present Demand Projections Based Primari on Past Growth Factors, Inadequate for Planning. Present deman-d7supply forecasts provide a questionable basis for planning because they are based on traditional forecast methodology, which give inadequate consideration to changes that can affect'demand, such as (1) rising fuel prices, 2) rate restructuring, (3) the potential for alternative energy sources, and M energy conservation measures* Recent studies indicate that there will be significant1slowing of demand growth due to price increases for electrical energy. [E-f29 Restructure Rates to Encourage.Efficient Allocation of Enerju. In the commer- cial and industrial sectors, declining block rates (i.e., lower rates for successive increments of electrical energy consumed) promote increased use of electricity. A price structure-based in part on "marginal cost pricing" would more accurately reflect the cost to the public of the resources being.used for _168-- power generation by establishing prices for electricity partially on the basis of the long-run incremental costs of providing electricity to a particular customer, and not merely on the basis of long-run average costs. "Peak load pricing" would more accurately reflect the costs to the public of adding new generation capacity to meet peak demand, and of using less efficient power plants to meet peak demand, by charging consumers higher prices for electricity consumed during designated periods of peak load. The California Public Utilities Commission has recently undertaken an exper Iimental program to investigate rate restructuring,and the State Energy Commission will also have theauthority to study this issue. [E-f30] Long-Term Demand Reduction Through Increased Prices and Conservation Measures. In the long-term, increased prices, intensive conservation efforts, new energy systems, and revised price structures could probably reduce California's esti- mated demand by as much as 30 to 40 per cent of the conventional projections for the year 2000. [E-f3l] State Energy Commission Will improve Forecast Methodology. The Warren-Alquist Act ( 1575) provides for the State Energy Commission to make improved elec- tricity demand forecasts to serve as the basis for electrical generation . facility siting. The Energy Commission will develop a standard forecasting methodology to be employed by the utilities in providing input to an independent forecast to be developed by the Commission. [E-f32] Conventional Demand/�=1V Projections Are Pessimistic About Alternative Ene ra Sources. Many cunVentional demand/supply projections assume that there will be no significant contributions from,alternative energy sources and no major breakthroughs in energy technology that will have a significant impact on electricity supply in this century. Among electric utilities and State agencies such as the Resources Agency and the.Public Utilities Commission, there is a consensus that over half of all new capacity in California required to meet electricity demand in the year 2000 will be obtained by nuclear fission power plants, one tenth from hydroelectiric power, and only one tenth from geothermal power. No potential contribution is identified from solar, wind, or solid wastes. If these sources appear at all in conventional forecastsy they are typically allocated only token supply contributions or are dismissed as "futuristic," Stronger, more forceful research and development programs at the State and Federal levels, however, could expedite development of the full potential of alternative energy sources.for use in.California.. [E-f331 Serious Environmental Impacts Implied inContinued Dependence on Conventional Supply Mix Forecasts. The consequences implied.in conventional,supply mix forecasts are serious: (1) increasingly severe enviro nmental disruptions for fossil fuel extraction, processing, and delivery;*(2) consumption for electri- cal generation pur oses of nonrenewable hydrocarbons that are more valuable for other uses; M increased problems of air-pollution; (4) problems of .nuclear fuel transport security, radioactive waste handling and disposal, and otential nuclear.reactor hazards, which do not yet have definitive solutions; and problems of cooling water supply and marine life impacts. Such energy planning as has been done in California has been based primaril@ on the con- vehtional utility projection of electricity supply mix. [E-f36 Alternative Enerp_V Sources Look Increasingly Desirable and Feasible. Energy sources for electricity generation that previously were thought to be econo- mically unattractive or technologically unattainable have recently become more desirable or more feasible because of (1) escalating price levels for competing -169 conventional energy sources; (2) new concern for environmental protection, human health and-safety, and conservation of,nonrenewable hydrocarbon resources; (3) new levels of research commitment for alte rnative source development; and (4) new c6n6ern,about political i lications of dependence on-interriational Im markets for energy supply. [E-f3Z I Electric:Utilities Plan on Basis of Available Technology. Electric utilities take a cautious approach to including alternative sources of electricity gener- ation in supply mix projections because: (1) electric utilities-are held res- responsible for meeting whatever demand for electricity actually exists, and they therefore plan almost exclusively on the basis of available technology as the means to meet 5 .10, and even,20-year demand forecasts; (2) the lead time required for constru7ction of any generating facility is significant: typical lead times are 6 years for a combined cycle fossil fuel plant, and up to 12 years for a nuclear plant. [E--f341 Electricity Supply Forecasts Form Basis For Other Supply Forecasts. Although the*electric utility supply forecasts represent only one-possible supply scenario, they are used as a principal basis for planning.by a broad range of public agencies dealing with such.complex issues as petroleum and natural gas supply, port facilities, land use, and water resources, [E-f351- aDacity RLe uired It is c" AltprngMvp Rnpra Sources Could Yield Half of New.C oi possible that alternative sources of energy that may be envir ileM a ly less damaging or less hazardous than the sources shown in most conventional elec- tricity supply projections may make a greater contribution to future electricity supply than is presently acknowledged.. A hypothetical alternative scenario for future electrical generation capacity in California.suggests that alternative energy sources (solar, geothermalo wastes, wind, and pumped hydroelectric for peak hour demand) for electric power generation might be provided by the following sources by the year 2000: Solar 16,900 Mw. Geothermal 127800 Mw Wastes 37200 Mw Wind 3vOOO MW TOTAL 35v9OO Mw This scenario assumes a strong policy commitment by government bodies and electric utilities to high levels of research and development of alternative energy technologies and to extensive marketing and public education. [E-f381 This capacity would represent @alf of all new generating capacity required be- tween 1973 and 2000 (based on the Rand study Case 11211-i.e., base case plus price increases)* This contrasts with the conventional supply mix forecast of less than 15 per cent from these combined sources. The future shareof gener- ation that will actually be provided by each of these technologies is uncertain, and depends on such things as comparative economics , environmental acceptab 'Llity7 and lead time required from earliest date of feAsibilitys EE-f38] -170- ENERGY CONSERVATION FINDINGS Utility Rate,Structures Encourage Consumption.One.of.the most important and direct ways to encourage more efficient energy use is to,change electric and-gas;utility rate structures toaccurately reflect all of the internal- and external costs of producing and delivering additional service. *Present rate structures.often encourage consumption by charging reduced per-unit prices, for large consumers. Present pricing structures also makeno attempt to. discourage demand during periods of peak load. Peak load generation.typically results in use of the least efficient generating equipment.. Consumption during peak periods,- then, is costlier than during off-peak hours.. The Wisconsin Public.Service Commission recently.made a landmark rate decision requiring a major electric utility.to implement(1) "flat" rates, except where the traditional "declining block." rate structure can.be proved to.encourage themost efficient allocation of energy, and (2) a system of peak-load pricing that would.result in higher rates during summer.months, when the system's peak loads occur. In California, the California Public Utilities Commission (CPUC) has rate- setting authority. The new State Energy Commission will not.assume this function. The CPUC has recently undertaken a study of alternative rate structures to analyze possible new approaches for application in California. [E-f4] Impact of-Energy Producing Facilities on the Coastal Zone Can Be Reduced by Enemy Conservation Measures. The need .for energy-producing facilities can be reduced, and the impact on the coastal zonethereby lessened, by vigorous energy conservation measures. Substantial savings can be achieved by curtailing wasteful consumption of energy without harming the economy of the nation or the State.. Some experts estimate that as-much as 40 per cent of present total energy consumption is wasteful and that conscientious application of a broad energy conservation program to all sectors of the energy market-homes, businesses, industry, and transportation-couldhalve our historical energy growth rate. The Ford Foundation EnergyPolicy Project for example, concluded that the national energy growth rate could be reduced from the present level of nearly 5 per cent to 17 per cent annually without any significant adverse economic effects. Forty Per Cent of Enerqy,Used in Homes and Businesses Is Wasted. The residenc- tial and commercial'.sectors of society account.for about one-third of the nation's annual energy consumption-and their, consumption is increasing -at the-rate of 5.4 per cent per year. Overall., it is estimated-that nearly 40 per cent of the energy these sectors consume is ,wasted. Waste occurs due to-poor insula- tion and ventilation; in efficient,heating and. cooling systems;poorly maintained and designed appliances; and wasteful use of.lighting, appliances and heating and-cooling. Energy Consumption in Industry Can Be Cut up 30 Per Cent. .The industrial sector accounts for about 41 per cent of total annual energy:consumption, in the U.S. and about 33 per cent in California. Although energy consumption per unit of industrial,output has decreased-over the,decades, substantial- energy waste'still exists in energy-inefficient work schdule's and industrial -171- processest poorly maintained equipment and machineryluse of outdated direct-, heat apparatus with heat transfer efficiencies as low as 5 per cen@q and failure to recover and reuse waste heat and waste materials by recycling. Savings of at least 10 per cent of the energy used in the industrial sector should be possible with onlyminimal efforts, while 30 per cent or more could be saved with concerted application of currently feasible technology. [E-f39@ Enerxy Consumption in Transportation Can Be Cut by 15 to 25 Per Cent. Trans- portation of passengers and freight accounts for about 25 per cent of nation- wide energy use, and nearly 35 per cent in California. Transportation modes have become increasingly energy consumptive. As presently usedp automobiles, which account for 90 per cent of all passenger movementf use more than twice as much energy per passenger mile as buses; in large part this is because on the average each car carries only 1-3 passengers. Automobile inefficiency is increased by high-speed driving, air conditioners, automatic transmissions, poor tirest and unnecessarily large engine size and car weight. Remote, scatteredv or low-density developments not only increase dependence on auto- mobiles but also tend to require greater travel distances, causing increased air pollution and fuel consumption. About one-third of all freight transport in the nation is by truckt although trucks use over 371 times more energy per ton mile than railroadsp and 5 times more than pipelines. Savings of 15-to 25 per cent are possible in the tr.ansportation sector using only short and mid-term conservation measures (e.g., consumer education, lower speed limits, rate and service improvements on public transitp and rail- freight transport). [E-f393 Enerzy Consumption in Electric Utilities-Operations Can Be Reduced in Several Ways. Energy consumption in electric utilities operations can be reduced through improvements in power generation technologies;.reductions in transmis- sion losses by use of improved equipment and by siting generation facilities near to load centers; and use of once-through seawater cooling systems rather than evaporative cooling or dry tower systems. In electric utilities operations, the trade-offs for achievement of energy conservation are often stark: a utility may accept energy inefficiencies to avoid high capital costs of alter- native equipmenty to utilize a generation or cooling technology that meets its particular system needs (e.g., a gas peaking turbine or pumped hydropower project to meet peaking capacity needs), or for other economic considerations;' similarly, a conservationist or land use planner may support equipment design or sVoing standards that sacrifice some energy efficiency in order to meet specific land use planning or environmental goals. [E-f391 State Energy Commission Is Mandated to Develop Energy Conservation Programs. The State of California has already begun to move toward design of energy conservation measures for uniform implementation statewide. The State Energy Commission has a broad mandate to develop programs for reducing wasteful, unnecessary, inefficient, and uneconomic uses of energy through energy pricing strategies; improved lighting, insulation, climate control systemsp and other building design and construction standards;.improved standards for appliance efficiencies; and advances in power generation and transmission technologies. The Energy Commission will also design recommended per unit energy requirement allotment3based on square footage (energy budget codes) for various classes of buildings. [E-f4OJ Some Legislative Enerj-,v Conservation Measures Will Soon Be Implemented. Other energy conservation measures that have been initiated by the Legislature include: (1) SB 277Y which requires development by the Department of Housing and Community Development of minimum insulation standards for residential structures. Such standards have now been adopted by the Legislature as regulations effective February 22,1975, to be applicable statewide and en- forced by local agencies;(2) SB 144, requiring similar development of insulation standards for new non-residential structures, to become effective near the end of 1975; and (3)SB 1521,to eliminate pilot lights in gas appliances (see finding on page 177 for more complete description). [E-f40] The CPUC has recently played an active role in energy conservation efforts by ordering utilities to undertake voluntary conservation programs and to mandatorily curtail uses by specific customer groups. [new] Coastal Commission Needs to Develop Energy Conservation Policies as Interim Measures. Despite the broad mandate of the Energy Commission to develop energy conservation programs, and the strong reasons remain for the Coastal Commis- sion to develop policies for energy conservation. First, under AB 1975, it may be as long as 2 1/2 years before Energy Commission regulations pertaining to lighting,insulation,climate control systems,and other building and design standards,including recommeded energy budget codes, are developed and enforceable. In the interim, development in the coastal zone will continue; and there are many energy conservation measures already clearly identifiable that could serve as guidelines for immediate application to new construction to begin working toward reduction of energy demand growth. Second,the Energy Commission's mandate does not include land use and development planning measures designed to reduce energy consumption. [E-f40] Energy Budget Codes Set Maximum Energy Consumption Levels. Experts believe that substantial reduction of energy consumption could be achieved by designing and implementing "energy budget codes," which would require new buildings to meet maximum allowable levels of energy consumption according to building type, net building floor area, number of stories, height of individual stories, and local climate, among other possible criteria. Use of energy budgets would require architects, engineers, and builders to design with some focus on energy conservation but would afford the maximum flexibility as to what conservation measures to employ. The Ohio Board of Building Standards has recently adopted an energy budget code. The California State Energy Commission is mandated by AB 1575 to recommend per unit energy requirements allotments based on square footage for various classes of buildings. No date is set within the State Energy Commission must perform this function. Standards developed will not be mandatory. [E-f48] Lighting Consumes One-Fourth of U.S. Electricity. Lighting represents 20-25 per cent of all electricity sold in the U.S. In office buildings, lighting represents and average of 40 per cent and in some cases up to 60 per cent of electricity used. Decorative lighting,advertising and display lights, exterior wall lighting, and other promotional uses are also large users of electricity. [E-f43] Lighting Levels Can Be Reduced Without Sacrificing Visual Acuity and Physio- logical Needs. Nationwide average lighting intensity in commercial building has risen from 35 footcandles in 1940, to 85 in 1958, and to 124 at present. Many experiments confirm that lighting levels between 10 and 50 footcandles are sufficient for most visual activity and phusiological needs where levels can be 60 to 150 footcandles are now being provided. Illumination levels can be significantly reduced in corridors,lobbies, passageways, and storage areas. Within work area (e.g.,classrooms or offices), use of selectively higher -173- lighting1evels for "task zones" can both re duce total lighting needs and heighten the effectiveness of the people working in the area.@ Lighting levels for tasks up to 100 footcandles can be achieved.in most buildings designed for a maximum average requirement of 2-3 watts per net rentable square foot. Zeduce Lighti= Needs by Using Natural Lijzhts Lighting needs can be further reduced by using natural light wherever possible to replace electrical lighting. In major multistory office buildings or schools, about 25 per cent of the energy normally used in lighting might be saved if the lighting fixtures near windows..could be manually switched off, or automatically operated by a photo cell. [E-f431- Fluorescent _Lamps Are More Efficient than Incandescent Lamps. Incandescent light bulbs are inefficient energy converters. Less than 10 to 14 per cent of the energy consumed results in useful lighting; the rest goes into heat. 0 fluorementlamps are more than three.times as efficient. [E-f43_1 Heat-of-Light Systems Lower Resultant Heat and Need Less Cooling. Excessive and inefficient lighting also wastes energy indirectly by increasing the heat load, thereby increasing the need for cooling. Typically, every two watts of lighting-requires one watt of cooling by air conditioning. "Heat- of-light" systems are available that reduce the amount of heat from lighting and thus the amount of air that must circulate in the air-conditioning system. [E-f431 High Pressure Sodium Lamps Are.More Efficient in Street'Lighting. The high pressure sodium lamp (HPS) is a fairly recent development1n street lighting and other outdoor illumination. For various lighting c.onfigurations, systems using mercury vapor lamps, which at present are most common, consume 2-3 to 2.9 times the energy required to produce an equivalentamount of light with a system using HPS lamps. The HPS lamp is initially costlier than the mercury vapor lamp; it also has a shorter lifeg and thus requires more investment in replacement lamps. Experts concur, however, that because of greater lamp efficiency, HPS 'systems are less costly over the system life cycle than mercury vapor lamps. Where existing street lighting in California uses series circuits, .HPS lamps., which at present can operate only on a multiple circuit, are not compatible. In addition to using more efficient lamps, it may also be possible to reduce the illumination level of street lighting without adversely affecting public safety. [E-f431 Outdoor Illuminated Si@ns and Ornamental Lightina Consu=tion Can Be Reduced by Regulationo Electrical-consumptio -for promotional signs and lighting could be reduced.through regulating the sizep type of lighting, and extent of such uses. Regulation of signs for public safety and welfare reasons (including aesthetic values) has been upheld by court decisions. According to sign industry data, electric signs use less than 2/10 of 1 per cent of the total energy used in California (the percentage of total electricity used is slightly higher)*' New lighting standards for energy conservation will ultimately be developed and prescribed by the Energy Commission for mandatory application statewide. These standards are to'be developed and applicable by mid-1977. -174- Fifty Per Cent of Heating/Cooling Demand Is Caused by Inadequate Insulation. Of the total, national consumption of energy, 18 per-cent is for heating buildings. Only one out of every 10 buildings operates at 90 per cent or more of potential energy,efficiency. UP to 50 per cent of the heating and cooling demand in buildings is a result of infiltration of outside air, due to inadequate insulation, caulking, and weather-stripping in almost all existing.buildings. If these were improved-in all existing buildings, 7.2 per cent of total nationwide energy consumption could be saved. Stringent Insulation Standards in New Construction Can Achieve Significant Energy Savings. In new construction, more stringent insulation standards (applicable to walls, ceilings, and floors) and double glass windows, possibly with special coating could effect significant reductions of energy usage'. Savings of up to 50 per cent of the energy required for heating and 20 per cent of the energy required for cooling in new residential construction and 10 per cent of both the heating and cool ing energy in new commercial construc- tion can be achieved. [E-f44] Energy Consumption-Doubles with Use of Electric Space Heating. Use of electric resistance space heating results in consumption of at least twice as much energy to heat a given space as direct use of a primary fuel (e.g., gas .or oil). The conversion efficiency for a fossil or nuclear fuel thermal electric power plant is only about 35 per cent; inefficiencies in transmission and delivery systems still further reduce the overall conversion.efficiency for electric space heating. If gas is used directly for space heating', over- all-conversion efficiency will range from 50 to 80 percent even considering inefficiencies due to improper furnace adjustment and start-up and shut-down operations. [E-f44] Air Conditioning Puts Severe Seasonal Strain on Electric Generating Resources. Air conditioning's share of annual total national energy consumption has,. grown from an infinitesimal amount 20 years ago, to per cent in 1960, to 2.5 per cent in 19689 to possibly as much as 4 per cent now. Because most of this energy is consumed during just a few months of the year? the strain. air conditioning loads put on electric generating resources can be severe One of every two homes in the country has,at least one room air conditioner. One-half, of the houses being built today are centrally air conditioned compared to 1/20th a decade ago. [E-f44] With Proper Controls, Central Heating Air Conditioning Systems Gan Be Flexible and Efficient# Among various types and makes of, conventional room air, con-,,,., ditioning units, energy efficiency in actual "cooling capability" can vary. by as much as 80 per cent. Large central heating and air conditioning systems generally use 10 to 15 per cent,less energy on the average than smaller decentralized systems. If central systems are. to operate with-the same flex- bility as individual systems, however, proper controls must. be. installed. [E-f44] In portions of the temperate coastal zone proper design of structures and landscaping can obviate the need for. air conditioning. Shading Windows from Direct Sunlight Can Substantially Reduce Heat Build-Up Inside Buildings. The use-of trees, shutters,sunscreens,awnings,or roof overhangs to shade,windows from direct sunlight.can substantially reduce heat build-up in buildings, and-thus air conditioning' requirements. Special glazing (metal-coated and/or double wall glass)can cut both cooling and heating requirements by about half. It is much more.efficient to screen glass on the exterior, rather than with blinds drapes etc.on the interior of a building [E-f44] -175- Heat Transmission Rates Var7 with Building Surfaces. Heat transmission rates are also affected by the proportion of exterior wallsp the amount of surface area in windows (heat loss and gain from windows causes much greater energy use than the potential saving in natural lighting)v and the colorg orienta- tion, shape, and angle or exposure of building surfaces. [E-f441 Operable Windows Aid Natural Ventilation. Operable windows in lieu of fixed glass will Allow natural ventilationto enter the building, eliminating some of the need for air conditioning and mechanical ventilation during much of the year. Such windows must be well fitted and weather-stripped to reduce infiltra- tion of outside air. EE-f44] Heating/Cooling Systems' Designs, Based on Outdoor Conditions, Can Be RedesiFned @for More Efficiency. Heating and cooling systems ar; usually based on outdoor conditions not exceeded more than 2-2T' per cent of the time. Except for facilities for the elderly, for industrial process, or for health caret such systems could be designed for the 5 per cent condition with only a slight- increase in.discomfort during a few hours per year. Excessive safety margins and failure to account for people and appliance heat-loads also result in over- sized space conditioning equipment and inefficient operation. [E-f447 Reduce Heating/Cooling Requirements by Reusing Already Circulated Air in Buildings. Teating and cooling of vast amounts of outdoor air that circulate through buildings can also consume energy wastefully. By reusing already circulated air, the amount of outdoor air required for ventilation can be substantially reduced, from 5-15 cfm (cubic feet per minute) per person to 3-4 cfm per person in most biilldings. Air quality can be maintained by using odor-absorbing devices and better filtration. Initial costs are no greater? since savings in fansp heating and cooling.equipmentp and ductwork more than offsat the added costs for better filters and odor absorption equipment, and there are significant savings in energy and operating costs. Heat exchangers which allow the use of already air-conditioned exhaust air from a building to preheat or precool system intake air, are a means for reducing heating and cooling requirements in large buildings. [E-f441 Heat Exchangers Recapture the Energy of Waste Heate The present lack of capability of buildings to store heat and cold and to control temperatures of appropriate areas separately results in a loss of energy which otherwise could be used later to offset peak electrical demand loads. Conventional chimneys, fireplacesq combustion devicesq kitchen, laboratory, and laundry exhaust hoods are all energy wasters. Heat exchangers can be used to recapture energy otherwise given off as waste heat. [E-f441 New State Insulation Standards for Residential Structures Will Soon Be Enforced. Pursuant to legislative mandateg the State Department of Housing and Community Development has developed new insulation standardsp recently approved by the Legislature, for r'esidential. structures. The standards, enforced by local governments beginning February 22, 1975, prescribe maximum allowable heat loss v6-lues.for ceiling'', walls, and floors, and provide limits on the amount of glazinge The same agency is presently developing insulation standards for non-residential construction. All such standards shall be operative. until superseded by standards developed by the State Energy Commission. [E-@-f44@ Gas Pilot Lights Waste Enera Except in Water Heaters. It is estimated that continually operated or lighted gas pilot.lights consume more than 223 billion cubic feet of gas per year in the 30 million gas-heated homes in the U*S. -176- Pilots on gas dryers and other appliances in commercial, governmental, and industrial facilities wastefully use additional volumes of gas. Pilots use about one-third of a typical gas range's overall consumption land in some cases may account for as much as 50 per cent of the gas use, especially if pilot flames are set too high. Electric Ignition Devices can Replace Pilots. Safe electric or other "inter- mittent" ignition devices actuated only when the appliance is in operation are available today to replace pilots in most residential-type appliances and can be built into new gas appliances or retrofitted to existing appliances. Electric ignition devices add to the initial cost of a new appliance (about $3 to $30); but given current gas shortages and rising prices, they are likely to be substantially less expensive to the consumer than pilot lights when costs are calculated over the life of the appliance. Replacing pilots in existing equipment, however, may cost $80 to $100, which may not be recouped through lower operating cost over the remaining life of the.appliances Unlike gas pilots in other fixtures, water heater pilots are efficient because the pilot flame contributes directly to heating the,water. [E-f42] Intermittent Ignition Devices Will Soon Be Required by Law.In May 1974, SB 1521 was approved, prohibiting the sale or installation of new residential- type gas appliances (furnace, air conditioner, heater, refrigerator, stove, range, dishwasher dryer, decorative fireplace log, or other similar device, but not including a water heater) equipped with a pilot light 24 months after an intermittent ignition device has been demonstrated or certified by the StateEnergy Commission,, or.January 1977, whichever is later. ..This long lead time was included in the legislation primarily to guarantee advance notice to appliance manufacturers, retailers and contractors. [E-f42] Routine Maintenance of Gas Appliances Will Effect Enemy Savings. The effi- ciency of most gas appliances, including water and space heaters, can be reduced as much as 50 per cent by dirt build-up or improper adjustment. Routine maintenance of such appliances could effect substantial energy savings., [E-f42] Energy Savings Can a Realized Through Improved Appliance Efficiencies. Home and business appliances using both electricity and natural gas account for approximately eight per cent of total national energy consumption. Water heaters alone use four per cent of the national energy budget. Appliances vary greatly in the amount of energy required for identical tasks. Innova- tions in,appliance technologies frequently result in more energy-intensive appliances. Frost-free refrigerators and freezers for example, use nearly twice as much energy as manual defrost units;and color televisions use about 40 percent 'more, energy than blAck and white sets.More efficient appliances may initially cost more,but they enable consumers to save money in operating costs. Labeling of appliances as to energy efficiency would'enable the public to make informed purchases and would,encourage energy efficient design by appliance manufacturers. 'The State Energy Commission 'is mandated to prescribe standards for minimum levels of operating efficiency for all appliances whose use requires a significant amount of energy on A statewide basis.One year after adoption of such standards,sale of non-complying appliances in California will be illegal. [E-f46] Aluminum Production Requires Six Times More Electric Energy than Steel. It takes approximatel six times as much electric energy,to produce a ton of. aluminum as a ton of steel. Analysis of a high-rise building has demonstrated -177- that its skin would require 5.75 million pounds of stainless steel, which takes .77 million kwh to produce, compared to only 4 million pounds of aluminum, but whichtakes 2.1 million kwh to produce. Wood Is the Onl-y Renewable MaJor Building Material. Where wood is appropriate for use, it is significantly more favorable in energy required for production than steel or aluminum. The production of a ton of finished wood takes only 12 per cent of the energy required to produce a ton of steel and 2 per cent of that required to produce a ton of aluminum. Wood is also the only renewable major building material. Concrete and masonry have higher heat storage capacity and longer life cycles than metals or wood. EE-447] POLICIES 121. Restructure UtilitZ Rates to EncourMe Conservation. Utility rates should be restructured to encourage energy conservation and peakload demand reduction. The California'Public Utilities Commission (CPUC) should revise rate structures to more accurately reflect the actual costs of production and transmission of a customer's gas and electricity. The State Energy Commission should assist the CPUC in the revisions as soon as it is able to do so. EE-P21 122. Reduce Enerp-py Consumption Statewide and in Coastal Developments. Non- essential consumption of energy should be reduced statewide, thereby reducing the adverse environmental impact of energy supply facilities on the coastal zonee [from E-P41 as Statewide Enerp-y Conservation Measures Recommended. The energy con- servation standards contained in Policies 123 through 126 below clearly should be applied statewide and are therefore recommended to the State Energy Resources Conservation.and Development Commission ("State Energy Commissiont) for its consideration in [email protected] state- wide energy conservation measures in fulfillment of its legislative mandate. [E-P4-1 b. Coastal Ene= Conservation Standards May Also be Applied. If, for arV reason, a significa nt energy conservation program is not in effect -178- statewide by January 1 1977, then the standards set forth in Policies 123 through 126 below or any improvement upo n them recommended or enacted by the Energy Commission shall be applied by the.coastal agency to all development proposed within the agency's jurisdiction. Until that time, the application of such standards should be required to the maximum extent feasible in any development as a contribution to energy efficiency and resource conservation.[E-P4] 123. Reduce Consumtion of Electricity for Lighting. Unnecessary lighting in new or substantially remodeled residential, commercial, institutional, or industrial development shall be reduced through State Energy Commission action (or by the coastal agency within its jurisdiction-"see Policy 122) in the following ways- [E-P51] a Regulate Lighting Levels. Lighting shall not exceed 2.3 watts (2.5 volt- amperes) per square foot except in instances where higher levels are shown to be necessary for high visual acuity tasks and public health and safety* b. Allow Only Efficient Lamps and Luminaires. Only efficient lamps and luminaires, as defined in the proposed Standard 90-F of the American Society of Heating, VentiqlatingyRefrigeration, and Air Conditioning Engineers (ASHRAE) shall be allowed. C* Provide' for Selective On-Off Light Switching In. large office-bUildings light switches shall be aprovided so that portion of the building including portions of each floor receiving adequate natural light' or not in use can be switched off selectively. d. Use HPS Street Lighting. New street and highway lighting lumInaires' -shall be of the high pressure .sodium (HPS).type, or an-approved alter- native type equal in energy efficiency, unless there are.environmental, aesthetic or, public. safety reasons, for utilizing a different type of, -179- light source. [E-W Consideration should be given to establishment of a capital improvement fundp by passage of a State bond issue.or by other appropriate State fundingo for the conversion of existing State, countyg and municipal incandescent or mercury vapor type street and highway lighting to high pressure sodium (HPS) type or equivalent. Con- version should take place as quickly as possible given the financial resources available and manufacturing and installation capacity. Funds expended could be repaid from energy cost savings resulting from the conversion. [E-p9d] Other appropriate energy-conserving devices (e.g., astronomical clocks that eliminate lighting during daylight) and designs shall also be incorporatedin all new public lighting systems. [E-P51 eo Ban Lighted AdvertislBg or Ornamental Signs* Proposed new advertising or ornamental signsp whether on business sites or offt shq1I not be electrically lighted, except that businesses shall be allowed on- site lighted identification signs containing only the name, addresst and major project or service of the businessq and these signs shall be illuminated during darkness only when the business is open to the public* (Incorporation of such standards in local sign ordinancest as prescribed in Policy 58, should be considered.) f. t1inimize Building and Facade Lighting. Building and facade lightingr exclusive of signs, shall be no greater than 19000 watts or 2 per cent of the total interiorlighting load of the building, whichever is greater. On-site signs and facade lighting shall be included in the project's energy.budget- EE-P53 124. Reduce Consumption of Electricity for Heating and Cooling. Unnecessary use of electricity for heating? cooling,- and ventilating in new or substantially remodeled residentialg commercial, institutionalg or industrial developments _180- I shall be reduced through State Energy Commission action (or by-the coastal agency within its jurisdiction-asee-Policy 122) in the following ways. EE@-p6l a* Rebtrict Electric Resistance.Heati=.O No electric resistance heating (water or space) shall be allowed unless: (1) an effective solar delivery system and/or natural,gas serv-Ice,are not available or adequate for meeting energy requirements; (2) electrical heating is needed_@or medical, health, or public safety reasons; (3) some other unusually high requirement for clean heat exists; or (4) a back-,up.system for solar heating:and coolingzystems isrequired. b. Build to Reduce Air Conditioning Needs. Air conditioning needs'shall be reduced by: (1) incorporating,eithermature planting, exterior architectural shading projectionsy or @reflecting and@/or insulating glass or exterior solar screens to-shade or protect windows receiving direct sunlight in.warm climates; (2).incorporating operable sash and vents in all exterior rooms for.which ventilation is required by the*local building code, and-making such sash and vents weather-tight by use of weather-stripping; and (3) having variable thermostats.for areas.with differentair conditioning requirements. ce Use Best Available Air Conditioning Techri An a.Ir conditioning designusing the best-practical available technologywith low-level or no electricity consumption.shall be,required. New conventional compressive.refrigeration) air conditioning shall be -permitted only if an applicant can.demonstrate that the life cycle costs,of the conventional system.are substantia.Ily.less than the lowest cost alternative system available. The demonstration shall include a compari- son of the conventional and potential alternative.schemes, including electric energy c,onsumption, cooling output, and life cycle.cost, together with outline specifications@and sketchplans to scale for -1817 both the conventional and alternative systems. The comparison shall be submitted and signed by a California-registered engineer. (Alternatives may include cooling systems based on evaporative cooling, solar cooling, nocturnal radiation, absorption refrigeration, heat pumps, rock bed regenerators, and coolness storage, among others.) [E-p6l (See the section on Alternative Energy Sources.) Regional Amplification South Coast and San Diego (and Central Coast as "guideline"): A fifth exception in subsection (a) is where a solar (water or space) heating system is capable of meeting over 50 per cent of the demand on the heating system? and a back-up system is required. [E-p6RAJ 125. Reduce Wasteful ConsumDtion of Natural Gas in Pilot Lights and Ope Gas Flames. Wastefu2 use of natural gas in new or substantially remodeled residential, commercial, institutional, or industrial developments shall be re- duced through State Energy Commission action (or by the coastal agency within its jurisdiction-see Policy 122) in the following ways. EE-PV a* Use Intermittent Electrical Ignition Systems or Other Means. Intermit- tent electric ignition systems or other acceptable means shall be used in lieu of gas pilot lights in all residential, commercial, or industrial equipment (with the exception of water heater gas pilots) installed in proposed new construction or additions to existing structures unless it can be conclusively demonstrated that the gas pilot device: (1) has a substantially lower life cycle cost than an electric ignition or other alternative system, computed at prime interest rates; (2) that for particular equipment, the gas pilot light is more energy efficient than available alternatives; or (3) that public health or safety necessitates the use of gas pilots. b. Ban Open Gas Flames. Open gas flames for advertising, promotional, or decorative purposes shall not be allowed in proposed new industrialg -182- commercial, or residential construction or additions. This applies to both exterior and interior installations. [E-p7-I 126. Establish Enerp-v Budgets for New Developments. An energy budget code should be formulatedp to be applied statewide by the Energy Commission to all new or substantially remodeled*residential, commercial, institu- tional, and industrial developments. [E-p8@ a. Proposed Energy Budget Code Criteria. The code should set required energy budget performance levels for a range of building types, sizes, occupancies, projected levels of intensity of use, and location. The energy budget shall state the energy inputs and outputs of the proposed building or other development in BTU's per cubic foot or in webts per square foot; and shall give the extreme mean heat loss/gain of all buildings in peak heating and cooling seasons. All proposals for enclosed developments shall include outline specifications for the following: microclimate description of the building site; microclimate modifiers such as planting; total building exterior cladding material; building insulation; building thermal inertia:and energy storage capability; major building energy using and controlling equipment such as for lighting, heating, ventilating, and air conditioning. b. Projects ReQuiring Energy Budget Analysis. An energy budget, including outline specifications, shall be required for residential developments of four or more dwelling units, or commercial or industrial projects of 5,000 square feet of floor area or more., It.shall be signed by a California registered engineer or certified architect. Proposed light commercial structures of less than 2t7OO square feet may be exerppted from the specification standards without submitting an energy system analysis, provided a California registered engineer or certified archi- tect states in writing that the specific proposed design would be expected -185- to meet or have a lower annual energy consumption than the minimum es- tablished performance for the project type. Consideration should also be given to developing an exemption procedure for single family homes that would permit administration of energy conservation measures through local building codes without necessitating undue cost in the preparation of energy budgets. C* Projects Meeting Budget Standard Exe=t from Specification Requirements. A proposed building or development that meets the required energy budget performance level set in the energy budget code, as shown through an energy system analysis, shall be exempt from such specification criteria as those described in Policies 123 through 125- [E-P81 d. Research and Train&Z Needed. To facilitate development and implementation of an energy budget code statewideq detailed research should be under- taken to define energy code standards, and a State-financed program of in-service training for building inspectors to administer the energy budget should be instituted* EE-p91 e. Int2E;Lm Budget Code for Coastal Devel2Rments. If the Energy Commission has not made substantial progress toward development of an energy budget code by Januaryl, 1977,the coastal agency sh4ll consider adoption of an interim budget code, to be applied to all development proposed within the agency's jurisdiction. Such an interim code might be submitted by a responsible professional organization to the coastal agency for public hearing and possible adoption. If adopted, the energy budget code would be implemented through the coastal permit process in the same manner set forth above. Until January 11 1977, the development and application of energy budgets should be encouraged as a contribution to energy 6fficiency and resource conservation- EFe-p8l -184- 127. Implement Other Eneergy Conservation Measures Statewide, The State Energy Commission and the State Legislature should, as part of a comprehen- sive statewide energy conservation program, implement certain other conserva- tion measures statewide, as follows: a. Tax Heavier, Less Efficient Autos.. Tax legislation should be enacted that encourages the use of lighter automobiles with smaller engines and increased energy efficiencies. [E-p9b] b. Discourage Inefficient appliances. Legislation should be enacted requiring that (1) all appliances sold in California meet specified energy efficiency standards, and (2) all appliances be clearly labeled with energy efficiency or energy consumption information- [E-p9] c. Improved Enerqy Use Standards of Existing Buildings A long-range phased program for Improving the energy use standards of existing buildings in California including replacing energy inefficient equipment.should be devised and implemented. Special loans and/or tax incentives should be considered to assist in upgradinq insulation, and incorporating low- or non-fuel-using technologies that involve,higher capital costs. [E-p9a] ALTERNATIVE ENERGY SOURCES, FINDINGS Non-Petrolewn Energy Sources could Provide 50% of added Generating.Capac- ity in California by Year 2000. There are advantages'and disadvantages to development and. use of all forms of energy. :Oil and gas, however, on which California now relies for about 90 per cent of its total primary energy, have the potential to cause significant. adverse environmental impacts at all, points-of the fuel sequence:extraction transportation, processing and consumption. There are several alternatives to continued 'heavy. dependence, on oil and gas that are environmentally superior,both for the coastal zone' and for California, and tha It,help conserve hydrocarbons for more valuable', uses suchas petrochemicals.. These sources cannot in the short term supplant a containing fundamental dependence,on oil gas, and even nuclear fission, in California But with a strong policy commitment by., government, bodies,and -185- electric utilities to high levels of research and development, and extensive marketing and public education, it is possible that non-petroleum alternative energy sources could provide as much as 50 per cent of the additional electrical generating capacity needed in California by the year 2000, and in so doing substantially reduce a broad array of environmental impacts on the coast and throughout California. [E-f491 SOLAR ENERGY Solar Ener" Has High Potential and Fewest Environmental Problems. Solar energy is unlimited in its supply and appears to pose the fewest environmental problems of any major energy source.. It will make a significant contribution on a smaller scale, as applied to heating and cooling individual buildings, and on a large scale, as applied to major electric power generation. The basic technology for solar energy applications exists; the principal remaining barriers to broad feasibility concern economic.s and engineering refinements to overcome the low energy intensity of sunlight, its daily and seasonalvariability with weather and timey and the need for associated energy storage systems. There is also concern over the large land areas and fresh water for cooling that could be required for large-scale solar energy power stations. California is particularly well suited for development of solar energy because of its high number of hours of sunshine. [E-f54a] The South Coast Region lies in a par- ticularly favorable location for mean daily solar radiation. As measured in units of Langleys (Ly), for comparisony the data for Seattle is 300 Ly, Phoenix 500 Ly, Los Angeles 463 Ly, and South Coast coastal locations about 450 Ly. EE-f54aRAJ Economic Barriers to Solar Enerp-y Can 3D Overcome. Solar energy systems for heating and cooling in new construction are now practical in both large commer- cial buildings and houses, Although the capital investment required for solar systems is higher than conventional systems (which increases marketing problems for home builders), any cost evaluation of heating systems should be done on a life cycle basis. Leasing systems? now being studied, may overcome some of the marketing problems. The life cycle costs of a solar heating and cooling system in the new General Services Administration building in Manchesterl New Hampshire, for example, are estimated to be 25 per cent less than the costs of conventional electric resistance heating and electric compression cooling. 'The economic advantages of solar systems should improve as production techniques reduce the initial costs, and as the costs of conventional fuels increase. Economy and energy-efficiency can be further enhanced when: (1) both cooling and heating are accomplished through utilization of the solar energy collector; (2) the solar energy system components and the building heating and cooling systems are co atible with each other and are integrated in a total systems concept; and (31 the buildings and'the conventional mechanical and electrical systems are initially designed and constructed to conserve energy. TE-Mc]@ 1=1ementation of Solar &stems in Southern California Can Save Natural Gas. Implementation of solar energy systems can be directly correlated with saV3-ngS In natural gas. In a large area of Southern California, over two-' thirds of the natural gas consumed directly in space and water heating could be saved by the.use of s*olar energy. On a month-to-month basis, the share of space and water heating provided by solar energy.can be expected to range from 50 per cent.to 80 per cent. Since solar energy can supply the major share of energy for space and water heating on a year-round basis9 -186- utilization of solar energy can directly reduce the growth in baseload demand for natural gas.. A corresponding reduction in requirements for new gas supply would also be indicated, or, alternatively more natural gas could be burned in the Regions.electrical.generating plants. [E-f54bRA] Among the alternative heating and cooling systems (discussed below) that have energy savIng potential are: (1) solar or solar-assisted heating and cooling; 2) heat pumps; (3) nocturnal cooling; and (4) rock-bed regenerators. Solar EnergY Can Heat Water and Heat/Cool BuiLding. As many as 60,000 solar water heaters are said to be in use in south Florida today, nearly all having been installed in the 1930s and 1940s before the advent of all-electRic living. They.are also in common-usage in several foreign countries including Japan Australia and Israel. With minor engineering developments and relatively simple architectural modifications solar energy could now be used in some areas of this country for both space and water heating at prices competitive with oil and gas furnances. Commercially installed solar heating and cooling in single buildings may be in wide use in many parts of the nation by 1985 and will be common by 1993- It is possible that an intensive development effort could bring these dates five years closer. The National Science Foundation/ NASA Solar Energy Panel predicted that ultimately solar energy could supply, 35 per bent of the nearly 2 per cent of the U.S. energy consumption now consumed for heating and cooling, and that it will significantly reduce-summer peak electricity demands. However, even if supported by energy storage systems, individual solar units may not be capable of supplying total energy needs for space conditioning and water heating. In addition to the solar units,-builders may have to install some conventional supplemental equipment. [E-f54b] Solar active (mechanical heat transfer) systems-that is, solar systems using flat- plate solar collectors with circulating fluid-can optimally provide up to 90 per cent of the total water and space heating needs of a house in the Southern California coastal area,with gas assistance as the back-up fuel. Solar passive (direct heat transfer) systems, such as roof-pond system, can optimally provide up to 100 per cent of the heating and cooling needs of a house. [E-f54bRA] Heat Pumps Can Heat or Cool a Given Space. A heat pump is, in effect, a refrigeration machine that can work in a reverse cycle thus can either heat or'cool a given space. Large electric heat pumps can heat as efficiently as properly maintained gas furnaces; they can cool-two to three times more efficiently than most cooling systems. A heat pump system can also be operated by solar power. Nocturnal Cooling Is the Simplest System that Both Heats and Cools.Roof-pond nocturnal cooling systems are technically'feasible-'and practical "for residential and low-load buildings ,in desert or valley climates such as in southern California. The operating cost-would be only a fraction of, the cost of electrical refrigeration. This is the simplest system that can accomplish both heating and cooling. Rock-Bed Regerators Provide a Cooling System. Rock-bed regenerator (RBR) cooling systems use evaporation of water in the discharge air to chill rocks in a switched-bed rock filled recuperator, which then cools inflow air. RBR's have been used successfully in Australia. The power consumption is an eighth of that needed for mechanical refrigeration.[E-f45] Solar Energy Conversion in Existing Houses Is Difficult. Conversion of existing houses to solar energy is more problematical. No more than about 35 per cent of -187- existing houses can be retrofitted to solar energy because of shading by other buildings or trees, or because building orientations or roof angles are not * suitable collectors. Retrofitting of older houses with solar systems would be. difficult to justify on a life cycle cost basis because of the shorter remaining life of the buildings. Effective Delivery System Soon Available. One of the major obstacles to near- term implementation of solar energy systems is the present lack of an effective large-scale delivery system (design, productiong marketingt and installation skills). However, such a delivery system is now beginning to appear in California; several corporations have undertaken programs for production and marketing solar units. With some governmental encouragement, the delivery system necessary for broad implementation of solar systems could be available within a few years. EE-f54c] In the South Coast Region, an effective delivery system does not yet exist that is capable of supplying the design, technical, production, and installation skills at the scale needed for a significant percentage of new construction to incorporate solar-assisted water and space heating.- However, such a delivery system is beginning to grow and has a high probability of reaching the needed scale between 1975 and 1978. EE-f54cRk] Institutional Barriers to Solar Enerzy Use. Other barriers to wide use of solar systems are institutional. The building and real estate industries are slow to adopt and promote any new device that raises capital costs even if long-term overall costs are lower; there are no published building design guidelines for solar energy utilization; and there are no known existing building code regula- tions for solar units. In additiong although some electric utilities have made low-level research commitments to development of individual solar units, there has until recently been little or no serious commitment from electric utilities, State and county energy plannersor legislators to this application of solar energy. The Los Angeles City Council has begun a program of solar energy investigation and developmentp and as an initial step will heat municipal swimming pools with solar energy. Solar Enemy Use Needs Legislative Sup-port. New legislation is needed to encourage the use of solar energy systems. Florida has passed a measure re- quiring new home plumbing to be designed to facilitate future installation of solar,water heating equipment. Arizona and Indiana have passed tax legislation encouraging installation of solar equipment. Essential to any solar energy program.would be a public information program. Sun Rights Legislation Wil.1 Ensure Access to Solar Radiation. "Sun rights" legislation is needed to ensure user's access to solar radiation free and clear of potential obstructions on contiguous property. Appropriate regulations must consider the.shadows, angles, and orientation of buildings varying with the time of day, the season, climatological conditionsp and the slope of the building site. Setback regulations in zoning codes are precedents for sun rights laws. [E-Mda Large-Scale Electricity Generation Needs Further Development. The full potential "if solar energy can be realized only after large-scale generation of electricity from solar energy becomes technically and economically feasible. Steam-electric systems based on the initial conversion of solar energy to heat have yet to be built on any but the smallest scale, and the necessary technology for large- scale plantst though well understood theoretically, has not been adequately demonstrated on a commercial scale. The principal problem scientists and engineers face is making solar-generated power economically competitive with -188- other electric power sources. The constraint of high initial costs may without government encouragement, delay the commercial testing of large- scale solar-thermal power generation until 1990,' although unforeseen and unprecedented rises in fossil fuel prices since mid-1973 have suddenly made solar-thermal power significantly more competitive. [E-f54e] High Solar Plant Potential in Southeast California. Solar collecting equip- ' ment for large-scale solar-.thermal plants can be centralized for commercial production of power only in areas with high annual sun.light-hour values. Much of southerny and particularly southeastern California, receives as much solar radiation and annual sunshine-up to 4,000 hours per year-as any other area in the U*Se CE-f54f] Zolai-Thermal Power Plants Need Large Amounts of Land. The principal environ- mental concern about large-scale solar-thermal power plants is the commitment of many square miles of land to collecting surfaces.. The,NSF/NASA Solar Energy Panel estimated that at 20 per cent efficiency a 1,000'Mw solar generating plant-about the size of the nuclear power plant units being built today6--will require about 15 square miles or 91600 acres of land. It is difficult to compare this with the amounts of land required by different methods of electrical energy generat3to4 but the 21000 Mw coal-burning plant in the Four Corners area, for example, will require the strip mining of 40 square miles of land . for fuel during its operating lifetime. Improved technology resulting in better' efficiency would significantly reduce land use for solar plants*- [E-f54g] Solar-Thermal Power Plants Create Heat Waste Disposal Problem. The . potential' for waste heat disposal problems would still be present in-T-arge-scale solar- thermal power plants. Such plants would still require cooling water, and this may be a problem since the optimal locations for solar plants will be arid. There is also some concern, that large-scale solar collecting surfaces may upset local thermal balances, but the consequences, if anyq are thus far expected to be quite small. [E-f54h] Solar Cells Offer Alternativ Ie to Solar-Thermal Power Generation. A second approach to production of electricity@from solar-energy involves the use of solar cells* Solar cells 'convert sunlight directly into electricity without the need for intermediate thermodynamic cycles. Solar cells were used to power manned orbiting spacecraft. Presentlyq however, solar cells are too costly, too inefficient, and not sufficiently durable-to have practical appli- cation for large-scale commercial electricity production...Some scientists believe, however, that solar cell technology is sufficiently far advanced that mass production of rooftop units for new housing could become competitive.within three to,five years, and that,use of solar cells to-power new.houses may'be common in ten years* [E-f%i@, Potential for'Ocean Thermal'Gradien-6-ElectricitZ Generation 'Is Small.. One approach to production of energy from solar energy involves the, use,of the difference in temperature between the sun-warmed ocean surface and the cold ocean depths in a heat engine to produce low.pressure steam to drive a turbine and produce electricity. Ocean waters off.the California coast, however, offer insufficient temperature differences. EFf54k] WIND ENERGY Wind is Potentially Important Enerzy Source. Wind energy is pollution-free, @volves no fuel costs, and is non-depletable. If wind were actively promoted, and its problems solved, it could become an important auxiliary energy source. Various sources indicate that by the, year 2000 wind energy c ould provide,' from 1 to 20 per cent of t6tal national electric'al.energy needs. Thus farg' however? no California public agency or electric utility forecastfor future California energy supply includes any contribution from wind energy. ,Some Potential for Individual Windmill Units. Individual windmill generating units can make single buildings or small building.clusters wholly or partially energy self-sufficientp but such units'are no longer manufactured in quantity, and individual unit capital c6st (including battery storage) is presently high. Zroblems of Wind Energy Must be Solved. Wind is a problematic source of electrical energy. It is erraticq low in average velocity and densityp and variable in directiong and its energy is not easily stored on a large scale. Wind will make its most-significant contributions to energy needs only when systems have' been.developed that can efficiently and inexpensive'ly convert wind to electricity or other energy forms on a very large scal *e. Scientists .believe that these problems are not technologically difficult. CE-f551 Wind Energy Generation Does Pose Environmental Concerns. The principal environ- mental concern about wind generation is with the appearance and noise of both individual and large-scale wind generation equipment in scenic c oastal areass Offshore locations could mitigate these concerns. More Wind Research Is Necessarve Additional wind research is required to establish the ultimate potential of California's coastal and inland wind resourcev [E-f553 SOLID WASTES Solid Wastes a Potentially Important Enerjzy Resource. Solid wastes represent still another resource with.substantial energy potential already exploited in other parts of the world, although recycling of suitable waste material may result in greater overall benefits to society from both an energy and a resource preservation point of view. Half of the 75 million tons of.solid wastes produced annually in California is collectable, and that refuse could. furnish 10 per cent of the fuel oil needed by utilities at prices competitive -with other power generation fuels, or could furnish gas for direct use by residential and commercial customers. Despite the significant potential of. solid waste conversion for reducing the demand for depletable fossil fuels and nuclear expa.nsion in Californiat few efforts have been made to realize the potential. The State Solid Waste Management Board, legislatively established in 1972f mayhelp overcome institutional problems that partially impede development of State and county programs for the recovery of energy--and materials-from solid waste. Detailed below 'are four principal methods of energy recovery from wastes. Incineration Already in Use in Two Maior American Cities. Incineration, or direct burning, of refuse can produce recoverable heat for production of steam, which in turn can be used in power'plants (St. Loilis)q in industr79 and in local heating and cooling systems (Nashville). Incineration systems can present air pollution problems. [E-f561 PyrolXsis Pilot Project Pro]2osed for El 2aaM. Pyrolysis is a flexible method by which separatedy shreddedy treated wastes are heated in a kiln to cause their chemical decomposition into various low heat-value gaseous or liquid hydrocarbons. These can be utilized with other fuels in conventional fossil fuel plants. SRI expects commercial systems will be available in 1976-77. An EPA-funded pilot plant proposed for*E1 Cajon would process about 200 tons of solid wastes per day, with each ton ultimately producing one barrel of low. heat-value oil. San Diego Gas & Electric would burn the oil either directly or mixed with No. 6 fuel oil to produce steam for electric ppwer generation. A Baltimore pilot project newly in operation will convert 1,000 tons per day into gas for steam generation. Hydrogenation Most Efficient System for Obtaining 011 from Wastes. Hydro- genation involves adding steam carbon monoxide, and a catalyst to organic wastes in a pressurized containerg and heating it to cause chemical reduction into a heavy paraffinic oil and other hydrocarbon forms. A system using @dry@ waste solids can produce as much as two barrels of oil per ton of solids. Several pilot plants are.in operation or are planned with commercial appli- cation expected by 1980. [E-f561 Bacterial Conversion Can Produce Methane Gas from Solid and LiMad Wastes. Bacterial conversion is a process u;ing anaerobic b-a-c-te-ri-a7which flourish without free oxygen) to decompose. organic wastes to,, produce a mixture that is 72 per cent methane-the principal component of gas-. A ton of dry organic waste can produce 10-aXIOOQ cubic feet of methane. Commercial recovery of methane is feasible at sanitary land fills. Sanitary engineering has long utilized anaerobic digestiontbut use of this process to maximize methane recovery has received little or no attention. Methane recovery from the secondary treatment- of liquid wastes can make an important incremental con- tribution to natural gas supplies. [Ewf%] METHANOL Methanol Provides a Versatile Fuel for Immediate Use. Methanol, or methyl alcohol, constitutes an alternative fuel form whose widespread use could immediately help to solve both energy supply and pollution problems. Methanol is a colorlessp odorless liquid which can be made from practically any other fuel--@natu@ral gas, petroleum, coal, oil shale,, wood, and farm and municipal wastes- giving methanol practically unlimited flexibility in utilizing various energy sources as theeconomy and conditions dictate@and offering a means of reducing the nation's waste disposal problems.. N2thanol Caa Be Easily Implemented into Present' Fuel Econo . Methanol use @ould not.require any major,changes in current@technology to accommodate its integration into the present economy... It can be easily stored in tanks in the same manner as conventional fuels and can be shipped or piped, as can conventional petroleum products. More:im portantlyv.up to 15 pe cent methanol can be.added-to commercial gasoline1n cars now in use without re- quiring.engine modification. Some carburetor adjustment would be required. This-methanol-gasoline mixture results in higher octane ratings (thus reducing the need for lead)9 improved@economyq lower,exhaust temperatures,9 lower emissions, and improved performance. Tests have shown-that engine conversions to accommodate 100 per cent methanolp which cost about $100 per vehicle, result in one-twentieth the amount of-unburned.-fuel-and one-tenth..the. amount of carbon-. monoxide released to the.atmosphere c-ompar'e'dto'burning gatolinei and would eliminate, the need for catalytic treatment. of exhaust. Even greater economy and performance could be expectedfrot engines d.esigned-specifically-for the use of methanol. [E-f591 Methanol Can Be Used in Electric Power Generation. A potential use of methanol is for electric power generationy particularly in gas turbines. A recent test comparing use of methyl fuel with-use of No- 5 fuel oil and natural gas in a full-scale boiler demonstrated that use of methyl fuel resulted in elimination of particulate and sulfur compound emissions, substantial reductions in nitrogen oxide emissi'ons and carbon oxide concentrati 'onsl and negligible emissions of aldehydest acids, and unburned hydrocarbons. Soot deposit,s.in the furnace from previous oil firing were burned off with methyl fuelt thereby allowing higher heat transfer rates and higher efficiencies. [E-f591 Availability Is One of the Problems in the Use of Methanol. The principal drawback to the immediate use of methanol is its availability. The technology for initial production and use on a large scale exists.. A 1.972 AEC report estimates the cost of producing methanol from lignitey coaly and natural gas to be slightly higher than the costs of. producing gasoline from crude oil. Since 1972, howeverl the cost of crude oil, particularly from foreign sourcesq has increased dramaticallyr thereby making methanol production comparatively more economical. The use of methanol in automobiles will require larger fuel tanksv since specific fuel.consumption of methanol is higher on a weight and volume basis than gasoline. However, specific energy consumption per mile will be lower because higher compression ratios and simpler pollution controls can be used. The storage of methanol mixed with gasoline may present some problems because methanol is much more soluble with water than is gasoline; where condensation will form in gasoline storage tanks (sometime@s causing corrosion) methanol will absorb the water, keeping the tanks dry. Problems may arise in the storage of large quantities of methanol.mixed'with gasolineq. unless the tanks are dried out prior to injection. Distribution systems for methanol fuels must also be more water-free than existing gasoline distribution systems. A further problem is the corrosive effect of methanol upon some kinds of metals used in fuel distribution and storage facilities (including auto fuel tanks). [E-f591 HYDROPOWER Hydraowerl.s.Rol-e in Future Energy Mix Is Limited. The percentage of California's energy and electricity supply provided by hydropower has declined sharply from 59.7 per cent of the total electricity supply in 1950 to about 36 per cent in 1970 (9 per cent of the State's overall energy supply). Hydropower appears unlikely to meet any substantial part of an increase in the State's energy needs . There are undeveloped potential hydropower sites in California; however, their limited potentialp combined with concern about the environmental impact of such facilitiest land use conflicts, and,high:capital costs, may preclude significant future hydropower development within the State. E-E-f50] California Imports Significant Portion of Hydroelectric Power. In 19709 23 per cent of California's hydroelectric power was transmitted from facilities located along the lower Colorado River and in the Pacific Northwest.* Because of the expected.increase of energy demand within the latter area, however, it is possible that export of electrical energy to California in future years may significantly decline. [E-f5O]. Pu=ed U,111ro-power May Be Used to Store Ene A principal use of hydropower in the future may be in "pumped, hydropower" projects for storing energy* to meet peak demand. Such projects would permit more efficient use of base load power plantsp and would help reduce the need for additional power -192- I plants otherwise necessary primarily to meet peak demand, although in some instances such projects may require more electrical energy for pumping than they, actually produce. Present plans of electric utilities project 31600 megawatts of pumped hydro capacity by 19911, and one source forecasts 10,500 Mw pumped hydro capacity by 2000. Pumped hydro projects can in some instances be bui-It.at existing hydroelectric sites,,but will in other instances involve reservoir and dam construction, with attendant land use and environmental problems, and with loss of fresh water and increased water salinity due to evaporation. [E-f50] COAL Importance of Coal, as a Direct Fuel in California Is Minimal. Although the U,,S, has an overwhelming abundance of coal, California has no significant indigenous coal supplies. Coal has not traditionally- been an important fuel in California; the high costs of transporting it, and the lack of large coal deposits closer than 350-550 miles from the State's major cities, have made coal a poor primary energy alternative in a state relatively rich in oil and gas* Strict State air quality regulations have made coal a still less attractive fuel in Californ3ia.)though desulfurization and particulate control are available. [E-f511 California Imports Electricity Generated by Out-of-State Coal-Fired Plants. In 1970 coal provided only 1 per cent of California's energy needs. By 1985 this figure is predicted to rise to 3 per cent. Most@of this increase will be accounted for by increases in the amount of coal-fired electricity generated in Arizona'I Nevada, or the Four.Corners area and imported b high-voltage y transmission into southern California. SRI has estimated that 59000 to 15,000 Mw of electric generation capacity from out-of-State c.oal-burning power plants could be available to California users by 2000- EE-f5l] Synthetic Natural Gas to be Produced from Coal and ImDorted to California.. When commercial production of synthetic natural gas (SNG) from coal is begun in the Rocky Mountain coal deposit areasq California will begin to receive some measure of SNG from coal-by pipeline-primarily for residential and commercial use. If large-scale gasification plants scheduled for construction and operation near mine sites in the Western states should come on lineas scheduled, such SNG imports could begin as early as 1978-79. SRI has predicted that SNG from coal may constitute as,much as 16 per cent of California's natural gas use by 1990. The cost,of developing such sources, as well as the amount of water required,, has put some of the more optimistic figures in doubt. Environmental Problems from Use of Coal. The coal mining and coal conversion operations in the'Rocky Mountains and Four Corners areas have severe environmental consequences in the immediate mining areas. EE-4513 NUCLEAR FISSION Nuclear Fi ssion Power Generation Expected to Grow; Public Safety Problems. The AEC has 'predicted that nuclear energy will become the dominant source of 'electricity in the 1990s and will account for as much as 60 per cent of the nation's generating capacity in the year 2000. The proponents of nuclear power point out that it is smog-free, and that its use reduces.air pollution that would otherwise result from fossil fuel power generation, and conserves 110 fossil fuels. They also argue that nuclear energy is safe and the prospects 1 1 -193- of a serious accident extremely smallp and express optimism over the resolution of radioactive waste disposal problems. Reliability and high cost factors in nuclear reactors arealso of increasing concern. There is a growing public concern, however, over such matters as the safety hazard associated with the potential for a serious accident that might permit escape of radioactive material; the possibility of acts of sabotage or terrorism using nuclear materials.stolen prior to or during the transport of fuels or wastes; and the uncertainty as to how to dispose safely of nuclear waste materials that will remain highly toxic for many thousands of years. NucjgaX Plants 42ouire Cooling Systems. Light-water reactors MWRs), in which the Uo6o has invested most heamy, are,thermally less efficient than fossil fuel power plants, and therefore emit more waste heat. High-temperature gas-cooled reactors (HTGRs) are thermally as efficient as the most modern fossil fuel plants. Systems for dissipation of waste heat can have significant environmental and land and water use impacts. [E-f52] Breeder Reactors Also Have Problems. Francep E 1 and the U.S*SoR. have experimental liquid-metal fast breeder reactors@=asYin operation at this time. The Federal government is committed to the rapid development and wide- spread deployment of this technology. Most of the problemsassociated with converter reactors also affect breeder reactor development. In fact, because breeder reactors require a fast neutron flux and a highly concentrated fuely ,they actually present greater health and safety problems than conventional reactor technologyo [E-f52] Accelerated Breeder Reactor Program May Be Unwarranted. The breeder reactor program is being accelerated because of an apparent fear of an eventual shortage of uranium, but a California Institute of Technology study shows that even the most enthusiastic projection of the expansion of nuclear power generation through 2020 could be fueled from presently known domestic uranium supplies. Though the cost for these supplies would r 'ise, the effect on the average delivered cost of electricity would be minor. Cther recent analyses have similarly concluded that there is not sufficient justification for an accelerated breeder reactor development program. EE-f52] GEOTHERMAL Geothermal Power Is a Desirable Energy Source Geothermal energy has great potential in California. Despite environmental problems of waste water dis- posalp soil erosiong disruption of wildlife habitat, disposal of drilling muds, hyd-rogen sulfide and small Radon 222 air emissions, land subsidence@ and noise (All of which experts believe are manageable), the geothermal fuel cycle is less polluting than that of fossil or uranium fuelso Geothermal energy represents a very long-term resource that may have the potential to supply up to 15 per cent of the additional electrical energy capacity required by 2000. California's only commercial electrical energy produced fi-om geothermal is from a dry steam field called The Geysers in Sonoma County@ under development by PG&E; geothermal energy has non-electric applications in California for heating water and buildings and for.recreation (hot mineral baths, for example). [E-f531 Geothermal Potential Is Significant. There are 35 potential geothermal resource areas covering more than 15 million acres within California. Geologic research and activity has largely been ponfined to the three most promising sites: The Geysersp with a present capacity-in excess of 400 Mw; the Imperial Valley; and -194, the Mono Lake-Long Vailey area. A fairly conservative range of potential generating capacities from geothermal sources is as follows (listed in megawatts): Imperial The Geysers Valley Other Areas 1980 1,300 0 -700 0 1990 1,300-3,OO0 1,000-4,000 0-3,000 2000 1,300-5,000 1,000-8,000 O -3,OO0 [E-f53] TIDAL ENERGY Tidal Energy Not Promising in California. Although the total potential energy in the world's tides is enormous, and represents a nondepletable source of energy, present technology can only economically convert tidal energy to electricity where tidal ranges are very large and inlet mouths are.small enough to-make damming for a hydroelectric plant feasibLe. Such conditions are rare, and exist nowherein-the U.S. except in Maine and. Alaska. The damming of. an entire bay or estuary for a tidal hydroelectric generating plant has severe environmental and ecological effects. Unless there is a radical redesign of existing technology for the conversion of tidal energy California should not expect tidal energy to make a contribution to meeting its energy requirements. [E-f57] NUCLEAR FUSION Nuclear Fusion Is not a Commercial Reality in this Century. Nuclear fusion differs from nuclear fission in that energy is released through fusing the nuclei of two atoms, rather than through splitting atoms. Nuclear fusion would use as basic fuel heavy hydrogen, which is limitlessly available in seawater. The various economic environmental, and safety advantages expected from nuclear fusion appear to make it a significantly more viable long-term energy alternative than fossil fuels or nuclear fission. Even with greatly increased research and development activity however, most experts believe that various theoretical. and technical problems still blocking the path to electricity from fusion are so enormous that fusion probably will not become a commercial reality or a significant factor in meeting California or national energy needs within this century.[E-f58] ENERGY STORAGE Energy Storage Increasingly Important in Energy Systems Planning. Energy storage is becoming increasingly important-in planning energy systems that minimize the, environmental impact of meeting energy demand. Energy storage techniques can be applied to enable longer periods of operation for base load power plants and thereby reduce the requirement for additional generating facilities; to change energy from one form to another for more economical,convenient or environmentally clean transmittal or application and to make practically feasible such alternative energy, sources as solar,wind,tidal, and thermal gradients, which produce energy inconsistently or at a very slow rate.. Significant energy storage techniques include pumped hydro storage,fuel cells, storage batteries, flywheels', and conversion of energy in other forms into hydrogen. [E-f60] -195- .POLICIES 128. Encourage Development of Alternative Energy Sources. Development of alternative energy sources should be encouraged for large-scale power-generating facilities in new-and existing small-scale developments. a* RegUire Consid eration of Alternative EnerSX Sources. The coastal agency shall require that every application for a major energy installation include detailed evaluation of alternative methods for providing the same amount of energy to customers. [E.-pl0a] b. Encourage Ener&X Efficient and Energy Self-Sufficient Development. The State Legislature should enact laws providing tax incentives for building owners or developers to install low- or non-fossil fuel energy systems, which might include solarassisted water and space heating, solar-assisted cooling, nocturnal cooling, evaporative coolingg heat pumps, absorption refrigerationg photovoltaic electrical energy generationg total energy systems with waste heat recoveryl anaerobic sewage generation of methane gas for energy uset windmill electric generatorsv fuel cells, and energy storage systems and other feasible alternative energy systems. Such tax incentives might includep for examplev investment credits to owners of buildings or a reduced property tax rate on buildings so equipped- EE-P101 129. Implement :Use of Solar-Assisted Heating and Solar-Assisted and Nocturnal Cooling. The following measures are recommended to the State Energy Commission for its consideration in developing statewide programs for implementing alterna- tive technologiesq and shall be applied bv the coastal agencv within its jurisdic- tion if a significant program is not in effect statewide by January 19 1977. ae Require Alternative Heating and Cooling Systems. Solar-assisted water and space heating systems and solar-assisted or nocturnal cooling systems (where buildings require cooling systems) shall be required on all new or substantially remodeled single or multiple-unit residential structures; -196- on commercialp institutionalo and industrial structures; and on heating systems for such facilities as swimming and hydro pools. This policy shall go into effect when the State Energy.Commission (or the coastal agency, after Janu- ary 1, 1977) has determinedv after appropriate public hearings9 that an effective delivery system exists in California-that isq that the professional expertise in designy manufacture, installation and maintenance of solar- assisted heating systems or solar-assisted or nocturnal cooling systems capable of meeting at least 50 per cent of the building's projected heating or cooling needs with a high degree or reliability, exists in the Statep and that the necessary hardware is commercially available. Such a deter- mination should take into account the varying meteorological conditions throughout the State. .[E-pl-la] b. Where Policy Shall Not Apply. In the case of so.lar-ass.isted heating and cooling systems, this policy shall not apply to any residential, commercial; or industrial building (1) where, because of the site conditions and adjacent existing or possibie obstructions, over 50 per cent of the potential,collector surface would be in shade between the hours of 10 asme and 2 pom* on the Winter Solstice (December 22); (2) where an applicant can show that a sblar-assisted system.could not be incorporated in his project within a reasonable period of time;. (3) wherean applicant can.show that the best practical and available solar system.wi-11 not provide a lower life cycle, cost than the proposed conventional system at an interest rate equivalent to the prime interest rate on the subject type of construction. [E-p11I ce Testing-and Certification;-Retrofitting of Solar Heating Systems; Rights" Ordinances. In conjun ction with this policy, the State Energy Commission and the State.Legislature should (1) set testing and certifica- tion standards for solar systems; (2) undertake a program that will lead -197- to retrofitting with solar heating systems existing buildings and swimming or hydro pools that use gas@and/or electricity, wherever technically and economically feasible; (3) require that local government-agencies adopt "sun.rights" ordinances relating to building setbacksv heights, bulk, orientation, air rights, densitiesq and landscapingg to ensure that owners of buildings or property will have the benefits of free and clear access to sun radiation 'on existing or potential collector systems at all times of the year. [E-pl1b] d. Require Capability to Incorporate Solar Collector System. Until it has been determined that an effective'delivery system does existp the coastal agency shall condition all new residential and commercial structures proposed in the coastal agency's jurisdiction by requiring that they (1) have the structural and design capability to later incorporate a flat plate or other type of solar collector,system capable of reducing by 50 per cent the gas or electricity used for water and space heating; (2) be built according to site plans that guarantee solar collectors clear and optimum-exposure to the sun; and (3) shall install the solar-assisted water and space heating systems upon the order of the coastal agencyg after a public hearing where it has been determined that a solar-assisted system with a life-cycle cost lower than conventional systems is available. Such solar systems shall include adequate energy storage capability to provide heat during periods of abnormally severe weather conditions and to prevent unnecessarily high peak loads on conven- tional generating facilities caused by use of conventional back-up systems. Consideration should be given to requiring performance bonds to ensure compliance. [E-p1l] 130. Determine Potential of Alterruitive Energy Sources and Promote Resolution of Related Implementation Problems. The State Energy Commission, the California Public Utilities Commissiong the State Legislaturev and where appropriate such Sta te agencies as the Division of Oil and Gas, the Geothermal Resources Board, the Solid Waste Management Control Board, and the State Water Resources Control Boardshould undertake research and development programs to (1) resolve technological, environmental, economic, institutional, and legal problems presently hindering development of-the large geothermal resource present in, California; (2), determine the potentials for large-scale commercial and single- building solar and wind generation, analyze the problems impeding early development of those potentials, consistent with othe r Coastal Plan policies, and actively promote development and implementation of solar and wind conversion technologies; (3) implement a program for-.recovering energy and materials from solid wastes (including animals wastes) and sewage and for using methanol as a more efficient, less polluting fuel form to substitute for other conven- tional hydrocarbon forms. [E-pl2] Energy Facility Siting and Design FINDINGS Warren-Alquist Energy Act Creates New State Enerp_y Commission. On January 7, 19759 the new California Energy Resources Conservation and Development Commis- sion (hereafter referred to as the State Energy Commission) came into existence. This.new Couiriission, created through passage of the Warren-Alquist Energy Act (AB 1575) in the 1974 Legislative session, has a broad mandate (1) to assess: trends and to forecast statewide demand for electricity and other forms of energy; (2),to determine-the need for,ne 'w power plantsand t.o,evaluate and. certify proposed designs and sites either on the coast or inland (power plants in the coastalpermit zone still require*separate Coastal Commission permit approval); (3) to study and promote the development of new alternative energy resources and new generation and transmission techniques I; W-to prescribe and carry out new and expanded energy conservation measures; and (5) to make recommendations to the Governor and Legislature for State policies and actions for the orderly development of all potential sources of energy to meet the State's needs9 among other duties. '[E-f3l Siting Authority of State Energy Commission Is Limited. Despite its very broad mandate to act on energy issuesy the State Energy Commission has authority _199- to-approve siting for only one of the five types of energy supply-related develop- ment that could affect the coastal zone: electric power plants and transmission facilities. Most of-the new power plants presently being planned, however? are explicitly exempted from the provisions of the Energy Act. More significantlyg under its present mandate, the State Energy Commission will not determine when or where exploration and development of State offshore oil reserves will occur, or have permit authority for siting onshore facilities associated with.State and Federal offshore oil development, tanker terminalsy refineries, or lique- fied natural gas terminal and gasification facilities. Other Agencies Lack Sufficient Jurisdiction. Other State agenciesl.such as the State Lands Commission, the California Public Utilities Commission, the State Water Resources Control Board, the Division of Oil and Gasp and the Air Resources Board, all regulate activities affecting energy development in Californiap but none has the jurisdiction over all such facilities that.would permit a compre- hensive, balanced approach to ener gy conservation and development throughout the State. [E-f4i Coastal Commission has Permit Authority Over Enerp-7 Facilities Along Coast. Because of the Energy Commission's limited siting authority, and because AB 1575 gives the Coastal Commission a separate permit authority for power plants proposed within the coastal permit area, the Coastal Commission must develop energy facilities siting policies to meet its own planning mandate and deadlines, recogn@zin& r- hat these decisions may ultimately be reviewed by the Energy Com- mission. LE-f4l Coordination by One Statewide Enerp_7 Authority Needed. Determinations of energy needs and development of an inventory of sites for all major energy facilities might best be coordinated by a single statewide energy authorityp with the opportunity for intensive review and comment at all planning stages afforded to all concerned agencies, and with a separate permit authority for the environmental and land use aspects. of coastal siting decisions reserved to the coastal agehcy. [E-f4l Cgastal Agency Can Work Closely with Other Agencies on SitirLa- Permits. The goal of comprehensive energy planning will be best served by the coastal agency's working closely with the Energy Commission and other State and local agencies in developing its siting policies and evaluating permit applications. EE-f4l POLICY 131- Need for a Statewide Agency to Plan and Regulate Energy Facilities* The Legislature should extend the permit authority of the State Energy Re- sources Conservation and Development Commission (hereinafter referred to as the State Energy Commission) to all oil and gas production, processing, and transmission facilities as well as power plants within the State. The coastal, agency should have permit authority concurrent with such authority of the. State Energy Commission over the environmental and land use aspects of any -200- such facilities proposed in whole or in part within the coastal zone. The coastal agency should participate fully in review-and comment procedures established by the State Energy Commission for all initial stages of planning. [E-p1J POWER PLANTS FINDINGS Several New Power Plant Sites Will Be Needed. Additional.fos'sil fueled and nuclear power plants may be needed in the future even if energy conservation programs are successfully implemented and alternative energy sources become commercially available. Under reasonable assumptions regarding demand growth, and assuming 2,000-6,000 megawatts (Mw) per site with some expansion at existing sites, ? to 20 major new fossil or nuclear power plant sites may be needed by the year 2000 for California. With a particularly vigorous and successful effort to develop alternative energy sources and implement conservation measures, it is possible that.as few as 3 to 9 new fossil or nuclear power plant sites may be needed Statewide. With successful electricity conservation measures, the lower ends of these ranges may prove attainable. [E-f611 Alternative Energy Sources Will Also Require Power Generation Sites. Development of alternative energy sources such as solar, geothermal, wind, etc., will also require sites for power generation facilities. However, only wind may require large-scale facilities sited on the coast- Solid waste processing plants could theoretically be sited in the coastal zone, but are not coastal-dependent. Geothermal and large-scale solar plants will be located inland. Large-scale wind generation units would present aesthetic and land use problemsthough design specifications are uncertain at this time. Small-scale or building use of solar or wind energy in the coastal zone would occur as part of building construction, and present few significant adverse environmental impacts. [E-f62] Nuclear Power Plant Siting Concerns. The major concerns involved in nuclear power plant siting on the coast are: (1) safety hazards resulting from the high potential for strong earthquake events in much of the coastal zone (see Development chapter section on Geologic Hazard Areas) or from the potential for serious accident (e.g., loss of coolant) that could permit escape of radioactive materials; (2) proximity of nuclear power plants to population centers on the coast; (3) effects on the productive n.earshore marine en- vironment of entrainment. and thermal or chemical discharges from the-cooling systems; (4) the impact of plant and associated structures, such as switch- yards and transmission lines, on scenic natural areas; and (5) alteration and permanent use of sizable quantities of land for the plant itself, cooling towers, switchyards, transmission lines, and transportation and storage facilities. Fossil Fuel Plant.Siting Concerns. The major concerns involved in fossil fuel power plants on the coast are: (1) public health and safety hazards from -201- air pollution and the transportation of volatile fuels; (2) effects on the marine environment, similar to those encountered with nuclear plants; and (3) impacts on scenic and natural areas. [E-f641 Power Plants Traditionally Located Near the Coast. Though a variety of factors influence siting decisions, power plants have t7aditionally been located near the coast in order to make use of the free, abundant and nondepletable waters of the ocean and to be close to the major load centers of the State. EE-f631 Few Coastal Sites Are Suitable for Nuclear Power Plants. Very few coastal sites are suitable for nuclear power plants, compared to a much larger number of potential inland sites. The radiation hazard potential of nuclear power plants requires that the utmost care be exercised to site them away from areas of seismic risk and from population concentrations. Few coastal areas meet.these criteria, while the areas of the State that offer the least seismic risk are located inland. Studios done by the Rand Corporation and the Eft- vironmental Quality laboratory of the California Institute of Technology con- cluded that only about 50 miles of coastline are suitable for nuclear power plants. Using less conservative assumptions about safety, a study conducted for the California Resources Agency concluded that 140 miles of coastline might be suitable, but no coastal areas were considered optimal from the stand- point of safety compared to other areas of the State. The California utilities are presently considering about 12 new coastal sites for power plants between now and the year 2000. [E-f651 Inland Areas Offer Siting Options. There are many more potential nuclear power plant sites inland than on the coast that meet seismic safety and popu- lation concentration standards. The principal constraints on inland siting are the availability of adequate water for evaporative cooling towers and the need to dispose of blow down (water of high salinity concentrated by evaporation in the cooling tower). If sufficient cooling water is available, inland siting of nuclear power plants is both economically and technologically feasible; California utilities have proposed to build at some inland sites where suf- ficient freshwater supplies have already been allocated for cooling. Because of the importance of fresh water for agriculture and other uses, however, proposals to use additional fresh water for inland power plant cooling have been vigorously challenged. Much of the cooling water requirement inland could be met by reuse of municipal and agricultural wastewater. There may be competition between uses of wastewater for cooling and other beneficial purposes. New crop strains may be developed that could use what is now agricultural waste water. If the problem of nutrients9 and other water quality problems, can be solved, the continued discharge of agricultural waste water into the Central Valley river system will reduce salt water penetration into the Delta. Widespread use of waste water for cooling would necessitate the construction of waste water collection, treatment, and transportation facilities and adequate restrictions on the disposal of blow down to the waters of the State. The cost of such facilities could be defrayed by the electric utilities themselves. Energy conservation measures, and use of more efficient reactors such as the HTGR coupled with dry or dry/spray cooling towers, would minimize the pressures for developing additional freshwater water sources. [E-f6g] Power Plant Once-Through Cooling Systems Adversely Impact the Marine Environment. The cooling systems of both fossil and nuclear power plants can have adverse environmental effects. Once-through cooling systems of the designs now used -202- in all existing coastal power plants (cooling water is used once and then discharged into the ocean or other water body) have multiple impacts on the marine environment and have potential for ecological damage caused by increased water temperatures, entrainment of marine life, and other effects as described in the Marine 'Environment Chapter. Redesign may,reduce those impacts. [E-f671 Evaporative Cooling Towers Will Eliminate Many Impacts on the Marine Environment. Evaporative cooling towers consume 25-40,000 acre-feet of water per year per 1,000 Mw, and release heat directly to the atmosphere. Evaporative cooling towers may cause localized atmospheric changes (such as fogging) and drift (fallout of particles carried in water droplets) which under some conditions could be adverse; but these problems can be minimized or eliminated by modern engineering and strategic siting. Evaporative cooling towers using salt water are becoming more feasible as drift eliminators are improved, reducing the danger of contaminating the surrounding land area., Such towers would eliminate many of the concerns over impacts to the marine environment but would present the added problem of generating concentrated brine requiring disposal. [7,4671 Viability of Dry Cooling Towers Not Es Itablished. Dry cooling towers, which operate like a car radiator, and dry/spray towers, which add an evaporative system in combination with dry towers, require little or no water but are larger and more expensive than evaporative towers. While dry cooling towers are technically feasible their commercial viability for use with large-scale power plants has not yet been established. EF-f671 Cooling Towers Are Visually Obtrusive. All cooling towers are large.structures? with resulting visual impactstand they result in some efficiency penalties in the use of energy sources. EE-f671 Reactor Types and Cooling Systems. Because of their lower efficiency in con- verting heat energy to electricity, nuclear light water reactors (LWRs) give off more waste heat than fossil fuel plants or other types of nuclear plants, and therefore require more cooling. The commercial feasibility of the high- temperature gas-cooled reactor (HTGR), which has a higher efficiency and therefore req7es less cooling than the LWR, has now been demonstrated. HTGRs using dry spray or dry cooling tower systems appear to be well adapted for use at inland sites where water availability for cooling is a significant problem. While there is some loss in energy efficiency in the use of cooling towers (dry towers are less energy-efficient than evaporative towers), this energy cost may be necessary to reduce depletion of other resources. [E-f687 Underground Siting Is Feasible. Underground siting is technologically feasible, but is more expensive than aboveground siting. The environmental benefits of underground sites are considerable because of reduced visual impact, possible safety advantages afforded by some t es of rock formAtions, and the potential for multiple use of the land. [E-f@lo Offshore Nuclear Plants Are Feasible But Potentially Hazardous. It now appears technologically feasible to construct offshore nuclear plants on floating platforms or artificial islands. However, this is much more likely to occur on the East Coast, where the wide, shallow continental shelf permits mooring and breakwater construction at some distance from shore, than off of California, where the shelf drops off abruptly into deep waters. Although offshore siting would significantly reduce land use conflicts and the environmental effects of cooling systems, serious questions remain regarding visual impacts if located _203- close to shore, the potential.hazard to navigati-04 and the likelihood that a major accident resulting in release of radioactive materials would cause immediate contamination of the biosphere. Such hazards have not yet been adequately reviewed. Although two plants are being planned for sites offshore of New Jersey, no offshore plant has yet been licensed by the AEC. Siting concepts have also been developed for floating nuclear plants in manmade or dredged lagoons. EE-f711 Fossil Fuel Plants Adversely Impact Air Quality. Fossil fuel plants in California are expected to be primarily oil-fired in the future because of the decreasing availability of natural gas. Oil-fired power plants represent large stationary sources of oxides of nitrogen and sulfur, and the problem of sulfur dioxide emissions will-become particularly severe if low-sulfur fuels become unavailable. Though significant research and engineering efforts to reduce air pollutant emissions are continuing, fossil fuel plants at present do have a significant adverse impact on air quality, particularly in critical air areas where pollution levels are already exceeded, and in areas especially sensitive to air pollution, such as specialty agricultural and coastal recreation areas (see Coastal Land Environment chapter)- EFr--f 661 POLICIES 132. Coastal Agency Role in Power Plant Siting. The coastal agency should have permit authority over the land use and environmental aspects of power generation and transmission facilities proposed at sites located in whole or in part in the coastal zoneyand should have the right to review and comment at all pre- liminary stages and on all aspects of proposals for such facilities presented to the State Energy Commission. Such permit authority should be concurrent with the permit authority of the State Energy Commission; it should also include permit authority over new power plants or expansions proposed for the coastal zone that have been exempted by law from the State Energy Commission permit requirement. As is presently suggested in the Warren-Alquist Energy Actt in conducting these various regulatory reviews, the coastal agency should work closely with the State Energy Commission in order to facilitate and expedite the administrative proceeding, including making its decision before the Energy Commission makes its final decision. EE-P131 133. Coastal Agency Role in Ongoing Site Identification Process. The coastal agency should be granted a substantial ongoing role in State Energy Commission -204- statewide siting policy formulation and.,site identification processes.. The role of the. coastal agency in, siting power plants should not be interpreted as an effort'to exclude all power generation facilities from the coastal zone. Coastal siting decisions shall be determined by: the demonstrated need for such facilities measured within the context of a comprehensive conservation program'; protection of inland as well as coastal resources; and full cooperation with al-l.State, Regional, and local interests. EF-p141 134. Sitingand Design Criteria for Coastal Power Plant@s. New power plants should be approved in the coastal zone only when.it can be demonstrated that the following siting and design criteria and standards can be met. [E-P151 a. Energy Conservation and Peak Load Reduction Efforts. The applicant must demonstrate that energy conservation efforts, including concerted efforts by the applicant within it's servi ce area,cannot r easonably reduce base load and peaking requirements sufficiently t-o eliminate the need for the proposed facility. be Evaluate Alternative Inland Sites. The applicant must show.that using obtainable inland sites or alternative technologies would have greater adverse'environmental impacts than would be the case with a coastal site. Environmental impacts shall be those presently identifiable... In evaluating alternative sites and technologies, in addition to the factors included in the Warren-Alquist.Energy Act, considexatibn,,shal,l be,given to evaporative, dry and dry/spray, and salt water evaporative cooling towers., and the following. potential.water sources should be con- sidered in evaluating the impact of providing cooling water at inland sites: (1) surplu s freshwater supplies already allocated to power generation but not presently being used; (2) agricultural or municipal waste water; (3) freshwater supplies that can eventually be replaced by.waste water and -(4) other freshwater supplies, if it is determined -205- that there is sufficient water available after the reasonable needs of other users are met so as not.to deprive-inland or.coastal areas of fresh water needed for agricultural production. To assist in evaluating al- ternative sites the utility or utilities proposing the coastal site shall submit a comprehensive evaluation of reasonable alternative coastal and- inland sites and generating technologies, including the environmental reasons for rejecting them in favor of the proposed site, sufficiently in advance of a desired decision that an adequate and independent analysis can be made. The primary responsibility for the identification of such alternative inland sites should rest Tirith the State Energy Commission, and the identification or certification of such a site by that Commission demonstrates that such suitable al@ernative'inland sites are available. ce Prefer Expansion Over New Plants, In the case of a proposal for a new coastal site, the appl. icant must show that the need for new capacity cannot or should notbe met by plant expansion at an existing inland or coastal site which has been identified as su-itable'for expansion* The primary responsibility for the identification of such sites suitable for expansion should rest with the State Energy Commission, and the iden- tification or certification of such a site by that Commission demon strates that such suitable sites for expansion are available. d. Conflict wi th Coastal-Dependent Uses At or Near Site. The-applicant must demonstrate that the proposed power plant and the land use restrictions required by the State Energy Commission on the surrounding area, as re- quired by the Warren-Alquist Energy Act to protect public health and safe ty will not conflict with other existing or planned coastal- dependent land uses at or near the site. e. NucleaIr Plants Must Be in Seismically Safe Areas. In the case of a 01 nuclear power plant, the applicant must show the proposed site is in _206- an area of minimum seismic hazard in comparison to-alternative:sites reasonably.capable:of serving the applicant's service-area; the proposed plant is designed to safely withstand the effects of the most severe s'eismic'activity thought possible in the site area; and the number,of people and their distribution within the potential radiation hazard area meets AEC and State Energy Commission criteria,and the people can be readily evacuted in the event of emergency... Use Least Environmentally Damaging Technologies. The applicant must show that the generation and cooling systems-proposed are the least environmentally damaging, technologies 'projected to Ibe available at the time-of scheduled construction. The cooling system technology employed shall meet the requirements of policy. Improvements in the cooling systems existing facilities at.the site may be weighed by.the coastal agency in determining compliance with this subsection,., g* No Degradation of-Air Quality-, -In the case of a proposed new coal- 'or oil-fired electric.generating plant at a new site,.or a proposed plant expansion at an existing site, the applicant.must demonstrate 'that the project will cause no significant degradation of air quality The facilities shall be sited and desiqned to;minimize the 'effects of pol- lutahts for which there a re designated Federal or State ambient air quality standards,and shall employ the least polluting technology to be available at the time the facilities are designed to go into operation. Such facilities shall not be built in areas of the coastal zone designated by: the Air Resources Board 'as'critical air areas", or in areas where coastal resources (such as health resorts or agricultural lands) would be adversely affected, unless the coastal agqency [E-p15g],in consultation with the State Energy Commission [L-p18a], determines that there is no -207- alternative inland or coastal location where siting would result in less environmental degradation. In no case shall expansion take place in a critical air area., or in an area where coastal resources @uch as resort or agricultural areas) would be adversely affected, unless there would be a net decrease in generating system emission of pollutants for which national or state ambient air quality standards have been established. Normally this requirement'will apply to each individual plant for which expansion is proposed, unless it can be demonstrated that the emissions from two or more near-by plants affect the.same geographic, area in an equivalent manner. If such-a determination can be made, then the plants involved can be treated as one unit for the purposes of this policy. Reduction in emissions can be accomplished by modernization or retirement of existing facilities. [E-Pl5g and L--pl8aJ In addition, consideration should be given to utilizing plant equipment and design ca- pable of easy conversion to such clean fuelsas methanol, when they become availabley or there should be findings of fact that methanol is not and will not be practical for use at the particular plant- EE-P15RA-1 h. Minimize Environmental and Scenic Impacts. The applicant must design and locate the plant so it will be set back from the shoreline to avoid adverse visual impact on the shoreline and will minimize adverse environmental effects, including but not limited to.effects on fish and wildlife and their habitats, and on scenic, agricultural, and other re- sources of the coastal zone. The plant should not be located in a highly scenic area as defined in Policy 48. i. Public Access Area Necess2a. The applicant must show that a substantial area will be established for permanent public use and enjoyment of the coast. This may include a substantial dedication of,land to the public. [E-P151 -208- Regional Amplification: South Coast: There are no sites in the Region presently suitable f or new fossil fuel or nuclear power plants consistent with the objectives of the Act. Should new technologies become,available, proposals for future power.generating,facilities,at a new site in the South Coast .Region shall demonstrate to- the.coastal agency that the facilities meet' or exceed,criteria, present or future,-set down in all elements of the, Plan concerning seismic,thetic, environmental, health- marine life and safety matters* The Commission shall consider proposals to construct new peaking facilities,such as a combined,cycle facility or.a plant with emissions similar to Scattergood No. 3., in dispersed locations in the coastal permit zone provided.such proposals incorporate the least.environmental. ly damaging technologies practical at the time of scheduled construction. Factors which should, be considered are whether theindividual.facilities are less than 500 Mw in capacity; are located in industrial zones; are located more than three miles from an existing thermal plant site of more than 500'Mw capacity ( to hold down the local effects-of the emissions to the air and Water); are designed to minimize their visual impact; use closed cycle cooling systems.;., and meet the prevailing APCD emissions standards and the prevailing water quality standards. The Coastal agency,shall consider all applications for expansion,(e.g., by dding waste-heat boiler's):or.modernization of existing power.plants provided that the total air pollutant.emissions into the South Coast Air Basin are not increased, meet prevailing APCD emission standards, meet prevailing Water Quality Board discharge standards, have cooling systems redesigned to elimin ate adverse marine impacts, best efforts are made to utilize waste water treatment plant effluents, and.the new facilities are designed to minimize their visual impact. The.coastal agency shall expedite and approve all applications for new oil storage or transportation systems, serving the Regionls.eletric generating 'plants providing that. the facilities.incorporate the least environmentally damaging technologies practical at thetime of the scheduled construction and that they are located on industrially zoned land. [E-pl5RA] 135., Remove Outmoded Plants from Beach Areas-, First. As alternative, less en- vironmentally damaging technologies become widely available,so that sbme of the existing fossil fuel or nuclear,generating:facilities can-be phased-out and removed pr iority shall ,be given to rem oval of- those facilit ies that, are in prime beach recreation areas. [E-P15j] PETROLEUM DEVELOPMENT FINDINGS California Has Potentially Recoverable Petroleum Resources. California has three general areas'of petroleum production: onshore, State waters offshore, and Federal waters offshore. Estimates as to how much recoverable oil remains in theseareas vary greatly, and depend on assumptions as to: (1) the size of known reservoirs and reservoirs thought to exist because of favorable con- ditions but not yet verified; and (2) the percentage of the oil in California reservoirs that might ultimately be recovered (average recovery efficiency). Using reservoir data from publications of the California Resources Agency and the National Petroleum Council, and assuming that California's historical average recovery efficiency of about 25 per cent prevails, the following figures describe California's estimated potentially recoverable petroleum resources-proven reserves plus 25 per cent of the petroleum thought to exist based on geologic data, but not yet discovered: Onshore 10.0 billion barrels Off-shore 12'8 11 .11 Total California 22:8 Using the same reservoir data, but assuming.that increased oil prices and improved recovery technologies might result in an improved average recovery efficiency of up to 35 per cent, as some experts believe possible for Calif- ornia, the following figures describe the estimated potentially recoverable petroleum resources: Onshore -19.8,billion barrels Offshore 18.6 Total Californi 37.4 ia [E-f721 Offshore Areas Are Future Locations of Oil and Gas Production* California's onshore petroleum resources are still very substantial, though the largest reservoirs have probabl. y been discovered and substantially developed already, and most of the remaining undiscovered onshore resource may lie in smaller pools and at greater depths than the reservoirs that historically have accounted for much of California's oil production. Increased on-shore production will depend on improved secondary and tertiary recovery techniques, and on rising oil prices that encourage increased exploration, deeper drilling, and secondary and tertiary recovery from discovered reservoirs. The offshore resources now offer the least expensive option for rapid production of large volumes of@oil in California. Much of the California offshore resource is close to the shoreline, and therefore production facilities may-be highly visible from' the coast. Most of the oil offshore of California is believed to lie beneath Federal submerged lands beyond California's jurisdiction, as much as 65 per cent of it at water depths of 1,500 feet or more. The extent and cost of developing the Federal offshore resource willnot be completely known until exploratory drilling occurs. EF,-f731 Current'Offshore Production Comes from State Leased Areas. Most present California offshore production comes from leases in the Santa Barbara Channel and offshore Wilmington and Huntington Beach reservoirs. According to 1971 data, there are over 1,800 actual producing wells on State-owned submerged lands -210- between Point Conception and,Huntington Beach. The State receives lease pay- ments and royalties from any petroleum production on its submerged lands, which are managed by the State Lands Commission. The vast majority of the State's-submerged lands have been made State petroleum resource sanctuaries, in which no petroleum recovery activities are allowed. Laws creating ad- ditional petroleum, sanctuaries have been proposed in the California Legisla- ture and the U.S. Congress. Coastal cities (e.g.,Long Beach) also hold several leases and receive a portion of the petroleum revenues; the State Lands Division maintains operating authority on the leases., [E-f74] Moratorium Placed on New.Offshore Drilling in State Waters. In 1969,fol- lowing the blowout on a platform in Federal'waters off Santa Barbara, the State Lands Commission placed-a moratorium on new drilling offshore.in State waters. In December 1973 the State Lands Commission voted to permit drilling of new wells from already-built platforms on existing leases, subject to approval on a lease by"lease basis. In late 1974 the Lands Commission .. granted approvals to several oil companies for such drilling, but then re- versed these decisions in early 1975 pending further evaluation. [E-f74] Federal Lease-Sale of Southern California Areas Scheduled for July 1975.The Department of the Interior has called for lease proposals from oil companies for petroleuM drilling in huge areas of submerged lands offshore of Los Angeles County beyond the three-mile State jurisdiction, for lease proposals for large areas off central and northern California at a later date, and for increased drilling on existing Federal leases in the Santa Barbara Channel.If the De- partment of the Interior decides to proceed with its lease-sale' of the southern California area, the sale will occur about July 1975.[E-f75] New Prposals for Federal Government to Sponsor Eloration. The Chairman of the State Lands Commission and some members of the California congressional dele- gation are presently proposing that the Federal government sponsor all explora- tory drilling on the Outer.Continental Shelf (OCS), either by contracting with private-companies to perform the work or by developing a governmental-capability to do such exploration. This proposal would permit the government full knowledge of the extent of the OCS resource and the value of s ecific OCS areas prior to any leasing to private companies for development [new] California Has No Control over Federal Offshore Drilling Although these Federal activities may affect California's ocean water quality, marine life, and scenic values could possibly deplete oil reservoirs extending under adjacent State submerged lands, and may directly lead to significant onshore-develop- ments of refinerieries,.tanker terminals, storage tanks and pipelines re-' quiring permits from the Coastal Commission California has no dir ect control over the Federal plans at. this'time.[E-f75] Deficiencies in Federal. Offshore Regulation and Supervision Are Being Remedied. In the past,Federal,regulations governing drilling and production procedures on Federal submerg Ied lands, including requirements for depth of casing I -for blow-out preventers and crew -training and supervision, have been less' stringent than California,Division of Oil and Gas regulations governing operations on State submerged lands,where there have bee no significant spills resulting from offshore oil and,gas operations. Deficiencies -in-Federal regulations led directly to the well blow-out in Federal waters off Santa Barbara in 1969. Federal regulations, procedures, and regulatory staff are now being greatly upgraded. It is expected that-when revision of Federal regulations for the -211- Pacific Coast area are completed, they will be in substantial conformance with those of the State. [E@476] Petroleum Production Is Declining. The leasing of lands, exploration, dril- ling, and production of petroleum is an expensive and risky process. Offshore exploration and production operations are generally much more expensive than onshore activities. Exploration for petroleum has generally decreased in California and nationwide, however, over the past 20 years. The success rate of finding and completing new petroleum fields has also steadily declined. Petroleum shortages, increased costs of extraction, and the need for technolog- ical research.continually push the price of petroleum upward, which in turn should allow increased exploration and research toward technological advances. Over the first six months of 1974 exploratory and drilling activity have in- creased. [F,-f8O] Regional Amplification South Coast: Production of petroleum in the Los Angeles basin peaked in 1969; the same is true for production in the coastal area of the Basin. Exploratory drilling has been at historically low levels in both the onshore and offshore portions of the coastal area. Oil production and development drilling are both likely to continue to decline, although the increases in crude oil prices since 1973 may reduce the production declinerate below the approximately 10 per cent per year rate normally experienced by California oil wells. It is projected that the average rate of decline in California production shipped to Los Angeles/Long Beach area refineries will be four per cent per year to 1985' EE-f8ORA1 California Has a Low Recovery Rate. The nationwide recovery efficiency of oil has steadily increased to approximately 31 per cent. California's 25 per cent recovery efficiency lags behind other major oil and gas producing regions due to: (1) generally high viscosity of much of California's oil, and the relatively low pressures affecting reservoir drive properties of associated natural gases and water; (2) complex geologic formations holding the petroleum, with many reservoir problems; and, to a lesser degree (3) lack of State regulation that might maximize ultimate recovery of oil and gas by regulating well completion and production practices. [E-f771 California Has Less Stringent Regulation over Petroleum Development. Completion and production practices in many oil-producing States, including Alaska, Louisiana, Texas, and Wyoming, are regulated by a State agency (the Canadian province of Alberta also regulates petroleum development). California's laws do not provide for actual regulation of completion and production practices by the Division of Oil and Gas, and the California petroleum industry is allowed very wide discretion in production rates and such practices as simul- taneous production from many pools, and optional ratios of gas/oil production, which in turn can lead to low recovery efficiencies. Some other states also have requirements for public disclosure of exploratory data within some period of time after filing with the state regulatory agency, to increase geologic investigations, stimulate exploration, promote a more competitive industry, and increase oil production; and the Department of the Interior has proposed regulations for OCS lease purchasers that would require public disclosure of geological and geophysical data following the purchase, to be made public within six months. California has no such disclosure requirement. [E-f78] -212- Secondary and. Tertiary Production Methods Will Improve Petroleum Recovery. Secondary and tertiary production methods offer the promise of increased efficiency in recovering oil and gas. California-has benefited,from secon- dary recovery.innovations and their application. About 15 per,cent of California's present oil production comes from secondary recovery operations. In some reservoirs, very little primary production is possible., but secondary recovery may increase production after primary recovery by 10-50 per cent of the original oil in place,and teqrtiary recovery may offer the potential for a total recovery of 30-70 per cent. Substantial improvements in recovery efficiency will reqquire.improved technology, greater capital investments higher well maintenance costs., and a-higher,price for refined product. With a greatly increased effort at secondary and tertiary methods average recovery. efficiency for California may ultimately go-as.high as 35-40 per cent of original oil in place. [E-f79] Existing Wells Will Provide Increased Production: Consolidation of.Drilling Sites Is Desirable. Increased primary, secondary, and tertiary production from existing wells will entail substantially fewer.new developments and land use conflicts than exploration and drilling virqiinal reservoirs onshore or offsore Unitization (development of a reservoir as a single unit) consolidation concentrates activity within smaller areas than does separate development by several petroleum companies. Unitization is particularly desir- able offshore-economically environmentally, and aesthetically. [E-f81] Offshore Oil Structures Are Visually Prominent.Offshore petroleum operations are usually conducted from mamade platform bove thewater'surface. Exploratory'drilling and some production drilling are primarily accomplished from mobile platforms, whereas most production of oil and gas is controlled from fixed platforms. It is Very difficult to 'make the judgment that.offshore oil drillin and production platformsare intrinsicall at.variance with the objectives of the Coastal Act. There has been substantial objection by some segments of the public to their use, based primarily on aesthetic grounds and concern for navigational safety. Because of.their.size and.the elevation of coastal lands, these platforms can be seen from the coast even when.located at great distances (12-20 miles) from the shoreline; they are particularly, prominent when located near the coast. The existing,.designs apparently have large margin for improvement. Some members of.the public note with approval their beneficial effects on sport fishing. The deepest platform production in the world presently is in 420 feet.. Exxon Company U.S.A. plans,to construct. and operate a fixed platform in,850 feet of water in the Santa Barbara Channel." [E-f82 and RA] Platforms and Islands Offer Multiple.Public Uses., Offshore oil.drilling facilities, whether located on.artificial,islands or platforms, can provide public uses.other than that of extractin g,oil. Under certain safety and aesthetic conditions, additional-functions. could be provided.; This would likely require.some engineering.adjustments within sound principles of industrial and marine.safety oqn the platforms.. Additional functions, which may be appropriate for some installations, are scientific and educational accommodations, such. as a physical oceanography research and education lab; general public accom- modations for the.observation of drilling operations; government,installations (Coast Guard., weather service)aquafarming and mariculture operations ; and platform self-sustaining poWer equipmIent. [E-f82RA] Subsea Completion and Submerged .Production Systems Reduce Costs and Aesthetic Impact . As of mid-1974, approximately 40 individual wells in shallow water -213- on State-lands in the Santa Barbara Channel area had been completed entirely underwater rather than from permanent @latforms, by using.11subsea,completion systems-." Such.systems still require support facilities on permanent platforms or onshore, but permit reduction in the number of platforms required@for the , development of the offshore.res.ource. More sophisticated "submerged production systems," which-would permit clustering of numerous wells completed'subsea around a single subsea center that would in turn pump the oil and gas to facilities on platforms or;onshore,,would still further reduce the need for platforms. This would reduce both th4laesthetic impacts of offshore develop- ment and the.great expense of constructing platforms in deep'waters.. Actual- experience with subsea completions and submerged production systems, in deep water is still extremely limited. The difficulties involved in servicing or repairing such system's mean increased environmental risk. Such facilities. need to be tested extensively by industry under operational conditions, with. full observation afforded to appropriate goverment agencies, before they are utilized in deep water offshore activities.. [E-4831. Offshore Drillin@ Is -More Hazardous t Ihan Onshore. -Oil and gas leaks in offshore drilling-or production are statistically rare, and steadily improving.offshbre drilling technology should still further reduce the incidence of occurrence. However, the draft programmatic Environmental I;mpact Statement prepared the Bureau of Land Management for the nationwide accelerated Federal offshore leasing program noted:'that major spills associated with OCS development are inevitable. The California offshore environment is relatively mild compared to the environment in offshore drilling areas elsewhere in the world, such as the North Sea and the Gulf of Alaska, and therefore presents somewhat re- duced environmental-risks. Nevertheless, even in California offshore drilling generally involves greater environmental hazards than,onshore drilling.for several reasons: (1) People are at a logistical disadvantage in working in the offshore environment, whether on the surface or underwater. Response tim@ to crisis is slower than onshore, and the ability to maintain equipment and receive supplies is constrained. (2) Offshore facilities are 'subjected to more danger, including storms, vessel collisions, seawater corrosion, low water temperature problems, water currents, seismic'activity, and tsunami (seismic sea waves). Platforms can be designed and constructed to withstand' known Pacific Coast phenomena. (3) Leaks of oil and gas are more quickly diffused, and more difficult to Plug- EE--f841 Basic Spill Cleanup Methods Help Minimize Environmental Damage If an oil spill should occur, the substances must be contained and recovered quickly to minimize environmental damage. Present containment methods utilize floating booms or pneumatic curtains which confine the oil. Recovery methods include absorbing materials (e.g.,' straw), suction devices, adhesive materials to re- move the oil from seawater, and skimming mechanisms that remove oil from water. Oil may also be dispersed into the water column by the addition of chemicals, collected with gelling substances, forced to the sea floor by combining with sinking agents, or burned with combustion fluids. Use of sinking and burning agents are generally forbidden by the California Department of Fish and Game. [E-f851 Spill .Containment and Cleanup Methods Are Still Inadequate. Since 1969 larger amounts of money have been spent on improving oil spill prevention and con-. tainment programs and for cleanup equipment. Although the technology for containment and recovery of offshore oil.spills has improved since the Santa Barbara.spill, no system is likely to be completely effective. Using pre- -214- sently available equipment, oil containment and recovery can be reasonably effective in calm waters; but moderate to stormy conditions (winds of 20 or more knots and wave heights over five feet) will seriously hinder deploy- ment of equipment, and will spread the spill regardless of containment attempts. Such conditions will also act to disperse and degrade the spill. Most oil spill contingency plans, including the National Oil Spill Contingency Plan implemented under the guidance of the Coast Guard and.the,State of Cali, fOrnia Oil Spill Contingency' Plano have beentested under simulated conditions but have not yet been proven under actual crisis situation. [E-f86] (For further findings on oil spills and spill -liability, as well as Coastal Plan policy, see Marine Environment section.) Oil Field Brines Can Be Disposed of by Reinjection into Oil Producing Zones. Inadequately treated oil field brines released at sea are highly polluting. In many instances, these brines can practically be disposed of by reinjecting them under pressure into oil producing zones. In addition to protecting water quality and decreasing odors.associated with oil production, this,prac- tice can frequently help increase oil recovery from already-developed reser- voirs.. The Water Quality Control Board presently issues discharge require- ments and the Division of Oil and Gas regulates any reinjection of brines. [E-f90] Offshore Production Will Encourage Onshore.Development. Offshore,petroleum production may encourage greater industrialization in certain areas of the coastal zone, will increase water and land transportation,- and will necessitate construction of oil and gas pipelines and storage facilities. Offshore pro- duction off California could reduce the need for additional tanker terminal, capacity along the coast. [E-f89] POLICIES 136. Need for Offshore Development Should Be Clearly Determined. New offshore oil and gas:developmentof State or Federal lands shall be permited only af ter: (1) development of the Outer Continental-Shelf (OCS) off California ha's been clearly identified as,an integral and priority'part of a comprehensive, balanced national,energy"conservation and'development program that'gives consideration to full-scale energy -conservation programs,and. to short-term and longterm- resource., availability [E-pl6b]; or(2) a comprehensive analysis has determined the need ,for California .offshore production in light of the anticipated-inflow to California and PAD.V of oiland other. forms, of, energy from all other resource's including:onshore oil,production,Alaska North ::Slope oil,and gas production, production,in, other regions of Alaska. _'foreign -oil,, and:.. gas imports-, -and in view of, California, projected.capacities to refine and store.the anticipated inflow -215- ,of oil from sources other than new@offshor6e production [E-pl6a_1-, and (3) the codstal'agency determines that the impacts on onshore resources and possible- impacts on the coastal zone marine resources-as a result of OCS development are acceptabie'according to the standards set forth in the Coastal Plan'. [E-pl6c-1 Bagizaal..Amplification Central Coast: The current prohibition of oil exploration and drilling. in the,State tidelands of the Central Coast Region should be retained un- less overriding nationalneed is demonstrated. EF-P16RA1 137. Require.Full Evaluation of Offshore Drilling Proposals. Applicants for drilling permits in State offshore lands shall be required to submit to the State Lands Commission, State Energy Commission, and coastal agency one-, five-, and ten-year plans for exploration,, production, and all related onshore and offshore development (including platforms, submerged production systems,. pipe- lines, separation and storage facilities, and refineries) that might follow iiI,@drilling is successful. To the extent not already provided in the required California Environmental Impact Report, such development plans shall include, the economic, environmental, and aesthetic impact on the.immediate,.area and the entire coastal.zone of offshore and onshore facilities and operations, in- cludingall transportationand -distribution facilities, and all measurestomiti- gate any environmental hazards of onshore and offshore activities, including alter- natives to the anticipatedfacilities, programs for containment and recovery of potential, oil spills, andimprovements in marine traffic lanes, navigational equipment, and traffic control. The adequacy of such measures shall be taken into account in approving or disapproving the application. Plans shall also include discussion of petroleum supply-and demand as.specified in Policy 136. [E-P171 All the facilitiesland accommodations required in the lease shall be completed on a predetermined schedule specified:in the lease. EF_p21RA] .Plans shall be recognized as'being dependent upon the results of 'exploratory 01, 1 drilling and changing techniques, and, as such, flexible, but changes -216- 1 in such plans shall be justified by the applicant with full disclosure of supporting data. [E-pl?] 138. Allow Offshore Drilling Only Where Safe. Offshore drilling and production shall be permitted only where it can be demonstrated that: (1) the most advanced state-of-the-art drilling and pr oduction technology is utilized; (2) the geo-' logic characteristics of the area have been adequately investigated and are consistent with safe drilling and production; and (3) the proposed well sites are the least environmen Itally hazardous and aesthetically disruptive. sit es feasible* E-Fpl8] 139. Consolidate Drilling, Production, and Processing Sites. All petroleum- related development and operations shall be'consolidated (i.e., drilling, production, separation facilities, and support sites shall be unitized- developed and operated by a single company or group of companies for the benefit of all interested companies-or shall be shared) to the maximum extent feasible, unless it can be shown that unitization or consolidation will not reduce the number of facilities, or significantly reduce the number of pro- ducing wells or support facilities required to produce the reservoir economi- cally and with minimal environmental impacts. For offshore facilities, unitization negotiations shall be entered into by all operators holding State leases covering one producing structure, and unitization of a new offshore field shall be carried out before comme rcial production is initiated.. The unitization or consolidation requirements shall apply to all types of offshore platforms, submerged production systems, pipelines, storage facilities, separation facilities, and equipment and rights-of-way for transporting petroleum to re- fineries, whenever technically and economically feasible, and where legally permissible. [E-p19J -217- 140. Use Submerged Completion and.Production Systems Where Feasible and Environmentally Safe. Subsea completi .on of wells and submerged production systems shall be used where environmentally safe, as demonstrated through adequate testing of equipment, through adequate testing of equipment by industry, observed by the appropriate government agencies, and where technically and economically feasible. In those areas where oil platforms or islands would have a substantial adverse environmental effect, including degradation of aesthetic values, no offshore drilling should be permitted unless and until subsea completions or submerged production systems are demonstrated to be environmentally safe. [E-p201 141. Platforms Preferred Over Islands; Minimize Impact of Platforms. Where subsea drilling, completion, or production is found to be technically or economically inf easible, or environmentally unsafe, thereby making platforms or islands necessary to development of the resource; or where platforms are necessary to service subsea completions, or submerged production systems, the following policies shall apply. [E-p21] a. Prefer Plat-forms. Platforms shall be preferred over islands wherever safety considerations permit. b. Minimize Number of Platforms. The number o f offshore platforms shall be minimized by using each platform to drill as many wells, and/or to service as many subsea completion and produc tion systems, as is technically and Uyfeasible, and environmentally safe. ecOnOmica C. Review Design of Facilities. The design and aesthetics of the platforms or islands shall be carefully reviewed by the coastal agency and by the immediately landward local governments, and shall be consistent with the general design criteria of the Coastal Plan. d. Allow Recreation in Waters Off Platforms. The waters surrounding new plat forms or islands shall be open to sport fishing, diving, and boating, consistent with boating safety rules and practices. -218- e. Consider Multi-Purpose Public Area. Prior to actual construction of an artificial island, if an island 'is determined to be n eeded, full considera- tion shall be given to installation of multi-purpose public interest uses, including but not limited to small-boat landing piers and amenity public recreation areas, scientific and educational facilities (e.g., marine biology, oceanography and meteorology research stations), public tours of drilling operations, Coast Guard or U.S. Weather Service station, or aquaculture.operations, consistent with public safety and other policies of the Coastal Plan. It the State Lands Commission and the coastal agency find.such multiple uses to be technically and economical- ly feasible, they shall be required in the terms of the lease (or sub- sequently in the construction permit if no.t.determined at that time). f. Prevent Polluting Runoff. All water that contacts working surfaces of oil islands (including rain runoff) shall be contained and not allowed to drain in an untreated state into the ocean. -Treatment shall be adequate to remove essentially all petroleum or chemical residues from the estimated maximum amounts of runoff water. [E_p211 142. Minimize Impact of Onshore Facilities. All.onshore drilling, production, and onshore support facilities for offshore operations, including separation plants, pipelines, terminals and storage facilities, shall be designed and located to minimize their environmental impacts consistent with recovery of the resource. Pr ior to putting up leases for.bidding, the.State Lands Commission should submit its lease provisions relating to hinimizing the environmental impact of anticipated associated facilities to the coastal agency* Wh Ie.re such.development would, result'lh -'substantial. adverse' impacts to the resources of the coastal zone, it shall be. p.ermitted only upon a demonstration that there is a need for the project, as'specified in Policy 136 _219- that alternatives would have a areater adverse environmental impactq and that there is little likelihood of improvement in technology that would sub- stantially reduce such impacts in the immediate future (e.g., new technology for carrying out subsea productiony oil and gas separation, storage, and natural gas liquefaction that might reduce the need for large onshore facili- ties). [E-p221 143. Increase Oil RecoverV Efficiency. The California Legislature should: (1) enact legislation to require the California Division of Oil and Gas to regulate petroleum completion and production for individual wells, including setting maximum efficient rates of production, as analogous government agencies do in other major oil producing states; and (2) adopt a resolution calling for the Federal.Energy Administration to encourage primary, secondary, and tertiary production from existing wells. EF-p241 144. Disclose Exploration and Production Data. The Legislature should enact legislation requiring that all original exploratory and production data from surveys or drilling of wells (including all logs, complete well histories, cores, drilling cutting, water samples, chemic'al analyses, pressure and temperature measurements, etc.) be submitted within 60 days after finishing to the Division of Oil and Gas, with appropriate ass urances of strict.con- fidentialityland shall be made public information one year after submittal, except that where such public disclosure would result in severe inequity to a well operator, year-to-year extensions of confidentiality might be granted by the Division of Oil'and Gas- EE-p251 145- Protection Against Any Adverse Impact of Federal OCS Development. The Coastal Commission or the coastal agency, the California Legislature, the California congressional delegation, the State Lands Commission, the Division of Oil and Gas, and all other concerned agencies should seek agreement from 01 1 -220- 1 the Department of Interior,and other Federal authorities that Federal Outer Continental Shelf (OCS) leases will be approved by the Depa'rtment.of Interior only if the following conditions are met: as Demonstration'of Need. Need forFederal OCS development off California must.be.clearly determined as required in Policy 136. [8-p273 b. Full.consideration.should be given to proposals.that the Federal govern- ment sponsor all exploratory drilling on the OCS, either by contracting with private companies to perform the work, or by.developing a govern- ,mental capability to do such drillingg in order to acquire full data about the OCS resource and its.1value prior to any leasing to private companies. [new3 C. Provide for Public Review. ODDortunities for effective review of proposed OCS development plans must be provided for the general public, interested units of State, regional, and local goverment, and other segments of the communities most immediately effected by OCS development activities. d. Develop and Disclose Long-Term Plans. One-, five-,_and ten-year.plans. for petroleum production and all related development as described above in Policy 137, and their impacts on the California coast, should be fully developed and disclosed., eo Prevent Drainage of.State Petroleum Sanctuaries.. The leases in.question should be clearly separated from the State petroleum sanctuaries to pre- vent drainage of oil and gas reservoirs that may lie partially on State submerged lands. f. Establish Stringent Safety Standards. Petroleum production under Federal jurisdiction off the California coast,should be made subject to safety standards at least as. stringent as those for production on State-regulated offshore areas (i.e., those contained in the California Division of Oil and Gas regulations andthe manual of procedures of the State Lands Division). -22.17. Evaluate Unitization or Consolitin Ion PossibiJ-it:Les& The possibility of unitization or consolidation of all operations and facilities'should be fully evaluated and required where feasible,as described in Policy 139. h. Consider Use of Subsea Systems. The Possibility of -use of submerged dri I I ing, completion, and production systems that.have been adequately tested to meet rigid environmental safety standards should be fully evaluated as apartial alternative to platforms.- i. Some OCS Revenues Should Go to States. The Federal government should agree to provide moneys to California (arid to other coastal states) prior to leasing, with the funds to be reimbursed either through a fee related to production volumes, or by making available a portion of its revenues from OCS lease sales or production royalties, or by gran@ing funds from some other source, to assist the State and local governments in planning for and overcoming or mitigating any adverse impact of this production (e.g., planning for transportation terminals, additional refineries, pipelines and storage areas, and other support facilities in a way that minimizes environmental impacts), and to assist the State and local governments to purchase land for recreation or provide other amenities along the coast to help offset the impact of OCS development. Designate Sanctuaries in Certain Areas. -Sites and tracts should be designated as sanctuaries (1)'if they are unusally subject to the risk of*oil spills due to geological seismic disturbance; or (2) if they offer unusual coastal aesthetic assets or the local economy is p&rticularly dependent upon the protection of coastal aesthetic assets. Portions of the Santa Barbara Channel, Monterey Bayy and Santa Monica Bay would appear to be candidates for sanctuary status. [E-p271 k. Compatibility with Coast al Plan Policies. Federal OCS development and related activities should be compatible with policies set forth in 91 1 the Coastal Plan. -222- 146..Prevent Subsidence; Reinject Oil Field Brines. Liquid and gas extraction projects that could cause or contribute to subsidence hazard (where there is a potential for significant present or, future property damage) shall not be .permitted and existing operations stopped unless it is determined that there: is no reasonable alternative. In such cases,.the best available techniques for minimizing or preventing land'subsidence shall be utilized.* [G-p9] Lease or@unit operators constructing new faci lities shall reinject all oil field brines into oil producing zones unless injection into other subsurface zones will reduce environmental risks. Exceptions to reinjection will be granted.only aftersubmission to the-coastal agency of detailed plans adequately providing for the elimination of petroleum odors and all potential fresh water or ocean water quality problems. EE-p23] Monitoring programb'torecbrd.land surface and nearshore ocean floor Movements shall be continued in all areas of subsidence.problems and shall be initiated in locations of new large-scale fluid extraction on land or nears hore before operations begin. Such monitoring shall continue during and after liquid and gas extraction operations until surface conditions have stabilized. Costs of monitoring and mitig&tion programs shall be borne -by liquid and gas extraction operations, overseen by an appropriate State agency. [G-p5] REFINERIES FINDI@GS Existing Refineries Are Near Cities and the Coast.. 'The 34 exis-ting C.alifornia oil refineries have a total capacity ofl-.8 million'barrels per day (b/d). Of these 'refineries, 115 arein the Los Angeles area (@tO121000 b/d), 6..in the San Francisco Bay Area (625tOOO-b/d), 9 in Bakersfield (141,000 b/d)p. and..the re-... maining kat scattered sites(30-000 b/d). These sites were chosen by-the oil companies primarily to accommodate the large' market 'areas (major.cities),but alsop in part, to be close to supplies of crude oil (both'inland ,and water- borne). Most of the Los Angeles and San.Franclis'co plants.refine crudeproduced in-State as well as foreign crude brought in by tanker. No State agency oversees the siting of refineries in order to maximize the efficient and safe location of facilitiesy and minimize the environmental impacts. [E-f1053 -223- , Three Refinery Expansions Are Proposed in the Coastal Zone. There are 11 projects for additional refinery capacity proposed in California. Only three of these are at sites in the coastal zone. The one major coastal zone site ekpansion-El Segundo-was approved by the Coastal Commission in June 1974. The two other projects are a 100vOOO @/d new refinery proposed near Carlsbad, set back one to two miles from the coast and designed primarily to provide low sulfur fuel oil to San Diego Gas and Electric's Encina power plant, and a 609000 b/d new refinery proposed near Ventura. FE-fllll Refineries Emit Air Pollutants. Petroleum refining produces emissions of particu- lates, sulfur oxides, nitrogen oxides .I olefins (reactive hydrocarbons)p aldehydesp ammonia, hydrogen sulfidef and carbon monoxide. The type of emissions and emission levels from any particular refining operation will depend on the type of process units the refinery employsy among many-other variables. Refinery air pollution emissions have been decreased in modern refineries by improved combustion technology, better operating procedures, and more conscientious control efforts, but they have not been eliminated. [E-f108] Existing Refineries Normally Do Not Exceed Ambient or Stationary Source Standards For Most Types of Pollutants, In administering-th.e Federal Clean Air Act, the Environmental Protection Agencyq State a5encies (Air Resources Board) and local Air Pollution Control Districts (APCDs control the allowable levels of some pollutants from single stationary sources (such as refineries) and also set standards for ambient air quality. In California, existing.refineries gen- erally do not exceed ambient or stationary source standards for emissions of sulfur oxides? nitrogen oxidesp particulates, and carbon monoxides during normal operations. Under the Clean Air Act, major new stationary sources are to be prohibited if they would interfere with the attainment or maintenance of ambient air quality standards. It is possible that a new refinery might be capable of meeting the stationary source emission standardsp but not be per- mitted because it would interfere with attainment of national ambient air standards or with other more rigorous air quality goals. [E-f108] (See also the Coastal Land Environment section on Air Quality regarding current air quality degradation standards.) Hydrocarbon Emissions Are of Special Concerne. Of particular concern are refinery hydrocarbon emissions. Hydrocarbons combine with oxidants and sunlight' in a photochemical reaction to produce photochemical oxidants. The Federal ambient hydrocarbon standards are a guideline to help achieve the ambient photochemical oxidant standard. At least one major study, however, disputed by the oil industry, questions the technological ability of any refinery to meet the Federal standards for hydrocarbon emissions, and cites the need for further study of this critical issue. EE-f108] Two recent studies by the National Academy of Sciences and the University of Southern California School of Medicine suggest a relationship between hydro- carbons emitted by certain refinery processes and a higher incidence of lung cancer mortality in populations exposed to the hydrocarbon in question. These studies are still incomplete,. and the conclusions are admittedly extremely tentative. Refineries cang howevert contribute to the deterioration of the overall quality of an air basin, which in turn can cause eye and lung irrita- tion and aggravate respiratory and cardiac ailments* There are presently no comprehensive State or local regulations governing the residential use of L.hin the "health-effect distance" range of refineries. land VL' -224- Refinery'Pollution Impacts Elsewhere. Refineries can.'also haveadverse.effects' on agricultural activities and flora generallyi- and on propertys, EE-f1091 (See Coastal.Land-Environment section on Air Quality.) Refinery Emissions May Be Offset by Reduced Emissions From Its.Products. -While.even the most modernrefineries will produce.some emissions, the'pro-, duction of@llcleanerlt petroleum.p'roducts can result in a net reduction of air pollutant emissions in an area. This can-occurvhen these "cleaner". products replace more highly pollutihg-products presently in use., 'Maximum restorative.benefit to an area that already has air quality problems can be achieved by siting the.refinery outside of the problem air area, while utilizing the cleaner products within the@area. EE-f1081 California'Lacks Adequate Desulfurization Refining Capacity. One of the beneficial products that refineries can contribute is low sulfur fuel oil. Low sulfur fuels ornatural gas must be burned in fossil fuel-powered - electricity-generating power plants in order to meet air pollution emission standards. The demand for low sulfur fuels has-increased greatly in the past two years with the decrease in availability of natural gas for use in power plants and industry. California presently lacks sufficient desulfurization refining capacity to meet this demand. -California has therefore had to rely on importing.large volumes of low sulfur crude oil and residu al fuel oil.,both of which are expensive and hard to.obtain on the world market. Additional Desulfurization Capacity Offers Advantages. If desulfurization capacity is constructed in Californiai refinery costs will be significantly increased. The-import requirements for hard-to-get low sulfur crude oilp however, will decrease, and although the total volume of crude oil needed in Calif ornia. will not be reduced, the abi I ity to -utilize high sulfur fuel ol I will provide greater supply flexibility and reduce crude costs. New desulfuri- zation refining capacity is now.under construction at,the Richmond and.El. Segundo@refineries (Standard Oil of California); and a new refinery proposed near Carlsbad (Macario Independent Refinery) would also have direct residual fuel oil desulfurization capability. California could benefit from additional refinery desulfurization capability. EE-fl061 Refinery Siting Is a Complex Problem.. The degree to which states can allow air quality to be ltdegradedg" even if it would still meet Federal ambient air quality standardsp is presently being contested in courts. Further refinery capacity may be forced to move outside critical air basins if it interferes .with attainment of air quality goals; but, on the other hand, refineries may not be permitted to "significantly" deteriorate the air quality of pristine areas. Air quality regulations and their implementation are extremely controversial, and are presently still in a state of flux. [E-f108] sical Siting Criteria For Refineries* Although small refineries can be built on,tracts no largerthan,200-300.,acres in sizej."major new.refineries typically require as much as 500-1!*500 a6res'6f landtincluding a surrounding landscaped buffer area. 'They require municipal water supplies.,for cooling,, and treatment facilities adequate to handle large waste volumes. They are large-scale, visually intrusive industrial developm,ents.y Even,the most modern refineries may occasionally emit noise and odors, and represent significant single.sources of air.po1_1Utants.,jE-f111] Remote Siting of Refineries Is Feasible With an Increase in-Product Cos@ss-.. Primarily because refined products must be kept segregated during shipping and -225@ storage operationsq.the transportation@_of refined products.is more costly tban transportation of crude oil; therefore, proximity of refinery sites to market areas is a greater industry priority in siting decisions than proximity to tanker terminals. For example, Standard Oil of California is willing to pipe crude oil a distance,of 277 miles from its proposed Estero..Bay superport to its Richmond refinery. Thusy they are-not "coastal--dependent. Added transportation costs resulting-from remote siting would presumably be passed on to consumers in the form of increase product prices. Other factors that.must be addressed in remote siting considerations are.the availability.of properly zoned landq pipeline.easementsy water supply for cooling? and net energy and materials requirements. Siting of refineries.away from market areas (in-California, away from critical air areas) is feasible, and would help.restore critical air areas; but it would raise the cost of refined products by as much as one to three cents per gallon. [E-fl07,1111 Refineries HavEk IM2acts on Nearby Develp .pmentse Refineries can encourage the nearby construction of petroleum-associated industries,(petr6chemical, plastics), which can lead to rapid industrial growth and increased population. In the short-term, refineries enlarge the tax base of the host community; in the longer term, they very substantially increase municipal services requirements@ and may ultimately.lead to a deqline-in residential and commercial property values. Many of these potential impacts can be-mitigated by rigorous planning and new technology; but they cannot be eliminated. [E-f111J. Safety Considerations in Refinery Siting. Refineries have a large fire and explosion potential. State and Federal regulations and the considerable efforts of refinery owners can minimize this potential. Cptimal safety considerations require siting refineries away from seismic areas, and separating them from surrounding populations by a buffer area. EE-f111] Water Quality and Solid Waste Disl2osal Affect Refinery Siting. The EPA has identified a wide range of water pollutants which.are emitted by oil refineries in either their process or cooling water streams. At presently used levi6ls of treatmentg additional oil refinery capacity discharging wastes to the marine environment would degrade the waters of the coastal zone to a degree not consis- tent with the objectives of the Coastal Act. Modern water treatment technologies can reduce these emissions, and once-through cooling systems, sometimesused to dilute pollutants to meet discharge standards, can be eliminated. Removal of pollutants from the air and water discharges from refinery systems will result in accumulations of solid or semi-solid waste products, for which proper dis- posal must be provided. [E-fI12.1 POLICIES 147. Minimize Refinery Con struction Alon g the Coast. New refineries or ex- pansions of existing refineries shall be permitted in the coastal zone only when it can be demonstrated that: (1) there is a public need for such facilities, the determination of which is coordinated with the determinations of need for OCS production in Policy 145 and tanker terminals in Policy 155; -226- (2) the refined products will-significantly assist in reducing air pollution by users ofthe product; (3) there is no less environmentally damaging site available; (4). the project.-is designed and. located to. minimize any adverse environmental effectsg-including provision of aisufficient buffer zone to minimize impacts on surrounding property; and (5) the proposed project is consistent with all 'other policies of'the' Coastal Plan. [E-P343 In no event shall a new oil refinery be permitted in a highly scenic area (as defined in Policy 48), on.any of the Channel Islands, or in or near special marine and land habitat areas. [E-p35a] 148. Refinery Sitla&.Authorit The'coastal ag ency should coordinate with other agencies such as the State Energy Commission.-in.*any*future refinery siting studies and policy'development. [E-P341 If the State Energy Commis- Sion is given,authority for statewide refinery siting, it shall make the determination as to availability of preferred alterna. tive sites inland, and the coastal agency should be given concurrent j urisdiction over alternative sites in the coas tal zone. In the absence of Energy.Commission refinery siting authority, the coastal agency shall make the determination- [E-P34d! 149.,Restrict Refineries in Critical Air..Areas4 No new refineries shall be permitted in critical air areas (as defined by the Air Resources Board) unless it can be shown that'their negative impacts upon water,quality and air quality are more than fully offset by reductions in the. intu@ficientlv treated wastewater discharge and in gaseous emissions in the area;by the users of the fuels. [E-05a@ Existing refineries in critical air areas shall be permitted to expand capacity onl if (1),the best available,technology for y reducing emissions is utilized and (2) total-sit.e'emission leve 1S, and'site levels for,each emission-type for which national or State ambient air quality standards have been'established (i.eo,, hydrocarbonsp 'sulfur dioxide'' oxides of nitrogen, carbon monoxide, and particulates), do not increase. [E-P35b] -227 150- Site and Design Refineries to Protect LaRII& Sgjt Z. Wineries qhAll be sited and designed to minimize exposure of surrounding property and popula-, 01 tion to the consequences of possible large fires and explosionst and shall be sited away from areas of substantial seismic risk. [F-061 151. Encourage Construction of Desulfurization and Methanol Capacity. Appli- cants for additional refinery capacity in California (but not necessarily in the coastal zone) should maximize the addition of desulfurization capacity designed to produce low sulfur fuels, unless the Energy Commission determines some greater public need outweighs the advantages of such a requirement. [E-P377 Consideration should be also given to providing for the production and storage of methanol. [E-p12RA] 152. Minimize Use of Once-Through Cooling. New or expanded refineries should minimize the need for once-through cooling by using air-cooling to the maximum extent feasiblep and by using treated waste waters from in-plant processes for cooling tower makeup. Construction of new cooling facilities to replace once-through facilities and new water treatment plants designed to reduce the discharge of pollutants into the marine environment shall be permitted when consistent with other Coastal Plan policies.. (Once-through systems innew or expanded refineries are permitted only according to the standards set by Marine Environment Policy 9.) EE-P38] TANKERTERMINALS FINDINGS Petroleum Imports and Tanker Size Have Grown. As California has increased its importation of crude oil and refined products over the past 20 years, tanker size and numbers have increased to handle the expanded import volume. The search for improved efficiencies and economies in transporta*= large volumes of crude oil has led tothe development of supertankers @tanke-rs over 100,000 deadweight tons) and Very Large Crude Carriers ("VLCCsllt i.e., tankers larger 01 than 200,000 dwt). Supertankers now use some'of the State's tanker facilitiesp -228-- but the deep drafts of, Very Large Crude Carriers cannot be accommodated in California tanker terminals, The need for more tankers and any new tanker facilities will be based on future import levels to meet the State's refinery needs and utility company imports. [E-f9l] Several Variables Affect Tanker Import Levels. Variables that will affect tanker import.levels are: @1) general economic conditions.in California and the West; (2) California's in-State petroleum production; (3) possible reduced petroleum demand through energy conservation and increased prices;.(4) possible reduced petroleum demand through development of alternative energy sources; (5) energy export and import levels to and from other state@ (ie.9 oil and gas to the Midwest, electricity from Four.Corners, natural gas from Alaska etc.); and (6) Federal energy policies affecting Outer Continental Shelf (OCSI) production, import levels, interstate shipment of oil, and siting of tanker terminals. All of these factors will combine to determine the need for impor- tation of petroleum by tankers. EEf91] California Is a Regional Petroleum Supplier. At present California plays a regional role in receiving and supplying oil and petroleum products to other states in the Petroleum Administration forDefense District.Five (PAD V, con- sisting of California, Arizona, Nevada, Oregon, Washington, Alaska, and Hawaii). In recent years, California v s role in supplying these states has declined, as the Pacific Northwest and Hawaii have developed their own terminal and refinery capacities. Some experts have forecast that by 1985 exports from California to other PAD V states will cease entirely, and.that Californiats "regional role" will beg in effect to supply its own very large demand. It is more likely, however, that California will continue to account for some relatively small amounts of petroleum exported to other states in the regionl,and planning for tanker terminals should reflect this fact. [E-f92.1 Californiats National Role in SuRRlying Energy Is Not Defined* In recent. months, at least two major oil companies have begun to consider plans to ship Alaskan oil to California terminals for subsequent pipeline transshipment to the Mid- west. Despite oil industry assertions that planning for tanker terminals,in Califo rnia. should accept this State's national role in.supplying energy, such a possible role has not yet been clearly defined by any Federal agency as a . part of any comprehensive national program for energy conservation and develop- ment. . [E-f 92] Alaskan Oil May Come In Tankers Up To 150,000 DWTO It appears that Californ ia's increased petroleum import needs may be met by [email protected] when.the .Alyeska pipeline begins operation-in late 1977 or_ 1978. Because,export of Alaskan crude oil to Japan is prohibited by the Alaskan pipeline bill unless mandated by presidential proclamation, the.Alaskan North Slope crude is.ex- pected to be transported by ship to the Pacific Northwest and California. Most oil companies report that the vast majority of.the 1,2 to 2.0 million barrels per day volume of Alaskan oil expected to,come to California.wil-1 be transported in tankers under 1501000.dwt. [E-f9@]. Foreign'Low-Sulfur-Crude,O -il Will Continue to Come in Tankers Under.150,000 DWT. Low-sulfur crude.oil will probably continue to be imported from foreign sources, but with an associated minimal increase in clonsumer prices.this oil can be transported-to California in conventional draft tankers of about 1501000 dwt or less* Increases in desulfurization@refining-capacity will reduce the- amount-of low-sulfur crude oil imported. [E-f991 _229- Existing California Tanker Terminals Are Below 150,000 DWT Capacity. No existing California tanker terminal can accommodate conventional tankers larger than 138,000 dwt (Port of Long Beach)v although, with only minor dredging and expansion of onshore pipelines and storage tank,facilities, this limit could be increased to about 150,000 dwt for ships of conventional draft. With some modifications to existing facilities the Port of Long Beach could berth three tankers of up to 200,000 dwt of the wide beam configuration now being proposed; or tankers up to 1381000,dwt of conventional draft. The Port of Los Angeles facilities can accommodate loaded tankers of about 90,000 dwt. And El Segundo offshore buoy systems can serve tankers of about 130,000 dwt. San Francisco Bay facilities at Richmond allow berthing of light-loaded tankers of 130POOO dwt,p Although under unusual conditions a fully loaded 104,000 dwt tanker was able to cross the sand bar outside the Golden Gate, the bar normally ahibits the entry of any fully-loaded tankers larger than 85,000 dwto [E-f99T Tanker Terminals Can Be Sited Away from Refineries And Market Areas. Tanker terminals have usually been sited in close proximity to refineries and power plants, which in turn have been located near product markets (metropolitan areas). Extensive pipeline systems are capable of reducing the need for this traditional clusteringy however, allowing tanker terminals to be sited away from refineries, power plants, and product markets*, For example,, Standard Oil of California's @roposed Estero Bay terminal would require about 280 miles of pipeline. EE-f93 Tanker Facilities Pose Potential Environmental Impacts, Harbor or nearshore tanker facilities may require dredging and filling for both the berthing area and land storage tanks, with potential for significant. adverse environmental effects on marine life and tidal action (as discussed in the Marine Environment chapter. [E-f941 Tanker Terminals Encourage Related Development. Tanker terminals and related onshore facilities do not themselves requite large amounts of land except for tank farms, but they can encourage related development that need not be situ- ated near the coast, The presence of major refining capacity frequently leads in turn to the development of associated secondary industries (eege, petrochem- ical, plastics) in the same immediate area* Tanker terminals that encourage refinery construction nearby-onshore couldt therefore, promote the use of valuable coastal land for purposes accomplished just as well at inland sites, could contribute indirectly to increases in air pollution in coastal areas, and could'also induce growth of related commercial and residential areas. Tanker terminal siting strategies can be effectively coordinated with broad regional or State planning for growthe [E-f951 Several Deepwater Terminals Have Been Proposed For Californiae Oil companies and utilities must by economic necessity look beyond,the immediate future when investing millions of dollars for future tanker terminals* To reduce transpor- tation costs, several oil companies propose to use VLCCs ranging from 200,000 to 400,000 dwt (water drafts of 60-90 feet) to ship crude oil to California from the Middle East and Indonesia. No existing California terminal facilities can accommodate tankers of these dimensions. However, unless foreign imports into California from the Middle East and Indonesia, or from places similarly distant, are very high, the frequency of use of a California deepwater terminal might be insufficient to justify the cost of terminal construction and the commitment of coastal resources to such a project, If such imports totaled 170,000 b/d, for example (as some experts have estimated), all brought in _230- supertankers of about 2OOvOQ0 dwtv,a supertanker.terminal facility would be in use only about one-sixth of the time, Oil Companies and Utilities Have Proposed New or Expanded Tanker Facilities To meet their projected needs for increased volumes of oil from outside Cali- fornia, oil-companies and utilities have proposed new or expanded tanker facilities at Estero Bay (up@to 400,000 dwt, Standard Oil of California), Moss Landing (up to 130,000 dwt, Pacific Gas & Electric), and Long Beach or Los Angeles Harbor (less than 200,000 dwt, Standard Oil.of Ohio), with further proposals likely to follow, Standard Oil of Ohio has proposed to ship Alaskan crude oil to the Los Angeles.area in 165,000 dwt tankers for subsequent trans- shipment to the Midwest through a y6t-@-bo-be-approved-or-constructed pipeline. ARCO is considering a similar plant probably using tankers of,up to 150,000 dwt, Presumably such transshipment proposals would be economically feasible only if there were a surplus of crude oil available in California- LE-f97J No State.Agency Coordinateslanker Terminal Sitinge No,single State agency oversees and coordinatesthe siting of tanker terminals in order to maximize efficient siting and minimize environmental risks and impacts. [E-f9l] Multi-Comparxv Sharing of Facilities Reduces the Need for More Facilities, Most existing tanker teminals are owned and operated by single companies or port jurisdictions-that lease specific berths to single companies. Multi- company sharing of tanker facilities would reduce the need for new or expanded tanker terminals. Terminal efficiency (i.e.9 maximum volume with minimum waiting tim4 and high use of facilities) increases with the number of berths available to any ship. Thus, with multi-company usev more volume could be handled by existing facilities7reducing the need for new or expanded facilities for deep draft vessels. Such "common carrier" practices are being analyzed by the anti-trust division of the Justice Department, [E-flOO] Existing Tanker Terminals Are Under-Utilized. Existing tanker facilities are under-utilized, largely because many of them are Operated by,single companies which do not fill berth capacity* If terminal facilities were utilized to their maximum extent, it appears that California's petroleum needs could be accommodated in existing facilities for some time, given the following con- ditions: (1) California receives and refines the vast majority of Alaskan crude oil production; (2) California's demand for petroleum does not exceed projected levels and California does not become a major exporter of crude oil to states outside of the region, (3) tanker size does not exceed about 150,000 dwt of conventional draft, with some existing facilities expanding to accom- modate such tankers where only minor dredging is required; and (4) minor expan- sion of onshore pipelines and storage facilities occurs.. A representative of the U.S. Army Corps' of Engineers has stated: "We agree that existing tanker facilities can accommodate Alaskan import volumes' not' only until at least 1985, but possibly to the year 2000. However, this al- ternative, where feasible, may not be. the most economical. The need for deepwater terminals is a relative need and not an absolute need. The conse'quences@ of' deferring offshore deepwater terminals,could mean the loss of economic advan@ tages and greater environmental hazard due to increased traffic at inshore harbors.11 [E-fiOl] 10 -231- Regional Amplification. South Coast: The upper limit of present terminal facilities, with minimum dredging, in the South Coast Region is loaded tankers of approximately 150,000 dwt of conventional draft, which is the maximum size to be used on the Alaskan routes to the Region. An additional six berths in Long Beach and four in Los Angeles Harbors are presently available which could be developed to handle these tankers, These berths could handle the oil requirements of all refineries in the Region. The relatively small proportion of crude oil likely to come from the Middle East during this time period (1974-1985 or 1990) would not justify building facilities for VLCC tankers in the Region. [E-flOlRA] Siting Considerations for Offshore Tanker Terminals. California may eventually require expanded tanker terminal capacity to accommodate increased crude oil imports. The environmental siting considerations for new or expanded facilities offshore are as follows: 1. Offshore versus Nearshore Areas. New offshore areas with naturally deep water,would entail only minimal dredging for pipelines, could locate the tankers away from areas of critical biological concern in nearshore areast and could be sited away from busy vessel traffic lanes so as to minimize the risks of oil spills* Offshore facilities, howevert would be subject to greater wind and wave action and spills that occur would be m6re diffi- cult to contain. New or expanded tanker*faci..lities in nearshote areas would most likely involve more environmentally damaging dredging and filling, and pose.greater risks of oil spills that could affect vulnerable marine life. Harbors, however, are sheltered from wind and waves and can provide better spill containment capability. 2. Physical Constraints to Siting, Tanker terminals must be sited with care- ful attention to meteorological (wind? fog, storms)t hydrographic (wavest tides, tsunami)v and oceanographic (bathymetric and distance to shore) factors that will dictate the optimal sites available to serve onshore arease 3- Offshore Offloading@p VLCCs can be unloaded into smaller "shuttle" tankers while remaining in deepwater areas offshore. This practice has already been used off Californiap but involves increased congestion of smaller tankers near onshore facilities and appears to present greater risks of operational.oil spills, When done under benign weather conditionsy this practice can be done with little additional. risk; however, the lack of experience with this practice precludes any complete risk analysis based on operational experience. 4. Monobuoys versus Conventional Buoy Systems. Tanker facilities used throughout the world include piers, floating barges, platformsp island, and offshore conventional buoy mooring systems and monobuoys (single point mooring systems). Offshore sites in California em loy pier berths or conventional buoy systems (usually five to seven buoys@ which have thus far proven satisfactory for tankers up to 130,000 dwt, although several proposals now advocate using monobuoys. Monobuoys allow a tanker to freely swing around the berthing facility and appear- to involve fewer -232- environmental hazards than conventional buoy systems, which hold tankers rigidly exposed to wind, wave and current action. Maintenance of hose lines is particularly import in these offshore systems that are exposed to wind and wave action. [E-f102] Supertankers Offer Serveral Economic Advantages. Supertankers reduce the trans- portation costs of crude oil roughly in proportion to the size of the ship and distance traveled. While the transportation costs to shippers may be substan- tially reduced through use of larger vessels (e.g.,tankers of between 70,000- dwt,which carry about 450,000 barrels of crude oil, and 200,000-dwt, which carry about 1. million barrels of crude oil), particularly over very great distances such as between the Middle East and California, the price difference accruing to consumers is relatively much less significant (e.g., less than one cent per gallon of gasoline from Alaskan oil, and about two and a half cents per gallon of gasoline from Middle East crude oil, with no guarantee that industry's cost savings will be passed on to consumers). Some of the savings from use of larger vessels results from reduced tanker fuel consumption per unit of oil transported. [E-f96] Oil Spill Severity Is Related to Tanker Size. A major study for the Army Corps of Engineers concludes that "although larger tankers are,per unit of oil transported, lesser sources of pollution through casualties, it is also undoubtedly true that the potential for an incident of higher severity exists." Regarding terminal operations involving supertankers,the same report concludes that "although the frequency of terminal spills may decrease with the use of larger vessels, the severity will likely increase in proportion and the total net discharge will not be significantly changed. " Definitive comparisons of tanker size to opreational safety may be premature, however, until more data becomes available. Other factors directly related to frequency and size of oil spill are vessel age, design, single or double hull construction, and degree of compartmentalization;prevailing weather conditions, and regulations governing operations in severe weather; and degree of a crew's operational ex- perience in particular waters on harbors among other human factors.(See findings in Petroleum Development and Oil and Toxic Spills secions for conclu- sions regarding oil spill cantainment, cleanup, spill liability, and damage potential.)[E-f98] Tanker Design Criteria Need Upgrading. Tanker design, equipment and opera- tional procedures have steadily improved over the past 20 years, allowing larger volumes of petroleum to be shipped, and reducing the risks of oil spills. Such improvement is due in substantial part to the work of classi- fication societies, international conventions, and the U.S. Coast Guard, which set minimum standards for structural strength, machinery design, maxium load, and equipment requirements, and which promulgate regulations that address pollution control, vessel safety, and vessel design and operation. Such regulation notwithstanding, oil spills have consistently occurred that might have been prevented or miigated had the vessels had the safest tanker design features now available. Several Improved Design Features Are Now Available. Such features are still not fully implemented in all new tankers, primarily because industry questions whether they are "cost effective". They include: design features that aid "load-on-top"procedures, which allow oil and water to be effectively seperated and reduce the flushing of oil into the ocean; segregated ballast configurations that provide seperate oil tanks and water ballast tanks; twim propellers and twim rudders for added maneuverability and operational backup;and auxiliary -233- power systems (eeg., boiler or diesels) to propel the vessel if the primary system fails. Development by the U*S9 Coast Guard of,.minimum performance standards for maneuverability and stopping capability would further encourage safe tanker design, Coast Guard studies indicate that double-bottoms reduce the overall risk of spills, Standard Oil of California is building tankers with double bottoms for use in thecoastal trade* [E-fl 031 POLICIES 153.Continue Tanker Terminal Planning Based on PAD V Needs. Planning for tanker terminal facilities in California should be sensitive to national energy needs. Howeverl.until the nation's energy needs,and supply and distribution poli cies have been clearly defined, and California's role in a comprehensive national energy conservation and development program,is pre- cisely identified, planning should proceed, as before, on the basis,of.the petroleum needs of the Fifth Petroleum Administration for Defense-District (PAD V, consisting of California, Arizona,.Nevada, Oregon, Washingtong Alaska, and Hawaii). Where necessary to meet needs elsewhere in the United States, oil companies should exchange volumes of crude oilinstead of shipping it through California (ege, exchange Middle Eastern oil formerly destined to California for'Alaskan oil to be marketed in the Midwest). Even if national policy determines that petroleum must be moved through California to the., Midwest or East, tanker terminals and associated-development shall be approved only if they can be designed, built, and operated in accordance with all applicable CoastalPlan polici6sd [E-p28] 154-Maximize Use of Existing Tanker Facilities. Existing tanker-facilities should be uta-ized at maximum feasible berth occupancy and multi-company use of existing facilities shall be encouraged, except where increased tanker operations and associated onshore development would be incompatible @Tlth land use and environmental goals for the area. [E-p29a] -234- 155.Require Showing of Need, Set Environmental Safeguards, New tanker terminals (or expansions) should- be permitted only when it can be demonstrated that:(1) there is a need for new capacity that cannot be met elsewhere with less risk of adverseenvironmental impacts through more effective use of existing terminal,sites and facilities; (2) tankers smaller than about 150,000 dwt of conventional draft could:not feasiblybe used; (3) the proposed project will minimize significantly the tot al volume of oil spilled in normal and accidental operations; (4) the location, design,and construction of the new capacity minimize the risks of other adverse effects to the environment; and (5) the onshore expansion of pipelines and of storage and pumping facilities associated with the new capacity is not incompatible with local land use and environmental goals, and is carefully designed to minimize adverse environ- mental impacts. [E-P30] Regional Amplification South Coast: In order to reduce the need for new or expanded tanker terminals'in the-South Coast Region, minor dredging and modifications to berthing capacity, and construction of additional storage capacity, should be carried out as they are required to accommodate tankers of up to about 150,000 dwt of conventional draft, In.addition oil companies should pursue the practice of jointly utilizing terminals that can handle this size of tanker. Onshore expansion of pipelines and storage facilities should be permitted where the result is to increase the efficiency and capacity of existing tanker terminals. New or greatly expanded terminals for ships larger than about 150,000 dwt of conventional draft should not be allowed until southern California petroleum imports from Indonesia and the Middle East are.expected to rise to more than one million b/d within the period of time necessary to construct such terminals.[E-p30RA] 156 Sitting and Design Criteria for Major New Tanker Terminals. Maj or-new California tanker terminals should:(1)be-sited,in deepwater areas (greater_ than 80 feet ,)-sufficiently far offshore and so situated'as to avoid risks to areas of critical biological concern; (2) be sited well out of vessel traffic lanes; (3) be owned and operated as multi-company use facilities; (4) have ready access to the finest state-of-the-art containment and recovery equip- -235- ment for oil spills; '(5) where appropriate, and unless an alternative type of system can be shown preferable for a specific site, use monobuoy offloading systems; and (6) where operationally required, have onshore deballasting facilities to receive any fouled ballast water from tankers. [E-011 157.Encourage Use of Most'Modern Tanker Technology and Operating Procedure. The California Legislature should petition Congress and the U.S. Coast Guard.tolo (1) strictly enforce load-on-top design and operation on all petroleum tankers entering U.S, waters EE-02a]; (2) require that all tankers carrying crude oil and refined product to U.S. ports have segregated ballast tanks; double bottoms; twin propellers and rudders unless it can be demonstrated that a substitutable design feature provides better maneu- verability and operational back-up; auxiliary power equipment (e.g., double boilers) for propelling the vessel in case of engine breakdown; and state-of-, the-art navigational aids maintained in functional condition; and (3) ulti- mately, that all tankers meet performance standards requiring optimum maneuverability and operational back-up, The Coast Guard should strictly enforce such requirements by increasing the number of vessels it actually visits for inspection and should maintain radar control over vessels in U.S, coastal waters. EF-p32b] LNG FACILITIES FINDINGS Importation of ING Requires Ship Terminals and Onshore Facilities. Natural gas is considered to be the,cl.eanest burning and most efficient fossil-fuel for heating purposes. The most significant potential sources of natural gas for California are primarily in Alaska and overseas. To be transported economically by ship, natural gas must first be liquefied by cooling it to -2590F. to reduce its volume by a factor of 600. After shipment to areas near existing markets or pipelines, liquefied natural gas (LNG) is stored in large tanks and vaporized in a plant as it is needed. With present technology, terminal and associated facilities for LNG must unavoidably be situated on the coast. EE-f1131 -236- Gas Companies Have Proposed Three Coastal Sites. Western ING Terminal Com- pany (subsidiary of Pacific Lighting Company) is already seeking Federal Power Commission (FPC) approval for an LNG terminal and facility at Oxnard (Ormond Beach) to handle LNG from Indonesia, a second terminal and facility in Los Angeles Harbor to handle LNG from southern Alaska, and a third terminal and facility at Point Conception for LNG produced as gas on the Alaskan North Slope and piped to Southern Alaska for liuefaction. Final FPC action on these three proposals is not expected prior to late 1975-early 1976. PG&E has stated that the feasibility of locating such facilities in the San Francisco Bay Area is also currently being studied. [E-f114] FPC Is Considering Canadian Pipeline Alternative. The Point Conception proposal is an alternative to a pipeline proposed through Canada, which would serve California along.with the western and midwestern U.S. and eastern Canada. A decision by the FPC is pending on the choice of the alternatives, but reportedly will not be forthcoming before July, 1975, at the very earliest. [E-f114] LNG Is a Hazardous Substance. LNG is difficult to handle because (1) the extreme- ly low temperature at which natural gas is liuefied causes uniue stresses on normal containment materials, and reuires special alloys to avoid such- stresses; and (2) in the event of an escape of LNG, there is very rapid. formation of a vapor plume, which the low temperature causes to hang close to the ground until its temperature increases to make the gas lighter than the air. Unconfined, the vapor mixed with air is not explosive, but in a ratio of 5-15 per cent vapor to air it is highly flammable. Within en- closed spaces, if thus-mixed with air in the presence of an ignition source, it can explode. The primary danger present in a large-scale LNG spill is a very intense fire at the spill site; a more remote hazard is that the vapor plume could drift into enclosed spaces adjacent to a spill site and explode or catch fire. [E-f115] LNG Spill on Water Presents Fire or Explosion Hazard. The greatest danger of serious fire or explosion would occur following a major spill of LNG on water; the conseuences would be most serious in an active harbor area. The heat of the seawater and large spill surface area result in very rapid vaporization. The FPC staff has stated that if in a "worst case accident" an entire ship- load of LNG were released instantaneously without being ignited, it would evaporate in about 37 minutes, forming a very large, cold, dense vapor cloud. Under conditions of very light winds (5-10 knots) and stable air, the flammable cloud could extend-as far downwinds three miles. Experts believe it very unlikely that a vapor cloud of even this size could form and drift very far, without encountering anignition source and pausing a fire that would burn back to the site of the spill. The most likely such ignition source would be the.collision itself. The chances of an accident causing any spill can be reduced by special safety features for LNG carriers, and by the Coast Guard's use of strict traffic control procedures during passage of loaded carriers into a harbor. [E-f1l6] Safety Measures Needed to Reduce Risk of LNG Spill on Water. Because of the poten- tially disastrous effects of a large-scale LNG spill on water, particularly near a developed area, the Coast Guard prescribes and implements measures to ensure safe passage of, LNG carriers into berthing facilities. Safety measures are determined according to conditions at each particular site. Measures presently -237- required by the Coast Guard for bringing ING carriers into New York and Boston Harbors, for example, include: near-harbor escort of the LNG carrier by a Coast Guard vessel; controlling or halting other marine traffic in the area during loaded LNG carrier operation depending on the circumstances; use of tug boats; special-arrival notificationstynd restrictions on proceeding under specified visibility conditions. f1171 LNG Spill on Land Also Dangerous. -The-most significant potential for serious fire at LNG facilities on land would occur following complete or partial failure of a storage tank. This potential can be minimized by use of the highest quality structural and insulating materials, proven tank operating and rigid maintenance procedures, use of proven technology for tank venting, and construction of a containment around each tank sufficient in capacity to hold the entire tank volume in the event of complete failure. When a containment is filled with spilled LNG, a relatively small amount of LNG surface it exposed, and rapidly frozen ground acts as-an insulator against. a continued flow of ground heat; therefore vaporization occurs much more slowly than in the case of a spill on water. LE-M87 High Containment Dikes Will Confine Flammable Plume. Under conditions of light wind and stable air, flammable vapor mixtures-resulting from the failure of an LNG storage tank may initially extend downwind as far as a mile. Proponents, however, believe that in most instances, after the initial period of "flash" vaporization, the flammable zone will be as little as 200-400 feet downwind; and that if the containment is a high dike around each tank, as planned for facilities near populated areas, the flammable plume will be confined within the facility's property limits even under worst case conditions. [F,-fll8] Danger Greatest at the Site. If the vapor is ignited, the flame will burn slowly back to the LNG pool, where the resulting fire could create intense radiant heat capable of igniting combustible materials within 500 feet, and endangering exposed personnel within 2,000 feet (with high dikes, these dis- tances can be substantially decreased). Automatic and individually activated remote control devices around the plant site that release appropriate materials can help control ING vapors and extinguish LNG fires. [E-fll8,1 Accident Probability Is Low gat Not aiMa&.aLted. Statistically the probability of a very large accident involving LNG'is very low. Fxcept for its very low (cryogenic) temperatures and propensity to form a flammable vapor cloud that can drift downwind, the problems and risks connected with LNG handling and storage are thought to be similar to those associated with handling and storage of such accepted hydrocarbons as gasoline and liquid propane. Improved,LNG technology can now address the normal safety problems; however, the potential for serious accident caused by-human errors, or by such events as earthquake, tsunamig disasterat. a neighboring facility, a major act of war, sabotage, or-airplane crash can be partially designed against, but not entirely eliminated* LE41191 LNG Spill Harms Plants and Animals. Plants and animals subjected to a dense cold vapor cloud of LNG would probably be killed. Birds might be able to evade the vapor cloud. The effects on marine populations of an LNG spill on water*are not well known. The thermal shock caused by chilling of the surface water would presumably cause some measure of mortalitypbut most likely would not have significant long term effects on marine populations. rE-fi2o-, -.238- Methods of LNG Regasification Involve Problems. Regasification at a receiving facility is typically carried out in one of two ways: using gas-fired vaporizers or using seawater at ambient temperature as a heat source for vaporization. (1) Gas-Fired Vaporizers Pose Air Pollution Problem. The disadvantages of gas-fired vaporizers for baseload use are that one to two percent of the plant's output would be used to fire the vaporizers and that there would be continuous air polliition emissions. (2) Use of Seawater Adversely Affects Marine Life. Use of seawater in LNG vaporization presents problems of entrainment of sealife as water is drawn into the system and discharge of cooled seawater at below ambient temperatures, after its use in the system. (See Marine findings regard- ing the effects of entrainment and thermal discharges.) Chemical biocides periodically added to the seawater for defouling of the water pipes also have the potential to adversely affect marine life if they are not neutralized. These effects would be subject to regulation by the Regional Water uality Control Boards on a case-by-case basis to prevent adverse effects on beneficial uses of receiving waters. [E-fl2l] Physical Criteria for LNG Facility Siting. Selection of a site best-suited physically to accommodate LNG port and plant facilities involves at least the following considerations: (1) Control of Nearby Development. Facilities need to be situated so as to minimize the exposure of population and property to the possible effects of a major accident. Land use controls, including purchase of sur- rounding lands, need to be sufficient to prevent new development within the hazard zone around the LNG plant in the future. (2) Avoidance of Seismic Hazard Areas. Facilites need to be situated away from areas of significant seismic hazard, and wherever sited, should be designed to withstand fully the maximum credible sesmic risk at the site.[E-f122] (3) Deep Draft Port Facilities. Port facilities need navigable waters deep. enough,to accommodate LNG carriers (40 feet or greater draft) and suf- ficiently shelterd for year-round operation. Significant dredging might be required. (4) Sufficient Acreage For Land Facilities. Land facilities need sufficient acreage for: storage tanks up to 125-150 feet high and 240-270 feet in diameter; space between tanks to permit dikesp run off land, and catch-basin facilities; additional space to reduce the potential for radint heat from a fire at one tank igniting another tank; and space for vaporiza- tion facilities capable of regasifying peak loads at rates of as much as five billion cubic feet or more per day. Total acreage for land facilities may be as much as 160-600 acres. [E-f122] (5) Location Near Market Areas. Land and port facilities need not be all in one contiguous parcel and the land facilities need not be immediately adjacent to the port; however, it is extremely expensive and increases exposure to others to pipe gas in its liquefied form outside of the -239- facility. There are also economic advantages in siting LNG facilities near major market areas? although piping the regasified natural gas relatively long distances is clearly feasible. (6) Gas Transmission Ustems. Facilities must have adequate gas transmission systems. LFx-fl22J Potential Siting Alternatives: Rural, Industrial, Harbor, and Residential. Very generally stated, a site selected in-a rural area will pose the greatest impact upon the natural environment, but in the event of a major accident would-expose a minimum number of people to danger. Siting in a rural area could open the area to further port and industrial development, which in turn could encourage the growth of new residential communities. Industrial locations in developed harbors would tend to have-a minimum impact on the natural environment, but would pose greater risk to human safety in the event of an accident. [Ff1231 Harbors-particularly those with large industrial areas-will have heavier ship traffic control, calmer waters, and less exposed berths. Location neara residential area will have a moderate impact on the natural en- vironment, could present social and economic impacts on the community, and would expose the population to the risks, however'slight, of a major accident. [R-f1231 Several Agencies Will Regulate Environmental and Safety Features of LNG Facilities. The Federal Power Commission (FPC) must approve projects for LNG imports from other states or foreign nations. It is the lead agency for such pro- jects, and is responsible for preparation of environmental impact state- ments under NEPA. It is not yet clear whether FPC jurisdiction will preempt the right of State and local agencies to regulate the site location aspects of LNG facilities. Safety aspects will also be regulated by the Coast Guard (shipping-related) , the Office of Pipeline Saf ety (land f acilities) , the Occupational Safety and Health Agency and the State Division of Industrial Safety (employee safety), the Federal Aviation Agency (aircraft safety), and the applicable local fire, harbor, and building and safety departments. Other environmental aspects will also be the concern of the designated lead agency under CEQA, the Army Corps of Engineers (marine facilities), the RWQCB and the local APCD. The NEPA and CEQA environmental impact review, and the RWQCB review, will also include review by other interested agencies as applicable. [F,-fl241 POLICIES 158. Regulate Siting and Design of LNG Facilities. It may.be de sirable to locate some liqaefied,natural gas (LNG) facilities in the coastal zone. [E-p39] Any proposed LNG facility shall meet the following criteria: a. Limit Number of Terminals Until Safety is Assured. Only one LNG marine terminal may be permitted in the California coastal zone until (1.) it can be conclusively demonstrated on the basis of experimental data that -240- engineering and operational practices can eliminate any undue risk, or (2) it can be demonstrated that guaranteed supplies,of LNG are sub- stantial enough that an.interruption of service from one LNG facility will cause substantial public harm. [E-P411 b. Site LNG Facilities to Minimize Risk. Until such a demonstration of safety can be made, LNG facilities shall be sited in areas with existing but minimal port or industrial facilities to limit exposure of life and property while avoiding pristine natural areas. Once safety can be assured, facilities should be sited in industrialized ports. [E-P401 C. Restrict Dredging and Filling. Where permitted, new LNG port facilities shall not involve dredging or filling of wetland areas unless it can be demonstrated that there is no less environmentally damaging alternative. Any such dredging and filling shall conform to the policies of the Marine Environment section of the Coastal P1 an. [E-p401 d. Minimize Adverse Environmental Effects. Where permitted, LNG facilities shall be located and designed to minimize adverse.environmental effects. The applicant for an LNG marine terminal and onshore facilities shall submit a comprehensive evaluation of alternative'coastal sites, includ- ing the environmental, economic, and operational reasons for rejecting them in favor of the proposed site, sufficiently in advance of a desired decision that an adequate and independent analysis can be made, and such material should be included in any environmental impact report required, LNG facilities must also be consistent with other Coastal Plan policies@ especially those in the Marine chapter regarding heated and cooled discharges. [F-P42] 159. Safety Measures Required During Marine Operations. All possible measures shall be taken to maximize the safe passage of LNG carriers into berthing facilities. Such measures shall intlude, @here appropriate, application of -241 measures presently used for LNG carriers in.New York and Boston Harbors: control or halting of other-marine traffic by the U.S. Coast Guard during loaded LNG carrier operation or during inclement weather co.nditions,near- harbor escort of LNG carriers by a Coast Guard vessel, and use of tug, boats in harbor areas. Demonstration of an adequate traffic control system and safely designed berthing facilities sufficiently removed from other traffic flows and of sufficient size to permit maneuvering shall be required. [F--p441 16o. Safety Measures Required at Onshore Facilities. The following measures should be part of any LNG project on the coast: as Best Design and Technology. The highest state-of-the-art engineering design and technology, and proven alloys, should be used in construction; each storage tank should have the double-wall construction now standard in the industry; b. Special Storage Tank Design and Operation. Storage tanks should be-equipped and operated to avoid sudden evolution of a large quantity of vapor that cannot be adequately vented by the pressure relief valve system. co Provide Containment Around Tanks. Each storage tank should be sur- rounded by sufficient containment for the entire contents of the tank with a minimum surface,area p Iool. At sites near populated or developed areas the containment should include a dike designed to reduce vapor plume travel as much as possible. The dike should also be designed to give protection to the tank against severe weather or radiant heat from adjacent tanks in the event of a major fire, and to give protection against airplane crash or sabotage attempt. Storage tanks and dikes should be designed to withstand the maximum credible seismic event for the area. -242- d, Set Tanks Apart* Storage tanks should be sufficiently far apart to minimize the possibility of an accident at one tank affecting another tank. e. Best Fire Protection and Fire-Fightina Technology. Storage tanks should be equipped with the best available fire protection and fire-fighting technology, and the developer should be required to demonstrate the adequacy of fire fighting plans, equipment, and personnel to control major fire at All times. f. Provide Containment Around Pipelines. Exposed LNG pipelines should be surrounded by dikes or other containment structures capable of contain- ing the maximum credible spill, that might occur in a major rupture before shu tdown of the entire 'pipeline system could be effected. The developer should be required to demonstrate adequate and continuous monitoring, alarm, process shutdown, and fire response plans for a pipe- line and storage tank rupture. g. Have Standby Power. An independent standby power system should be pro- vided to maintain essential operational and emergency systems during a power failure. EE-P451 161. Establish Liability for Accident Damage. The State Legislature should consider establishing strict liability for damage occurring as a result of LNG shipping or plant operations, except acts of war, and consider creation of a safety indemnity fund, financed by levy of a fee on LNG imports, to ensure that all damages and costs resulting from a LNG accident are quickly compensated. The Legislature, the Public Utilities Commission, and the Energy Commission should make certain that sufficient research and develop- ment pertaining to LNG safety issues is carried forth to fully justify devel- opment of LNG importation projects in California. [E-p463 -243- Dswabpmafl@ Basic Policies for. Coastal Zone Development FINDINGS Planning forDevelopment To Be Consistent with Coastal Zone kct. The California Coastal Zone Conservation kct declares that the coastal zone is a distinct and valuable natural resource belonging to all the people, and requires that planning for development beconsistent with all of the following objectives: (1) the maintenance, restoration, and enhancement of the overall quality of the coastal zone environment, including, but not limited to, its amenities and aesthetic values; (2) the continued.existence of optimum populations of all species of living organisms; (3) the orderly, balanced utilization and pre- servation, consistent'with sound conservation principles, of all living and non- living'coastal zone resources; and (4) the avoidance of irreversible and irretrievable commitments of coastal zone resources. [I-fl] POLICY 162. Basic Goals and Policies Governing Coastal Zone Development. The basic goals and policies governing development in the coastal zone should be the protection and enhancement of natural resources and man-made resources, favor- ing of coastal-dependent uses,ov er other development on the coast, maximizing' public access to the coast, encouraging orderly, balanced development, and restoring lost or degraded coastal resources, as amplified below and elsewhere in the Coastal Plan: a. Protect and Enhance Natural Resources. Because significant natural re- sources of the coastal zone have been lost due to inappropriate develop- ment, because the supply of such resources is limited, and because the natural resources both support human life and make possible enjoyment and use of the coast, development in the coastal zone should be permitted in a manner that protects coastal resources. b. Protect and Enhance ManTiade Resources. Because some human communities and neighborhoods have unique cultural, historic, and aesthetic qualities -245- that contribute to the enjoyment of the coast, any changes or expansion of these resources should protect and enhance the special qualities of 01 such manmade resources. (See Manmade Resources Chapter.) C. Coastal-Dependent Uses Should Have Priority on the Coast. Because some uses of land and water, by their very nature, requir e a coastal site, coastal-dependent development should have priority over other develop- ment near the shoreline. d. Maximize Access to the Coast for All People. Because coastal resources should be protected, enhanced, and restored for the enjoyment of present and future generations, access to the coast for persons of all income levels should be maximized consistent with protection of resources. Commercial developments that provide recreational access for the general public should have priority over other private development. (See the Access and Recreation chapters). Development at or near the coast should not be allowed to block pedestrian and transportation access to the coast nor to unnecessarily interfere with public and private-views of the coast. (See the Transportation and Appearance and Design chapters). e. Orderly, Balanced Utilization of Coastal Zone Resources. Because the division of land and piecemeal development that is not coordinated with the provision of public services is more likely to have an adverse effect on the protec- tion of, and access to, coastal resources, development should not exceed coastal transportation and recreational carrying capacities, should be concentrated in already-developed areas or in other areas where no potential exists for significant adverse impacts on coastal resources, and should be consistent with and phased with existing and approved public services and facilities. All public services and divisions of land should be regulated in accordance with these criteria. f. Restore Lost or Degraded Coastal Resources. Because the supply of natural and manmade resources in the -c oastal zone is finite, and because the -246- supply is in many areas short of potential demand, such resources should be restored.and enhanced whenever possible. [I-pl] (See Restoration of Coastal Resources chapter. Development Affecting Natural Resources FINDINGS Natural Resources Support Human Life and Uses of the Coast. Valuable natural resource areas of the coastal zone have been identified in preceding Plan chap- ters. These finite resources, which often extend inland further than 1,000 yards, support human life and make possible enjoyment and use of the coast. Such resources include wetlands and estuaries, tidepools, coastal streams vital to anadromous fish runs and continued sand supply to the coast, natural areas that should be preserved for future scientific study, education, and public enjoy- ment, habitats of rare and endangered species of animals and plants, productive and potentially productive agricultural (including grazing) and forestry lands, sand and gravel deposits, clean air, sandy beaches and dunes, recreational' lands and waters, and highly scenic areas and coastal landforms as identified in the Appearance and Design chapter. [I-f2] POLICY 163. Develop in Accordance with Protection of Natural Resources. Development in or near coastal zone natural resource areas shall be permitted only if it does not adversely affect the resou rces. [from I-plal a. Protect Resource Production Areas.. Coastal open spaces in agricultural, grazing, and forestry uses shall be protected for productive use and open space, and development or conversion permitted only as provided in Coastal Land sections on Agriculture and Forestry. EA-p23b] b. Development Should Complement Natural and Scenic Resource Areas. 'In natural and scenic.resource areas other than those designated for pre- servation as productive or potentially productive farming and timber- harvesting areas and wher some development,may be allowed consistent with the,resource protection and, access policies of the Coastal Plan, first 119 -247- priority should be given to activities that complement the resource values of the site, such as farm service facilities, horse stables and riding facilities, dude ranches and summer camps, outdoor recreation, fishing and hunting preserves, and small-scale tourist facilities to the extent that the need for them outside urbanized areas and rural communities can be demonstrated. If no other use is feasible, individual homes may be permitted, provided that minimum acreage and siting require- ments are first established in accordance with the resource preservation and scenic view policies of the Coastal Plan, with particular regard to the cumulative impact of potential development in the area for which the requirements are to be. adopted. [I-P31 C. Control Development That Increases An-cess to Sensitive Areas. Development providing access to sensitive areas (such as tide pools, coastal bluffs, educational reserves, historical and archaeological sites) and man-made resources (such as special coastal communities and neighborhoods) should be controlled in accordance with the appropriate Coastal Plan policies. Ei-p91 Orderly, Balanced Development CONCENTRATINGDEVELOPM ENT IN URBAN AREAS FINDINGS Priorities Are Needed Among Competing Coastal Zone Uses. The coast is an extremely desirable place to live, work, and play. In the past 30 years, California's popu- lation has tripled to more than 20 million; 84 per 'cent of this population lives within 30 miles of the coast, and 64 per cent within the 15 coastal counties. In San Diego County, nearly 56 per cent of the population lives within 5 miles of the coast. Pressures for all types of development on or near the coast are high and can be expected to increase due to increased leisure time, mobility, chang- ing life styles, and in-migrati6n from some inland.communities. The finite resources of the coastal zone cannot, however, accommodate all the pressures for development and change and still.meet'Ithe-needs of present and future gen- erations for recreation, production of agricultural cropsyand the enjoyment of unique coastal experiences. Therefore- 'priorities must be-established among 01 1 -248-' competing uses of the coast, to assure a more orderly, balanced use and preser--: vation of coastal zone .resources- EI-f5l Concentrating Development Enhances Use of the Coastal Zone. If development is prevented from sprawling over large land areas by being channeled to already urbanized areas (where public services exist), and by increasing the intensity of development in some areas consistentwith the,objectives,of the Coastal Plan, the following advantages over sprawling development will often result: (1) natural, agricultural and other coastal resources will be preserved for human enjoyment as well as economic benefit.; (2) -a desirable contrast and diversity between city and country will be maintained; Wair pollution and energy, needs will be diminished because of shortened trips and the increased feasibility of public transportation; (4) duplication and costs of-public services will be reduced by utilizing services already in place; Mopportunities for increased physical and visual access to the coast for all people will be increased; (6) options for the future will be preserved by setting aside larger areas of land for potential future uses; (7) irreversible and irretrievable commitments of land inconsistent with the Coastal Plan will be avoided; and (8) existing down- town areas that have-declined as a result of subutban-sprawl will be.revitalized. EI-f171 Growth Can Be Accommodated Away from the Immediate Coastline. There are many alternatives to intensive urbanization ofthe shoreline. Many existing urban areas i nland from the immediate coastline could accommodate such growth without degrading coastal resources.. [I-'f2O] Pro-per],y Located High Intensity Development Can Absorb Some Demand for Coastal Land. High-rise office buildings, lArge apartment and condominium buildings, shopping complexes, amusement parks and tourist attractions@ and similar high- intensity developments in appropriate areas of cities can, if properly designed and located, absorb a substantial.portion of the demand,for those purposes that is now directed at older residential neighborhoods, open space areas, and other resource areas in the coastal zone. In addition, such high intensity develop- ment near the coast, especially in existing downtown areas, could at the same time enhance the viability.of mass,transit andreduce the consumption of ener gy used for heating and cooling because of the milder climate of coastal areas. High intensity development could also take up some of the presently underused capacity of many sewer and water systems without the need for costly new ex- penditures for public-services and, by being located in existing urban areas, avoid the extension of growth-inducing services to open space or-resource areas. [I-f18] POLICIES 164. Concentrate Development in Already Urbanized Areas. New coastal develop- ment should be channeled into existing urbanized areas able to accommodate additional development, areas suitable and planned for redevelopment, or defined urban growth areas that can accomplish the same goals, detailed in the findings abov e. (The delineation of existing urbanized areas shall be es- -249- tablished either in the Coastal Plan or in subregional plans prepared by the Commission or the coastal agency, as described in the Subregional Planning 01 chapter.) To this end: [I-P171 a. Use Urban Land Effectively Before Allowing Expansion Along Coast. New development shall not be permitted to sprawl, project by. project, into open areas. [A-p7] Expansions of existing urbanized areas (other than expansion on the inland side of the community) should not be allowed un- till the land resources within the existing urbanized areas are effectively used. [I-pI7 and from A-p27a] b. Locate Visitor Facilities Near Existing Developments. Visitor-serving facilities should be located in or adjacent to some existing urban and village areas consistent with the community scale objectives of Policy 45, in existing isolated developments (such as Sea Ranch and Timber Cove), and at selected points of attraction for visitors (such as at the entrance to Point Reyes National Seashore), consistent with the Coastal Plan. EI-P91 ce Restrict Strip Development. Strip development that contributes to traffic congestion and impedes coastal access along major routes to the shore- line shall not be permitted; existing strip development should be eliminated where possible. [I-Pq1 d. Channel High-Intensity Development to Appropriate Areas. High-intensity development should be channeled towards existing downtown areas and other areas within and outside of the coastal zone where (1) development would not adversely affect coastal resources or coastal access; (2) mass transit capable of serving the development already exists or is planned and funded, and (3) development pressure on resource areas is relieved through en- forceable development restrictions. EI-pl8J e. Plan Development to Reduce Auto Dependence. New development shall be planned to: (1) facilitate provision or extension of transit service, (2) provide -250- commercial facilities within.or adjoining residential development.to minimize the.need for outside travel,and (3) provide non-automobile cir- culation within the development (e.g.. shuttles, bikepaths, and walkways). ET-P61 RegionalImplification San Deigo: Wherever feasible, the typp.and design of new commercial and industrial development shall be integrated with existing neighborhood pat- terns, and functionali design, and social relationships of,existing and- new uses maintained or enhanced. EA-p15RAI 165- Criteria @or Divisions of Land, The division of land shall.be,permitted only if it is in accordance with an adopted subregional plan (see Policy 183) or, in the absence of a subregional plan, if all of the following conditions are met: (1) more than 80 per cent of the usable lots in a non- urbanized area have been developed toexisting zoned capacity;'(2)'the parcels resulting from the division Would be no smaller than the average. size of surrounding parcels; (3) no significant growth-inducing impact or precedent for development in a natural resource'or scenie'resource'area would be established by the division; (4) the division would not restrict future options for productive lands or lands of significance because of their scenic,- wildlife, or recreational values@ Mall public services. are readily available; and (6),the division conforms to other Coastal Plan polices (see especially Policy 33 regarding agricultural lands and Policy @7 regarding forestry lands). Where an increase in the number of parcels avail- able for residential'use is permitted, pribrity"should,be 'giv-en'to* lands- in or near already urbanized areas or other concentrations of development. Th is policy shall not be interpreted to require development of parcels that would adversely affect coastal naturIal and s.cenic re so.urces.* EI-P191 166. Restrict Significant Developments in Areas Removed from-Employment and Commercial Centers. The coastal agency shall permit significant new residential, -251- commercial, institutional, or industrial developments or other traffic-generating uses in locations removed from employment and commercial service areas only if (1) the project will be adequately served by alternative transportation modes that are less polluting or that reduce total vehicle mileage andenergy consumption (such as buses) or(2) it can be demonstrated that the project will not harm coastal resources, will not contribute directly or cumulatively to significant degradation of air quality, and will not result in unnecessary fuel consumption. Determinations of air quality impact and fuel consumption shall include consideration of distances to employment and service centers and alter- native locations for such developments. EE-p3a and L-pl8b] Regional Amplification South Coast: Residential development in locations remote from employment and commercial centers shall not be permitted in this Region unless ade- quate public transportation or alternative transport modes to the automobile are available which reduce total vehicle mileage and air resource degra- dation. EF-p3RA1 I COASTAL-DEPEN DENT DEVELOPMENT AND USES FINDINGS Coastal-Dependent Uses Require Immediate Coastal Site. Some developments are "coastal-dependent" in that,they must have an immediate coastal site to be able to function at all. These include fishing, aquaculture, and port facilities, extraction of coastal minerals (e.g., sand and offshore petroleum), tanker terminals, boat works, and shipyards, and marinas. EI-f7l POLICY 167. Priority of Coastal-Dependent Development. Coastal-dependent developments, which by their very nature require a coastal site, shall have priority over other development on or near the shoreline. [I-p1c and I-P71 Where coastal- dependent industrial, commercial, and recreational developments (such as ports, yacht basins, certain mineral extraction activities) would have a substantial adverse effect on coastal resources, they shall be permitted only if: (1) alter- native locations are either infeasible or more environmentally damaging; (2) -252- a careful balancing of environmental effects against State and national economic needs is made, with irreversible environmental damage weighing heavily in the comparison; [I-p8a] and (3) the environmental damage is mitigated to the maximum extent technically feasible in the design andexecutionof the project. [I-p8b] (See also relevant policies in the Coastal Land, Recreation, Transportation, and Energy chapters, and Policy 180 requiring restoration measures for develop- ments that degrade coastal resources.) INDUSTRIAL DEVELOPMENT FINDINGS, Industrial Developments May Have Special Siting Requirements. Though industry is vital to the economy, industrial developments can also have major impacts on the coast, consuming valuable lands, intruding on the visual qualities of the coast, interfering with access, and affecting air and water quality. Locations for industry must take into account these impacts on the coastal environment and must also consider employment-generating potential and safety concerns of certain major industries. [new] POLICY 168. Location of Industrial Developmert. Industrial development should be con- centrated in already urbanized areas unless public safety requires other locations, as provided in the Energy chapter. Industrial facilities shall not be placed in or near important coastal resources such as estuaries, fragile or unique habitat areas, highly scenic areasvor man-made resources except for coastal-dependent industry where there i@ no possible alternative as provided in Policy 167. All potentially hazardous industrial activities or other industrial development that Coastal Plan policies have determined cannot be located in already urbanized areas (e.g. possibly LNG plants or power-generating facilities) shall be concentrated in isolated non-developed areas. All potential indus- trial sites in such isolated areas shall be used to the maximum extent feasible (subject to safety requirements) prior to the commitment of any new undeveloped areas. EI-P'71 -253- PROVISION OF PUBLIC SERVICES FINDINGS Public Services Availability Influences Development.' The type, size, timing, and location of providing public services and facilities such as roads, water, and sewers, are major determinants of the pattern of land use. Their availabi- lity or lack thereof-often directly encourages or discourages developmento Extending urban services into coastal recreational, agricultural,and wildlife areas would make possible development that might not otherwise occur. Exces- sive expansion of services in already@-urbanized areas can result in additional development to the extent of creating unwanted congestion and impeding public access to the coastlineo Programming service provision in accordance with land use objectives is necessary for balanced and orderly development. [I-fl5l POLICY 169. Regulate Provision or Expansion of Public Utility Services and Transportation. Public utility services and transportation facilities, especially sewer and water systems and roads, shall be provided or expanded only to the extent that the location and amount of development and population that the systems will potentially serve is consistent with other Coastal Plan policies. Similarly, special districts or local governments should not be formed or expanded except where assessment for and provision of the service would be in accord with these policies. Where the physical effects of the expansion of the public service system itself are in conflict with Coastal Plan policies, service system ex- pansion shall not be permitted, and development shall be regulated to assure that the capacity of the existing service system is not exceeded. All plans for major sewer, water, and road systems and assessment d-istricts with the potential for adverse effects on coastal resources or access shall be reviewed by the coastal agency for conformity with the Coastal Plan. [I-p20] (See also the Coastal Land section on Water Supply Management and the Transportation chapter.) -254- Development in Hazardous Areas FINDINGS Certain Coastal Areas Are Hazardous for Development. Certain types of land areas are hazardous for development and therefore should be taken into ac- count in locating future development. These include: (1) presently unpro- tected and undeveloped floodplains; (2) fault zones and other areas of high seismic risk; (3) tsunami (seismic sea wave) run-up areas, and (4) unstable soils slopes, coastal cliffs, and bluffs subject to landslide and mudslides. [I-f4@ FLOODPLAINS FINDINGS Coastal Stream Flooding Provides Several Benefits. Minor flooding is a fre- quent occurrence; major floods occur less frequently but unpredictably. The beneficial roles of floods on coastal streams include the maintenance of salmon and steelhead spawning grounds; the continued supply of beach sands; the re- moval of vegetation choking the river channel, restoring the channelys capacity to contain minor flood flows; the long-term deposition along the floodplain of sediments that provide highly fertile soils; flushing of undersirable salts from the@surface layers of soils; and the preservation of valuable plant communities on overflow lands, such as giant redwood groves. During flooding, floodplains augment the streambed's normal capacity and provide a temporary storage area for flood waters. Uncontrolled development in the floodplain diminishes both of these functions. [L-fil] Flood Damage Results from.Poorly Conceived Uses of Floodplains., The loss of life and property damage caused by floods is due in large part to man's poorly conceived uses of the floodplain. Because clearing of vegetation and surface paving of areas reduce the pervious surface area, they can contribute to the intensity of flooding. Buildings, bridges, and other obstructions in the floodplain back up the flood water until those obstructions are swept away. Demolished structures may then contribute hazardous debris and pol- lution downstream. The cumulative effect of many small structures reduces the floodplain's storage capacity. Along with changes in hydrologic charac- teristics of the watershed, such reduction may increase velocity of flood waters, thereby diminishing seepage necessary for groundwater recharges EL-f121 Flooding may also destroy valuable habitat areas and kill wildlife. The Need to Restrict Floodplain Development Is Increasingly Recognized. In the past, emphasis has been onflood control projects that often ignore the beneficial aspects of floods. Public policy is increasingly recognizing that floodplains should be developed only for uses that can endure periodic flooding and that will not contribute to the flood hazard. The flood insurance program of the U.S. Department of Housing and Urban Development offers incentives and will soon include sanctions to encourage local governments to restrict uses on the floodplain'. On the- State level, the Cobey-Alquist Floodplain Manage- ment Act now requires establishment of floodplain regulations as a condition -255- of State contributions toward the cost of lands, easement s, and rights of way for local flood control projects. Costly Flood Control Projects Can Be Avoided by Flood-plain Controls. Substan- 7al public funds can and should be saved by early planning which permits acquisition of right-of-way beforeland costs escalate and by land use regula- tions which eliminate the need to build costly protective structures. Additional- ly, flood insurance premiums and federally subsidized insurance monies can be reduced by preventing inappropriate floodplain land uses. Because flood- plain land use policies (or lack of policies) in one community can endanger communities at far distant points, inter-agency liaison is necessary as well as an established regional authority for consistent application of policies. EL-f131 POLICY 170. Restrict Development on Floodplains. Development on floodplains shall be restricted. a. Requirements for New Developments on Unprotected Floodplains. Only new developments that can sustain periodic flooding and that will not create public burdens by aggravating the flood problem or impeding the storage capacity (for example, some agriculture and.recreational uses, including incidental structures) shall be allowed on presently unprotected flood- plains. b. Restrict Use of -Eloodylains during Flood-Prone Periods. During flood- prone periods, floodplains shall not be used for log decks or storage of materials that can be carried downstream by flood waters unless mitigation (such as anchoring devices or berms) can be demonstrated to be adequate. C. Review MoQd-plain Projects Outside the Coastal Zone Which Could Affect Coastal Zone. A.procedure shall be developed by which affected persons and agencies could review and comment upon proposed projects located in floodplains that are outside of the coastal zone but upon which projects would affect the coastal zone. [L-p7l (See also Coastal Land section on Coastal Streams and Watershed Management.) -256- GEPLOGIC HAZARD AREAS' FINDINGS Four Major Geologic Hazards Pose Substantial Risks to Human Life and Property. The four major geologic hazards in the California coastal-zone are earthquakes (ground shaking, rupture or liquefaction), tsunami (seismic-sea waves) and storm waves, landslides and mudflows, and bluff and shoreline erosion, includ- ing loss-of beach sands.. All of-these may involve substantial risks to human life or property. Subsidence of land areas can also pose major problems for development. Development that,interferes with or ignores these natural geologic processes may impose direct or indirect danger and costs on the public and accelerate or aggravate long-term natural geologic processes of the coast. Of.direct concern for shoreline management are the shoreline erosion processes.; most of the others are of broad concern throughout the State. [G-fl] Earthquakes Are Common in the,Coastal Zone. Much earthquake activity in Calif- ornia occurs within the coastal zone,-which is part of the earthquake-prone belt extending around the rim of the Pacific Ocean.. The coastal area contains many complex fault zones. Ground shaking and liquefaction of certain soil materials (especially fill) can cause tremendous damage in addition to the rupture at the fault; however,.proper engineering can overcome some of these hazards. [G-f2] Earthquakes Are Unpredictable. Almost every section of the coastal zone has experienced earthquakes with various intensities. The recorded history of approximately 175 years is too brief, however, for definitive assessment of the earthquake vulnerability of any coastal section. In all areas, seismic activity is virtually certain, but it may not.occur for centuries. Similarly, the absence of any high-intensity shock in any area in the past 175 years does not rule out earthquake possibility. EG-f3l Definitive Studies of Earthquake Hazard and Probability Are Lacking. Definitive studies of earthquake hazard and probability are lacking. The technology of . data collecting, processing, and interpretation is still in a state of develop- ment. Only the areas of recent high-level earthquake activity have been inten- sively studied. Instrumentation and seismic theory itself is@in the process of continual revision. Maps of active fault areas only indicate a portion of the earthquake--prone areas in the Statei [G-f4l. Many earthquakes occurin previously unmapped areas.: Potential Earthquake Damage in the Coastal Zone Is Great. The scale of earthquake shaking hazard is indicated bythe California Division.of Mines and Geology projection of $21 billion in damage statewide between 1970 and 2000 if the present, rate of losses continuesinto the future4 A large amount of this damage would.occur in-the coastal zone. [G-f5l Tsunami and Other Sea Waves Can Cause Coastal Damage. Large-scale seismic sea waves (tsunami) in.the' Pacific Ocean Basin,have@caused some degree of damage along much of the-California coast, such as the great, waves that followed the 1964 Alaska earthquake. [G-f6] Nearsh6re earthquakes can generate-localized tsunami, such as the Santa Barbara Channel event of 1812. [G-f7l Much dama e'' 9 can also occur as a result of waves and winds during great storms, as for example the February 1960 storm in northern and central California. A combination of storm waves and high tide, or storm waves and a tsunami, or all three, could cause especially severe damage along the California coast* [G-f8] Susceptibility to Tsunami Varies Along the Coast. Tsunami damage recurs in certain areas of the coast more than in other, since waves may be focused by the configuration of the ocean floor. Generally the coast north of Point Conception is more susceptible to Pacific Ocean events, while areas such as Santa Barbara and Santa Monica are more susceptible to locally-generated tsunami. Crescent City on the northern'coast has been repeatedly damaged. Various areas of the southern coast from Santa Barbara to San Diego suffered minor damage from the great waves of 1964. Both these tsunami struck the southern coast at low tide; had high tide prevailed, damage might have been greater. [G-f9] Identifying Areas of Probable Tsunami Risk Can Aid Land Use Decisionsi Asses- sment of tsunami hazard on the California coast is based on a brief,,ind partial history. No such assessment can anticipate future extraordinary events. How- ever, identifying areas of probable tsunami risk can provide useful information for land use decisions. Limited mapping of possible runup areas in southern California is now under way by the U.S. Army Corps of Engineers for the Federal Flood Insurance Program (in part'based on earlier work by the U.S. Geologic .Survey). The California Division of Mines and Geology has outlined general areas vulnerable to tsunami along the coastline. Local and regional studies are often available to augment this information. [G_f1O] Many Landslides Occur in the Coastal Zone. Much of the landslide activity in California occurs in the coastal zone, due to the instability of the prevad'.1ing rock units and the steep-canyon topography of the coastal ranges. Many types of landslides, both ancient and recent, are observable, including rock falls, slides, and slow and fast mudflows, but many have been obscured by erosion and subsequent vegetation growth. Landslides and fast mudflows are caused by earthquake ground shaking, unstable rock formations, supersaturated ground material, torrential rainfall, and poorly planned development of landslide- prone areas. (For example, building on steep slopes, especially involving cuts and fills, may increase landslide risk if not properly planned). [G-fll] Fast Mudflows Are Also a Problem in the Coastal Range. A special problem in the California coastal range is the potential for fast mudflows on canyon walls and.on alluvial plains or canyon mouths. The potential for these mudflows is greatly increased by sudden heavy precipitation and by loss of ground cover, especially from fire. Revegetation programs after fire can help in reducing risks, but complete stabilization of these flow-prone areas is virtually im- possible. In spite of this, these sites are often developed and suffer from later damage (for example, Topanga Canyon in-.southern California and the Big Sur area in central California). [G-f12] The California Division of Mines and Geology projects a statewide loss of $10 billion due to landsliding in the 30-year period after 1970, much of which will occur in the coastal zone if the present rate of losses continues. [G-f131 S12Re Stability Hazards Can Be Minimized by Mapping and Regul@Ltion. Slope- stability mapping is a primary tool for assessing potential landslide hazard, while regulation of land use and site preparation is,the chief means of minimizing slope stability hazards. At the present time, both mapping and regulation are incomplete within the coastal counties. Mapping has often been undertaken only when intensive development is contemplated and land- slide hazard is suspected; however, the Division of Mines and Geology has or _258- is preparing,'maps for Sonoma, Marin, Santa Cruz, Ventura, Los Angeles, Orange, and San Diego Counties. Regulation is normally adopted only after damaging landslides occur. Slope-stability maps must be supplemented by specific analysis of individual sites if construction is proposed in.areas indicated to be hazardous. EG-f141 Subsidence is Also a Hazardin Some Coastal Areas.' Subsidence is the relative sinking of the surface of the earth's crust in limited areas. This geologic hazard can be either natural or man-induced (primarilyfrom overdraft of sub- surface liquids such as water and petroleum) and can break or shift many structures, such as buildings, transmission lines, and pipelines, and can cause inundation of beaches and low-lying areas. The South Coast Region has suffered and may still suffer from the greatestamount of subsidence in the coastal zone. The California Department of Mines and Geology estimates that statewide losses due to subsidence will total $26 million betwee'n-1970 and the year 2000 if current practices are continued. Continuous monitoring of surface elevation changes and associated horizontal movements is necessary for early detection of subsidence. EG-f241,(See Policy 146 regarding measures to minimize sub- sidence hazard in petroleum extraction operations). Legislation to Expand State Geoloac Hazards Programs Has Been Recommended. The Joint Legislative Committee on Seismic Safety has recommended broadening the provisions of the Alquist-Priolo Act (which presently is limited to concern about construction on or near certain active fault traces). The Committee's four major recommendations are: (1) the klquist-Priolo Geologic Hazard Zones Act of 1972 should be broadened to include all major geologic hazards (such as landslides, subsidence, tsunami, liquefaction, and ground shaking); (2), responsibility for.setting criteria for and reviewing land use policies related to geologic hazards should be assigned to an effective State agency able to work with local governments. The proposed commission or agency would not conduct analyses of the geologic hazards of specific sites, however; (3) re- quirements for review of technical reports in support of construction proposals, called for in the klquist-Priolo.Act in general-terms, should be clarified and specified; and (4) the Alquist-Priolo land use controls should be extended to cover State and Federal projects.as well as those of local governments and the private sector. In related legislation in 1974, the.Seismic Safety Commission Act was enacted, establishing an advisory Seismic Safety Commission. Legislation that would have required geologic reports for subdivisions in areas of high geologic risk,(as designated.by local Seismic or Safety.Plan Elements) and in all areas of 2:1 slope or greater was passed by the Legis- lature but vetoed by the Governor. EG-f26], POLICIES 71. Statewide Geologic Safety Measures Are Necessary...Measures to ensure geologically safe land use in California and particularly within the coastal zone are essential. EG-p@], a. ImproVeLocal Governm e'nt Geologic Hazards Programs. Local governments' seismic safety elements of general plans,-and planning, funding, -and im- -259@ plementation.of city and county geologic hazards programs should be improved.' Legislation should be'adopted requiring local governments to adopt, implement, and enforce at a minimum Chapter 23, dealing with earthquake-resistant design requirements, and Chapter 70, dealing with grading requirements , of the Uniform Building Code. Cit ies and counties should be mandated and funded to conduct geologic evaluations and to re- quire adequate engineering specifications in order to assure site stabilty and structural safety for all proposed construction projects and sub- divisions that are in areas identified by appropriate governmental agencies as being of moderate or high geologic hazard or for projects that involve public service facilities and high-occupancy buildings (e.g., police and fire stations, schools and hospitals, major utility and industrial structures, multi-story residential and commercial buildings). [G-pla] b. Strengthen State Role in Geologic Programs. The Legislature should enact legislation assigning, empowering, and adequately funding an ap- propriate State agency to designate geologic risk areas, to recommend and,where necessaryimpose appropriate land use and building regulations related to the designations, and to establish criteria for local govern- ments, specific review of construction projects in hazard areas. Appropriate improvements to the Uniform Building Code should be researched and recommended to both the International Conference of Building Officials and local governments. The State agency should be empowered to review and approve local seismic safety plans, land use policies, and building code standa rds and enforcement for consistency with statewide designations and goals. State funding assistance to the local government for disaster relief and other such programs should be contingent upon satisfactory geologic hazards policies and enforcement. The State agency should further be responsible for enforcing standards and site review for pro- -260- pose State project and for advisory review of projects. [G-p1b] The State agency should also compile and distrbute to all appropriate State, regional, and loca1 agencies, the large amount of pertinent data on geologic hazards being developed by such agencies as the State Division of Mines and Geology, U.S. Geological Survey, Natildnal Ocean Survey, U.S. Army Corps of Engineers, the Seismological Laboratory of California Inst of Technology, county and local governments, universities, colleges, and private organizations. This information should be fully utilized in the formulation of land use plans and building standards and in development evaluations, including septic tank and erosion control con- siderations, affected by geologic conditions. [G-p2] Regional Amplification South Coast: The Newport-Inglewood, Palos Verdes, and the Santa Monica (including the Malibu Coastal) zones of faults shall be added immediately to the list now under special study as required by the Alquist-Priolo Geologic Hazards Zone Act. [G-plRA] 172. Prohibit or Prevent Public Liability for Hazardous Developments. In locations where serious geologic instabilities recur, or are identified by appropriate governmental agencies as having high geologic risks, new structures for human occupancy shall not be allowed, and there should be no public as- sistance for such construction or reconstruction, unless the risk to life and property has been substantially eliminated. State legislation should be enacted to assure that, if for any reason development proceeds with knowledge of high geologic risks but without the necessary precautions, there is no presumption of public liability for property loss (e.g. disaster loans or forms of insurance borne by the general public.) and all occupants of such structures should be advised of the hazard. No development in such locations shall be allowed unless the applicant has signed a waiver of public liability for loss caused by a geologic event and the document is recorded so as to notify all successor purchasers of the structure. [G8-p4] -261- 173- Require Filing of Geologic Hazards Information*:. Geological;hazards information developed by qualified personnel and approved by an.appropriate governmental agency.for general areas or for specific sites should be per@ Tanently filed at the coastal.,counties* -The full reports should be cited.. and a summary,of All relevant conclusions-g.understandable to the-laymAn, should be included.aspart of the,chain of title to property (and be a normal part of a title report)-and also as PaLrt:of the State Real Estate Commissioner's report for subdivisions. [G-P31 174. Review New Developments for Geologic Safety. All proposed structures for human occupancy and other developments that could significantly alter geologic processes or contribute to hazards.in designated areas of high risk and in areas of unknown risk shall be reviewed. a* Project Review Procedure. Where such project review is necessary, geologic and soils reports of the site prepared at the applicant's ex- pense shall be required unless adequate and currently applicable infor- mation is already available. b. Coastal Agency Review. Project review shall be by the coastal agency or an agency designated by it to carry out this function subject to indepen- dent review by the coastal agency within its permit area. (For example, some local governments are or may become adequately staffed and authorized to perform project review, and the Forestry Board may adequately review potential hazards of timber operations). ce Division of Mines and Geology to Assist. The Legislature should enable and fund the Division of Mines and Geology to serve in an official advisory capacity to the coastal agency to assist as necessary in project review. The Division should have a review team available, where necessary, with expertise in geology, seismology, coastal processes, oceanography, soils -262- engineering, engineering geology, structural enginering civil engneering, architecture, landscape architecture or coastal botany, and building code enforcement. The team may include personnel from other State agencies as well as local experts. The coastal agency may also establish advisory boards to supplement this agency asistance. [G-p5] d. Definition of High Hazard Areas for Development Areas of high geologic hazard include: (1) seismic hazard areas delineated on fault maps as subject to potential surface rupture, on soils maps indicating materials particularly prone to shaking or liquefaction, and in local and regional seismic safety plans; (2) tsunami runup areas delineated by U.S. Army Corps of Engineers' 100-year recurrenIc maps, by other scientific or historic studies, and other known areas of tsunami risk; (3) landslide hazard areas delineated on slope stability maps, and in local and regional geologic or safety plans; (4) bluff and cliff areas designated as unstable (see Policy 177); (5) beach and dune areas that are subject to erosion; and (6) any other geologically hazardous areas so delineated by the Coastal Plan maps or the coastal agency. [G-p6] Regional Amplification South Coast: Areas in the Santa Monica Mountains, the Pacific Palisades, the Palos Verdes hills, and Orange County coastal hills are considered high hazard areas; development shall not be permitted without a report evaluating faults, landslides, slumps, soil and rock creep, mudflows, drainage, erosion, and other factors affecting safety and stability. [G-p6RA] 175. Development Guidelines in Geologic Hazard Areas, Development in geologic hazard areas of the coastal zone shall be carefully regulated to avoid risks to life and property, as follows: a. Interim Land Use Designations. Pending more precise data and land use regulations, appropriate land uses, such as agriculture, forestry, sand -263- and gravel mining, outdoor recreation, and parking lots, shall be en-. couraged in all currently undeveloped areas of high geologic hazard. [G-p6]. b.. Criteria for-Development in Hazard Areas. Proposed structures for human occupancy or, developments that could contribute,to potential hazards, such as cuts and fills in landslide areas, shall be permitted in high .geologic hazard areas only if it.can be demonstrated that site treatment and construction techniques are-adequate to overcome the hazard. Proposed site and construction measuresmust be consistent with other Coastal Plan policies. C. Public Buildings in Hazard Areas. All existing public buildings with- in high ha.zard areas should be phased out or adequately protected as soon as possible. d. Restrict Reconstruction in Hazard Areas. In locations where structures have been rendered-unfit for human occupancy by geologic instabilities, reconstruction shall be prohibited unless geologic.and engineering data on the site demonstrates that the structure will not be rendered unfit for human occupancy in the future by the same type of geologic event- EG-p6] 176. Prepare for Tsunami Occurence. Communities within the 100-year tsunami (seismic sea wave) runup zone should include within their safety elements a disaster preparedness plan for a tsunami occurrence; such a plan shall include evacuation routes ahd an effective emergency warning system capable of adequately informing all residents and visitors of an impending tsunami occurrence. Based upon accumulated information, the Department of Navigation and Ocean Development-should establish and enforce Ptandards for marinas and harbors, including debris clearance and emergency evacuation procedures, to reduce potential damage from tsunami occurrencest subject to coastal agency review' and approval. [G-p6l -264- BLUFFTOPS FINDINGS Bluff Erosion Is Caused @Z Natural Processes.and Human Activities. The break- down of seacliffs and bluffs by wave action is a natural and constant process, the rate of erosion depending on such factors as the resistance of the Cliff material, the conformation of the shoreline, the height of the cliff, the erosion from upland areas, and the direction of approach, height, and frequency of waves. Much of the coast consists of terraces of former beach sand over- lying a bedrock; the sand layer is very erodible. In addition to natural causes, cliff erosion can be accelerated by saturation from irrigation or other increased water runoff at bluff tops, disruption of surface materials (for example, by foot traffic over bluffs), undercutting of the base, removing sand or rock materials that protect the base, loading by structures on the top, and improperly designed walls or stairways down the bluff face. Runoff water and saturation can be the major source of cliff and bluff erosion in many areas where land- scaping and irrigated fields have been permitted on bluff tops. In many cases, drainage could be directed away from the bluff to correct this problem. [G-f151 Natural and Artificial Measures Can Protect Bluffs. The best natural defense of seacliffs against wave action is a fronting beach that is both high and wide. Areas of seacliff lacking natural protection can be preserved by arti- ficial means, such as (1) construction of a beach seaward of the cliffs; (2) armoring the cliff with rock or other non-erodible material; (3) construction \of offshore reefs or breakwaters to reduce wave energy that reaches the cliffs; and (4) construction of cliff retaining.walls. Bluff Protective Works Are Costly and Involve Problems. However, these measures can be extremely costly, may be unsightly in the case of retaining walls, may interfere with access along the shore, ma@ require continual sources of sand for replenishment, and must be carefully engineered to avoid beach erosion and shoaling elsewhere along the shoreline. EG-f16] A decrease in sand supply (especially affecting pocket beaches) also may'result in some cases when artificial protective measures interfere with natural bluff erosion processes. [G-f20] Avoiding Extensive Protective Works Requires Control of Development. The best means. of avoiding the many problems associated with construction of bluff protec'tive works, including public costs and visual impact on the natural land- forms of the coast, is tolimit construction on or near bluffs that might eventually require such works. Some additional protective works may be re- quired, however, for certain public service facilities and for protecting existing structures. [New findingl POLICY 177.Regulate Bluff and Cliff Developments for Geologic Safety. Bluff and cliff developments shall be permitted only if it can be demonstrated that design and setback are adequate to assure stability and structural- integrity for the -265- expected economic lifespan of the development and that the development (including storm runoff, foot traffic, grading, irrigationg and septic tanks) will neither 01 create nor contribute to erosional problems or geologic instability of the site or surrounding,area. Design solutions shall in no case include destruction of cliffs and bluffs by excavation or other means. Bluff protection works may be permitted only for public service facilities or for existing endangered structures and only if consistent with other Coastal Plan policies. (See Policies 18 and 53)4 No new lot shall be created or new structure built that would increase the need for bluff protection works. [C-P71 a. Expert to Evaluate Site Stability. The demonstration of stability shall include a report prepared by a registered geologist, a professional engineer specializing in soils engineering, and/or a certified engineering geologist acting within their areas of expertise, based on an on-site .evaluation. The report shall consider (1) historic cliff erosion, (2) cliff geometry, (3) geologic conditions, including soil and rock characteristics, (4) landslides, (5) wave and tidal action, (6) ground and surface water conditions and variations, (7) potential effects of earthquakes, (8) the effects of the proposed development, and (9) any other factors that may affect slope stability. The report shall express a professional opinion as to whether the site and development will meet the above standards during all foreseeable normal and unusual conditions, including ground saturation and maximum 100-year probable seismic forces (using best available information), throughout the lifespan of the project. The report shall use a currently acceptable engineering stability analysis method and shall also describe the limitation in this professional judgment due to assumptions and unknowns in the analysis. The degree of analysis required should be appropri ate to thedegree of potential risk presented 01 -266- by the site and the proposed project; no significant risk to human life shall be acceptable. b. Area of Stability Demonstration. As a general rule, the area of demon- stration shall include the base, face, and top of all bluffs and cliffs (of 10 feet in height or greater measured from the toe of the cliff face) extending inland to a line formed by a 20-degree angle from the hori- _J zontal plane at the base of the cliff or bluff(a 2.75:1 slope) or 50 feet from the top edge of the cliff, whichever is greater. How ever, the coastal agency may de- signate a lesser area of demonstration in specific areas of known geologic stability (as determined by adequate geologic evaluation and historic evidence) or where adequate protective works already exi st, and may desig- nate a greater area of demonstration and/or an area of absolute development exclusion in areas of known high instability. EG-P71 Regional Amplifications Central Coast: In low stability areas, any proposed development must be excluded from the area of 1:1 (450) slope.from toe to top of bluff and from the area of active movement. Low stability areas are defined as those with: (1) greater than one foot/year cliff retreat; or (2) landslides or other inherently unstable material (such as beach sand or active sand dunes). Areas currently considered to be unstable are indicated on the maps in Part IV. Designation of these areas may change as'additional information becomes available. EG-p7RA1 South Central: Any significant changes in loading, grading or filling in a bluff area, as determined if possible by a local planning agency in con- sultation with qualified,engineers, shall require justification by a qualified engineer or geologist. Before any construction is permitted in a bluff area, an adequate drainage plan must be presented. In projects involving 31000 square feet or more of floor area together with paved areas, said plan shall,be prepared by an engineer. All surface runoff, including streets and paved areas, shall be drained away from the bluff face, or ample conduit capacity provided to carry this water to.the toe of the bluff. No septic tank shall be allowed closer than 50 feet from the 2:1 plane of the equilibrium slope. Landscaping shall consist of plant species that will -267- tend to limit the possibility of percolation deep into the soils of the. bluffs. [New RAI (See also regional amplification in Appearance and Design policy regarding bluff development and structures.) 01 Regional Amplification to the Development Chapter South Coast: Following are interpretations of the Intensity of Development Policies in the South Coast Region as adopted by the South Coast Commission. These have not been reviewed by and are not adopted by the State Commission pending such review, but are included here for illustrative purposes. They should be read in conjunction with the South Coast subregional des- criptions beginning on page 331- Subregion 1--Malibu: This area should be designated as a nonurban area with priorities focused on'open space, recreation, and agriculture. No major employment centers such as industry, service facilities, and regional shopping centers or other population generators should be per- mitted. Undeveloped land in the immediate shoreline area, between the beaches and Pacific Coast Highway, should be acquired by the public and used primarily for recreation, physical access, and visual access from the highway. Low rolling hill areas inland from the Pacific Coast Highway, such as Lower Malibu Canyon,-may accommodate low density residential and institu- tional uses in planned communities retaining maximum open space. The higher hills should be generally planned for very limited low density residential uses in planned communities in designated locations. Places of special aesthetic value, such as Point Dume headland, or active recreation value, such as the beaches below the bluffs at Point Dume, should be acquired for public use at an early date. Commercial uses should be limited to planned commercial clusters inland of Pacific Coast Highway. Improvements in roads, water and sewer service should be designed and implemented to maintain a nonurban character as well as saf-ety; such improvements should not stimulate population growth or accommodate unaccepatable patterns of development. Subregion 2--Santa Monica: No intensification of land uses in areas of Venice,severely impacted.by traffic congestion,should be permitted unless measures to relieve the congestion are undertaken. No intensification of land uses in the Marina del Rey area should be permitted until the problems of adequate public access and open spaceo traffic congestion, and land use priorities are solved through local and State agency coordination. Re- cycling of residential land uses should be comptabile with neighborhood character and the maintenance of social diversity, particularly in Venice and Ocean Park. Recycling at the same densities and rehabilitation of older housing should be encouraged. A 40-foot wide linear park adjacent to the east side of Ballona Lagoon and the north side of the main channel should be acquired, pedestrian and bicycle routes provided adjacent to the lagoon, and additional parking and open space on the west side of the lagoon should be provided to the extent feasible. Subregion 3--LAX-El Segundo: Stable, single-family neighborhoods should be preserved and protected from pressures for recycling to higher densities. Adequate buffers should be maintained between residential areas and incom- patible uses, such as Los Angeles International Airport and industrial areas. The undeveloped land in the Ballona Creek area should be maintained for -268- habitat open space and compatible recreational uses. Noise, air, and water pollution should be controlled to a greater degree and the visual appearance of industrial areas enhanced. Subregion 4-South Bay: Residential recycling and rehabilitation should ,be encouraged at existing densities, retaining opportunities,for social diversity. No intensification of residential usesthat are incompatible with the existing character, or with the ability of the transportation? water, and sewer systems to provide an adequate level of service, should be permitted. Commercial uses should be encouraged to concentrate in in- land centers incorporating pedestrian circulation and coastal access. No development, whether private or public, s hould be permitted to inhibit free access to the shoreline. Subregion 5-Palos Verdes: Most of the remaining undeveloped areas sea- ward of the Palos Verdes Drive West and South should be used for very low density residential projects providing substantial permanent open space for recreational and view corridor purposes, the preservation of prime agricultural soils, and protection from geologic hazards. No new major employment centers, such as industry and service facilities which would encourage significant increases in population growth or traffic generationg should be permitted. Residential and commercial uses should be permitted in planned clusters assuring maximum retention of open space. Single family residences on large lots,that, with adequate control of grading, preserve the natural land contours and scenic qualities of the area should be permitted. Commercial uses should be generally limited to neighborhood and community uses. Regional shopping centers should be prohibited unless the transportation system can adequately support their needs. The pro- tection of bluffs should be a major priority. Subregion 6--Harbor Area: Industrial development.in the port facilities should be limited to coastally dependent or related uses ' Increased public facilities for recreational access should be provided to the shoreline and harbor area subject to the maintenance of public health and safety, port securityo and.where it does not interfere with cargo operations. Opportunities for low and moderate income families and minorities to reside in and to enjoy recreational facilities in the harbor area should be protected a*nd expanded. Tourist commercial uses and marina and small craft storage areas in specially designated areas of the harbor where there is minimal conflict withport functions should be permitted. Link- ages by public ferries and bicycle and pedestrian paths between San Pedro and Alamitos Bay should be developed, consistent with pliblic safety and port security in cargo handling areas. No additional-landfill of the harbor should be permitted for port operations and industrial uses as long as existing land suitable for the proposed use is available or under- utilized. Fort MacArthur should be maintained in public ownership, primarily for recreational and institutional uses. The unique characteristics of the San Pedro area should be enhanced and protected. Subregion 7--Long Beach: Residential development should include units designed for a wide range'of income and age groups. Recycling and rehabili- tation of residential-areas at the same densities should be encouraged. Increased public access to beaches and linkages between the central business district and harbor and Alamitos Bay should be provided. Intensification -269- of land uses around Alamitos Bay should be permitted only if adequate concurrent measures to handle traffic are required and appropriate measures implemented to safeguard the water quality of the bay. Major open space and vista points should be incorporated into recycled land uses on Signal Hill. Subregion 8@--Islands: Coastal hill areas should be retained in permanent open space for recreational purposes to the maximum extent possible. In the-unincorporated areas residential uses should be permitted only in a few clustered, planned communities, primarily for the resident population. Riding trails and other public recreational facilities should be incorporated in permanent open space areas. Design standards should include emphasis on pedestrian and transit circulation, and automobile usage should be prohibited or discouraged. Small craft anchorages and marinas should be provided where environmentally sound. The distinctive character of Avalon and other settlements on Catalina should be maintained. Subregion 9-North Coast: No development of Bolsa or Anaheim Bays or surrounding lands that would seriously impact the ecological preserves shall be permitted. Open space for wildlife habitat and recreational uses should be restored and Maintained from the Santa Ana River mouth to Victoria Street and in the vicinity of the Edison and sanitation district plant facilities, as is presently proposed in the Santa Ana River Greenbelt Plan by Orange County. Strip commercial uses along Pacific Coast Highway should be redeveloped into planned commercial clusters. Recycling and rehabilitation of residential areas at the same densities should be encouraged. Opportunities for low and moderate income families and minori- ties to reside in the area and enjoy recreational facilities should be protected and expanded. Bluffs should be protected; vista points should be provided and incorporated into public open space when feasible. Public open spaces should be incorporated into residential and commercial areas. No intensification of land use should be permitted which is incompatible with the existing character of development. The nine-acre property of the City of Los Angeles.Department of Water and Power and the mouth of the San Gabriel River should remain in public ownership and should be primarily for open space/recreation uses. Subregion 10--Newport/Mesa: Upland areas adjoining Upper Newport Bay should be publicly acquired for recreation uses compatible with the wild- life preserve. Undeveloped land at the Santa Ana River mouth to Victoria Street should be acquired as a regional park for public recreation and wildlife habitat. No intensification of uses should be permitted in areas severely impacted by traffic congestion. Visual and physical access to Lower Newport Bay should be improved. The boat maintenance and repair industry should be protected from displacement. Inland parldng areas served by public transportation to the beaches should be provided. Subregion 11-Irvine: Land between the Pacific Coast Highway and the shore should be limited to permanent open space for active and passive public recreation, including highway view corridors, and to planned clusters of water-oriented resortg recreational and tourist uses, such as restau- rants, hotels, and boating facilities which serve the general public. The remaining lands on the coastal shelf.which are not specified as critical resource conservation areas may be utilized for low density, clustered residential uses and related commercial and institutional uses. In the -270- hillside area above the coastal shelf, the steep slopes, deep canyons, and very narrow ridges should be primarily limited to open space uses. The gentle slopes? elevated terraces,-and broadridges may be utilized for low density residential communities including related commercial and institutional uses pro@rided these uses are located and designed in a way to protect the sensitive natural resources. Vista points of special aesthetic significance should be developed for public access and use. No commercial use abutting Pacific Coast Highway should be permitted. All commercial uses should be restricted to carefully selected sites,'to serve residents and visitors as appropriate. Subregion 12-Lagunas: Undeveloped lands seaward of Pacific Coast Highway that could provide significant open space recreational opportunities, vistas or view corridors, and/or commercial recreation facilities such as resorts, hotelst and campgrounds that serve the general public should be acquired by the public. No major commercial centers, industryp or service f acilities, which would generate significant increases in traffic congestion should be permitted. New commercial uses should be limited to planned commercial clusters inland of Pacific Coast Highway. Residential uses should be permitted in the lower hill areas with maximum retention of open space. The higher hills should be generally maintained in open space use with only very limited low density residential uses in selected locations. Pedestrian access to tideland areas should be provided through private communities. Subregion 13-South Coast: Undeveloped land above and immediately adjoinixig the coastal bluffs should be primarily limited to low density development and where possible open space uses for public recreation and view corridors. No major employment centers or other population generators should be permitted until traffic congestions can be resolved. Vista points and bluff top walkways should be provided for public access. Residential and commer- cial uses should be permitted in the lower elevations in planned clusters to maintain maximum*open space. The higher hills should be generally maintained in open space use, with only very limited low density residential uses in designated locations. The railroad abutting the beaches from San Clemente to Dalia Point should be relocated when appropriate. Removal of housing and trailers from the beach sands should be undertaken through public acquisition. Prior to this action, public access to the beach area should be sought through negotiation. Pending a determination of the natural environment and the impact on population growth levels which implemen- tation of adopted policies for coastal resaurce management will have, the oastal agency should use the adopted.allocations of the Southern California Association of Governments to guide the population growth in the coastal c zone. As an interim policy, the SCAG allocations should be set as the maximum desirable population level and used to phase development. A lower level or rate of population growth in coastal communitles should be considered consistent with this interim policy. -271- FINDING8 Incompatible and Adverse,,Coastal-Developments Can Be Eliminated. Many parts of the coast have been degraded by past development, both public and private. In- compatible or harmful developments include those that.generate substantial pollutiong degrade or reduce wetland areas and coastal agricultural lands9 block important views of or access to the coastq cau8e,beach erosion, adversely affect marine lifeg or degrade coastal neighborhoods. These degraded resources can be restored, as mandated'by the Coastal Act4through several courses of action, including: (1) public purchase and restoration of natural areas and the creation of public-recreation areasq (2) consolidation of existing small lots into parcels compatible,with the Coastal Plan, (3) phasing out developments that are inconsis- tent with the Coastal Plan, (4) encouragement of new development that is consistent with the Coastal Plan, and (5) rehabilitation and redevelopment. Small Lot Coastal Development Can Impact Coastal,Accessand Resources. Vast; amounts of coastal land have already been subdivided and sold to many individuals. In many areas of the coast, the number of existing lots that can be developed piecemeal can have a cumulative effect on coastal access and coastal resources comparable to large subdivisions developed at one time. [I-f111 Some Blighted Coastal Areas May Reauire Redevelopment. Rehabilitation efforts can restore many blighted areas of the.coast. If efforts to rehabilitate blighted areas are unsuccessful, the redevelopment of such areas can,:@ '(1) generate revenue necessary for improved public services and amenitiest (2),provide for the assemblying and consolidating of subdivided lands for orderly development as an alternative to fragmented lot-by-lot development, 0) enhance urban design and public access-to the shoreline, (4) implement the adopted development goals of the Coastal Plan and community plans, and (5) provide housing opportunities for a wide variety of income groups. [I-f191 Many Potential Coastal Recreational Areas Have Been Lost. Potential recreational areas for active use by the general publ -ic and scenic-open spaces (such as agri-@- culturev forestryg and grazing,lands) that enhance the recreational quality of the coastlinelhave been lost because the assessment of@land for property taxation pur- poses has often been based on the land's speculative market value (e.@. for resi- dential or commercial development) rather 'than-its-present use value e.gi for agriculture). Such property taxes can economically preclude the continuation of -ion existing non'-int6nsiveuses Howeverg recently-'enactod'legislat"' (AB 4107j- passed in 1974) requires that the effect of development restrictions imposed by governmen t.. ag.encies (including the'Coastal Commissions)-must be.considered in theassessment of land values. [R-f5a] POLICIES 178. Restore Lost or Degraded@Coastal Resources, Lost or degraded coastal., resources "shal I be restored or enhanced. wh ere ver poss ib le. p4l C oa st al -273-.. areas that have been despoiled by landfill operationsg industrial usest pol- lution, or other activities that have destroyed the natural character of the area shallbe restored or reclaimed for natural resource values or recreational use. ER-pif] 179. Restoration Measures Desired as Part of New Development. New developments shall be required to restore coastal resources on the same parcel if the opportunity existsp and developments that offer the substantial restoration of significant coastal resources (e.g. restoration and replenishment of wetlands and wildlife areasp removal of damaging uses? improvement in public recreation) shall have priority over other development wherever the option exists. [I-p231 180. Restoration Measures Required to Off set Environmental Damage. Where coastal- dependent development must degrade an important natural coastal resourcev the developer shall be required to restore or acquire and dedicate to the public an equivalent resource area (preferably in the same jurisdiction ). Where the developer is an organization other than a port? public utilit3@ or other public entityg appropriate financial security shall be required to assure'the comple- tion of the necessary resource restoration or protection activity. [I-p8b] 181. Resubdivide in Certain Areas. Where full development of existing small lots near the coast would adversely affect the preservation of coastal resources or impede public access to the coastq despoil coastal views? or be more costly to the public because of the public investment in roads and other facilities to serve such areas than-the public purchase of the land, the number of lots should be resubdivided and relocated or reduced by (1) incentives to owners or investors to consolidate lots, (2) requirements that lots remaining in common ownership be consolidated, or (3) public acquisition when necessary- E I-p251 182. Restore Visually Degraded Coastal Areas. Coastal areas that have been degraded by alterations of the natural landforms and vegetation, signs and bill- -274- boards that block views and create visual clutterp and development that is mediocre in design and out of character with the unique coastal environment shal: be restored to'a high visual quality. To this end: [A-p3j a. Prepare Long-Range Restoration Plan. The coastal agency, working with local municipalities and citizens, shall prepare a long-range plan for the restoration of the desired visual quality and character of degraded coastal areas, including detailed design criteria consistent with Coastal Flan appearance and design policies. Public funds shall be provided to restore coastal design amenities and to assist local municipalities in developing restoration plans. All new development shall be compatible with the long-range restoration plan- EA-P3a,bjc] b. Redevelopment of Blighted Areas May Be Necessa . If approved restor- ation plans determine that rehabilitation efforts are not adequate to re- lieve blighted conditions in urban areas of the coastal zonev the redevel- opment of such blighted areas by local governments, consistent with the policies of the Coastal Plan, should be encouraged through the provision of State and Federal financial assistance programs- EI-p241 Regional Amplification South Coast: Public acquisition of properties that are non-conforming uses should be considered at such time as local zoning requires their conversion or when they suffer damages totaling 50 per 'Cent or more of their replacement cost. [A-P3RA-' -275- Subregional Planning FINDINGS Need for Cumulative Impact Assessment of All Coastal Zone Development. In some coastal areas, development has been so rapid and extensive that its cumulative effects could not be fully understood until it was substantially completed. For example, many small subdivisions and lot splits may be approved and gradually built up before it is discovered that road capacity has been exceeded, thereby impairing coastal access or forcing the construction of an environmentally damaging and costly road expansion. Coordination of the timing, size, lo- cation, and type of development is often difficult because of fragmentation among the large number of local governments, special districts, public utilities, and regional, State, and Federal agencies involved in land use and public service decisions. Without an assessment of cumulative impacts and cordina- tion among various agencies, local governmental agencies often have no choice but to respond to development pressures rather than to guide the ace and lo- cation of development so as to protect coastal resources. [I-f16] Population Densities Affect Coastal Resources and Their Use. In many areas of the coast, development beyond a certain population or density will adversely affect the preservation of coastal zone resources or access to the coast through the direct effects of development8itself (e.g., the conversion of agricultural lands or the congestion of coastal access roads) or through the impact of services necessary to serve new development (e.g., the construction of'new or widened roads). Conversely, higher population densities in other areas of the coast (e.g., the downtown area of major cities) could take place without ad- verse impacts on resource preservation and access policies if sufficient public services (including public transit and recreation areas) are provided to serve the new development. Setting of Population Densities Needs Precise Area Analysis. The Coastal Act reuires the Coastal Plan to contain "a population element for the establish- Pent of maximum desirable population densities." Precise population limits, including both ultimate amount and location, cannot now be established for all coastal regions. To do so reuires precise analysis of each area now developed or proposed for development in light of the specific resources in the area that need protection and the access needs and problems. With information that is currently available, specific development concerns (e.g., the need to pro- tect agricultural lands from conversion or to keep development from exceeding road capacity) can be idntified for particular geographic areas of the coastal zone. However, translating development concerns into precise determinations of the rate, type, location and pace of development is a complex and continu- ing process that. involves detailed planning and close cooperation with local governments, since they control zoning, the provision of public services and open space acuisition. Setting of population densities there for must be a continuing responsibility of the coastal agency. [I-f24] Subregional Plans Provide Planning Overview. Certain subregions of the coast are experiencing complex development problems, such as degradation and depletion of natural resources, restriced access, and transition to more intense uses resulting in increased congestion and degradation of community character that -277- are difficult to resolve on a project-by-project'basis. Similarly,,Wlthin these areas there of 'ten exists a distinct potential to preserve and enhance unique natural resources and/or to create imaginative, high-quality, man-made environ- ments. Because of the unique nature of each such area, what is needed are plans for subregions of the coastal zone. The subregional plans, many of which can be completed during the life of the present Coastal Commissions, would provide the basis for specific plans or other implementation programs prepared by each concerned local jurisdiction. (See Part III, Carrying Out the Coastal Plan). [I-f251 POLICIES 183. Subregional Plans Should Be Prepared for Some Coastal Areas. Subre- gional plans should be prepared in a joint effort of the Commissions or the coastal agency and local governments, regional agencies, other State agencies, and citizens groups for coastal areas where the cumulative impact of develop- ment over time has the potential for adversely affecting coastal resources or coastal access. These plans shall apply Coastal Plan policies to subregional areas in order to establish development alternatives that are consistent with the Coastal Plan. a* Boundaries for Subregional Plans. The boundaries for such subregional. plans should be based on natural geographic features (e.g., major valleys), important public services (e.g., a coastal road network),and situations where development occurring in more than one local jurisdiction would have a cumulative impact on resour ces and access. (In most cases, these bound- aries c orrespond with the subregions designated in Part IV). b. Means of Establishing Development Alternatives. The subregional plarB should:- (1) define the nature and extent of the,current commitment to de- velopment; (2) analyze the changes that would result in these development patterns if Coastal Plan policies oriented toward specific types of re- sources (e.g., agricultural lands, estuaries, coastal neighborhoods) are applied; (3) examine the implications of the se different patterns of de- velopment for coastal access, public servicesand other Coastal Plan :.278- policies (e.g., concentrate development); (4) determine the alternatives that are consistent with the Coastal Plan; and (5)create a system for monitoring the effectiveness of subregional plans in protecting resources and preserving access. c. Goals of the Assessment of Development Alternatives. The assessment of development alternatives should attempt to: (1) resolve questions about the type of development that should have priority in specific. areas; (2) indicate where density shifts (including increases or reductions.) could or should occur, including setting the limits of urban development, where appropriate; [I-p26] (3) determine the relative ability or inability of particular coastal resource areas to tolerate development, where it designated in the Coast Plan; [I-p3] (4) indicate the conditions that must accompany different levels of development (e.g., open space necessary, to serve new development, improvments in transportation systems reuired beyond a certain level of development); and (5) define conditional uses appropriate for specific sensitive source areas. [I-p26] The possibility and desirability of categorizing coastal resources for the purpose of establishing appropriate development guidelines should also be investigated as part of the subregional planning program. [I-p3] d. Localities Should Refine and Apply Subregional Plans. Once subregional plans have been adopted by the Coastal Commission or by the coastal agency, local governments may prepare plans for individual jurisdictions based on one of the acceptable altiarnatives. Such as should. include priate, capital improvement budgets for public services, specific programs for acquisition of public open space an recreation facilities, specific programs for improved public transit, preservation programs for coastal resources (e.g., Agriculture), appearance and design guidelines, and re- storation programs for natural and man-made resources. -279- eo Provide State Funding For Subregional Planning Programs. State grants ,should be made available for this work in a new program similar to the Federal 701 plaxining program. [I-p261 EXAMPLES OF SUBREGIONAL PLANS A ND THEIR POTE NTIAL In most coastal areas, there is no effective system for identifying the po- tential cumulative impact of many local decisions regarding public services and development as they will ultimately impact upon coastal resources and coastal access. What is needed is a method of assessing potential long-term-impacts before commitments to specific patterns of development @xe made and tifying alternative development patterns that would not adversely affect coastal resources or accesse Subregional plans could sensitively apply Coastal Plan policies to specific geographic areas of the coast. Subregional plans could provide the planning certainty being demanded by both environmentalist and developers. For concerned citizens, a system of subregional planning would allow a concentration of effort on relatively few plans rather than the exhausting process of following every poten- tially adverse permit request. For developers, it would provide the certainty necessary to carry through projects in a time of rapidly changing money markets. For local governments, such a planning process would provide a means of parti- cipating in the elaboration of Coastal Plan policies and of understanding the impact of regional coastal development patterns on their own jurisdiction. A major opportunity would be afforded for-joint efforts by local governments, citizens, other public agenciesand developers in defining alternative develop- ment patterns that would respect coastal resources and access concerns con- sistent with Coastal Plan policies. To be successful, the planning process must have the complete involvement of affected local governments and concerned citizens. A byproduct might be a reduction in the amount of environmental litigation, much of which now results from the inadequacy of evaluating the impact of projects on a case-by-case basiso The planning approach suggested below could be applied to the subregional areas described in Part IV or to some special study areas defined in the Coastal Plan. Two case studies and sample subregional issues are summarized below to help in understanding and evaluating the proposed planning approach. Preliminary work on the two case studies suggests that a five-step process is required to establish alternatives to existing development trends. These five basic steps are: (1) define the nature and extent of the current implied com- mitment to development on the basis of local zoning and ownership patterns; (2) use'Plan maps delineating coastal resource and hazard areas to analyze the extent to which coastal protection and geologic hazards policies will affect the amount and location of development in specific coastal areas; (3) project alternativecapacities for future stages of road, sewer, and water system ex- pansions and then the land uses and population levels associated with each level of expansion of these systems in order to assess the potential impact on coastal resources and coastal access; the key decision points and alternatives concerning the amount and location of services would be spot lighted; (4) using -280- the information from the first three steps, apply development policies (con- cerning density, concentration, man-made resources, etc.) to determine alterna- tive development patterns that would be consistent with all Coastal Plan policies (these alternatives would.att empt to determine development. prioIrities for specific areas, identify where density increases or reductions should occur, and indicate precautions necessary .to protect specIific'sensitive reIsource areas); and (5) create a monitoring system for evaluating the effectiveness of this planning process in protecting resources.and preserving coastal access. The following summaries of' case studies indicate how this approach would..apply in a heavily-urbanized area@and in a low-density, rural area. 'Due to lack of time, the two case'studies . diId not employ the activ e coll6bor.ation with local government and citizens groups that would be necessary in.preparing such plans for actual adoption. Therefore,. they s.houldbe regarded. as, a preliminary test. only. However,, local governments and other public agencies in both subregions cooperated by providing extensive information and reports. HALF MOON BAY CASE STUDY The Half,Moon Bay study area covers,58 square miles and.includes the City of Half Moon Bay, the unincorporated communites of Montara,.El Granada, and Moss Beach, and rural 'lands in San Mateo County. Devil's Slide.and the Santa Cruz Mountains presently insulate the subregion from San Francisco and the urbanized portions of San Mateo.County., The boundaries ofthe subregion were.drawn,to. include the entire watershed,draining into Half Moon Bay, the coastal view- shed, and the highway service system. The land use is presently in transition from row crops and grazing to floriculture and suburban residential. develop- ment. Step 1: Existing Development Potential A 1972 spec.ial'census estimated the population in the.subregion to be approx- imately 11,700. By overlaying maps showing developable l.ots,,existing zoning, and land ownership patterns, it was determined that approximately 15,600 resi- dential units could potentially be constructed to house an additional 48,000 residents. The resulting 60,000 population in the subregion would be a five- fold increase over the'existing population. Step 2: Mapping of Resource and Hazards Policies The Coastal Plan's resource protection policies for preservation of prime, coastal dependent, and coastal related crop lands, etc. were mapped. [email protected],are pro- ,tected, the number of residential units would be reduced by 9,500 and the ul- timate population lowered by 239000 persons. Step 3: Estimation of Devel2pment Potential Resulting from Possible Sewer, Water,and Transportation Svstems Expansions Roads and Transit. The two existing inter-regional highways (State Routes 1 and 92) can accommodate a 4,500-person increase in the residential population before reaching capacity at the poorest service level (30,mph) during peak use periods. -281- Proposals have been made to reroute the two inter-regional highways and expand the roadway from two to four lanes. The road cuts, fills, and new alignment may significantly conflict with the Coastal Plan policies that are designed to protect the scenic quality of coastal landscapes. If Route 1 is rerouted and expanded to four lanes, the residential population could increase to approx- imately 36,000 before reaching capacity.". A residential population of 57,000 could be accommodated if Routes 1 and 92 are both'rerouted and widened to four lanes. However, the Half Moon Bay area currently is being transformed into a r egional recreation center (including proposals to develop a 1,000 boat marina, expand county and State recreation areas by,6,241 acres, and.intensify recreational use in existing coastal parks). Proponents for expanding the capacities of Routes I and 92 have argued that the primary reason is to serve recreational traffic. But projected recreational traffic to the proposed facilities would congest even the four-lane versions of both highways on peak weekends; transit alternatives to highway expansion may be needed to resolve the recreational road congestion problem (e.g., possible use of San Mateo transit district busses on weekends). This recreational traffic volume is an alternate to the addi- tional 57,000 residents otherwise projected. Both cannot be accommodated with- out additional roads. Water Supply and'Sewage Treatment Systems. It was estimated that both the ater supply and wastewater systems in the subregion can accommodate a 61000-person increase in population before reaching design capacity for a town population of about 18,500.' Expansion of the water.supply system beyond the design capacity depends on both the extent to which reclaimed wastewater can be used to supply agriculture,demands and.the development of new domestic'water'supplies. Unless agricultural use of domestic water is reduced through substitution of reclaimed waste water? County Coastside Water District must construct a pipeline across the Santa Cruz range to obtain the Crystal Springs Reservoir water for which it has a ten-rrdllion-gallon-per day contract. In addition, a substantial increase in residential, recreational, and agricultural water demand would have to be promoted to finance the large capital investment required to construct the pipeline. Assessment of properties within the water district to pay for the pipeline may force conversion of agricultural lands to urban uses, a major conflict with Coastal Plan policies. Other water supply alternatives might require stream impoundments or groundwater withdrawal with potential impacts on sediment transport,-biotic communities, or anadromous species that will conflict with Coastal Plan policies (e.g., Coastside Water District must limit its proposed groundwater withdrawal program to prevent salt- water intrusion of Pillar Point marsh). Expansion of sewage treatment capacity in excess of current Department of Finance population projections of 13,500.for the Half Moon Bay area must be funded totally by the local utility. If the sewage plan expansion is con- siderably greater than the capacity funded by State and Federal grants, Assess- ment of properties within the sewage district to pay for the excess capacity may force conversion of agricultural lands to urban uses, Step 4: Alternative Development Levels and Patterns Consistent with Coastal Plan Density and Access Policies The previous step suggests two population levels as a basis for posing alter- native development patterns that would be in accord with Coastal Plan policies -282- on intensity of u8eand acces .sibility to coastal resources:, (1) 16j5,00 (the decision point on expandihg@the existing highways) to 18,500 (the decision point on expanding'the existing wastewater and water@@supply capacity);' and (2) 36,000 to 39,000, with Route 1 at four lanes and the importation of water. Alternatives at the 16,500 to 18,500 -population level. One alternative at this population level is the development-6f Vacant lots-within the small communities of Montara, Moss Beach, El Granada, and Half Moon Bay. Only-thos6 properties that do not conflict with'the Commission's resource protection policies would be developed@ with priority for lots presently served by existing' water, sewer, and .road facilities. I TheIbulk of .the remaini Ing land is in a single ownership, and this may make it possible for the allowable'level-of development to be concentrated in'areas of the holdings where the 1. resources have already been' altered'and thus to'preserve the remaining lands. for open.spaice and agri6ultural uses, A second alternative-wbuld be to allocate a' significant portion of road, water, and sewer services to recreational visitors. For instance, if the remaining peak-hour capacity of Highway 1 were..allocated for recreational access instead of residential development, the existing highway could serve approximately 18,000 recreational-travelers during a three-hour peak travel period.. Addi- tional residential development would have to be limited*until Highway I is im- proved or inter-regional transit is provided. Similarly, additional- residential development will likely compete with recreational development for water supply and sewage services available from the existing systems. Reserving water supply and wastewater treatment for recreational uses would limit residential development to approximately 14,000 personsi Alternatives at the 36,000 to 39,000 population level. To.reach this population level, higher density devel'opment would probably.have to 6ccur.Within.the pub- region. As lands not covered by resource protection policies become developed, the undeveloped coastalresource areas-including agricultural lands and view corridors-come under more intense pressure for, development. Agricultural, recreational, and residential uses'continue to compete for water supplies. Com.- petition will continue between recreational and residential development for wastewater treatment services and highway capacity. It should be noted that the 36,000 to 39,000 population le vel coincides with the maximum population-growth that could occur under current zoning without having direct adverse effects on 'Coastal resource areas (see Step 2 analysis). To go above this population figure without encroaching on resource*areas would require an increase in zoning beyond present densities to allow intensification of de- velopment in non-resource areas. Transfer of development rights from resource areas to high intensity areas might also be necess'dry if the lands involved are not all in'the same ownership. HUNTINGTON BEACH CASE STUDY The H@uiu_Lngton Beach study area is.in northwest Orange County and covers the 5-mile-wide coastal zone between the cities of Seal Beach -(Anaheim'Bay) and New- port Beach (the Santa Ana RiVer).@ This, area is actually part of a larger sub- region that includes Alamitos Bayln Long Beach and much of Newport- Beach. The larger subregion is characterized by similar development pressures' public -283-- service commitments, and transportation and coastal access problems. However, due to lack of time, this illustration of the subregional plan process is limited to.the Bolsa Chica, Lowlands and Townlot area of Huntington Beach. Step 1: Existing Development Potential Huntington Beach is one of the fastest growing communities in southern California. During the past 10 years the population has increased from 15,000 to 150,0000 and the City's general plan projects up to 250,000 persons by the year 2000. Roughly 80 per cent of future growth in the area is projected to occur along the primary coastal access roads and immediate shoreline area, with the majority of this growth expected in the following areas: the unincorporated Bolsa Chica Lowlands (26,200 persons), Standard Oil properties (22,570), Huntington Harbour (14,200), the Townlots (9,500), and the Highway 39 and Warner Ave. corridors (88,000). Huntington Beach may be an appropriate area to encourage develop- ment because of its proximity to major employment centers, but the key issue is how to do so without adversely affecting coastal resources and access. Step 2: Mapping Resource and--Hazard Policies Resource Areas That Should Not Be Developed. The Bolsa Chica. Lowlands are 1,400'vol,600 acres of wetlands and restorable wetlands, portions of which are in agricultural use. This area is one of four "Planning Reserve Areas" desig- nated by the county as needing critical planning decisions in the next few It is surrounded by residential development. Two major projects are proposed for the lowlands: (1) the State Department of Fish and Game, cooperating with other agencies, plans to restore portions of the wetlands (about 380 acres) and to develop about 150 acres as a commercial marina and small craft harbor; and (2) Signal Properties proposes to develop a residential community for 26,200 people in the remainder of the former wetlands. Proposed land uses must comply with Marine Policy 14, which states that no development of former wetlands shAll be allowed unless the area cannot be restored. Only the restoration pro- gram is clearly in compliance with the adopted policy; the residential and marina proposals present substantial conflicts with Plan policy and require further study and project modification or relocation. Hazard Areas in Which Development StLould Be Modified. Huntington Beach is traversed by the active Newport-Inglewood fault system; the greatest potential forsurface rupture occurs from Bolsa Chica Lagoon northwest through Huntington Harbour. According to Policy 175? structures for human occupancy would only. be allowed if site.treatment and construction techniques can overcome the hazard. This policy would affect the City's existing commitment to the pro- posed planned residential community in the Bolsa Chica. Lowlands for 26,200 persons. Similarly, Coastal Land Policy 25t which directs that development shall not adversely affect the recharge capacity of floodplain areas, would also discourage the paving and covering with residences of the substantial flood- plain area. In general, non-residential uses (recreation, agriculture, etc.) are encouraged in natural hazard areas. Recreation and Education Priority Uses. Related Marine and Recreation policies would encourage the proposed restoration program and the creation of a recrea- tion center primarily addressed to environmental education and science but linked by transit and trails to surrounding parks, beaches, and other nearby visitor areas. The Plan policies relegate residential development in the low-@- lands to a low priority and substantially reduce the number of units that could be constructed in the unincorporated Bolsa Chica area. -284- Step 3: Estimation of Development Potential Resulting From Possible Sewer, Water and Transportation Systems Expansions Coastal Access. The existing development commitiment (Step 1) assumes the need for increasing beach access,commercial resort and overnight uses, and restoration and management of the Bolsa Chica Lowlands. However, the Proposal to construct the 1,800-boat harbor and matrina in Bolsa Chica might require a bridge on High- way 1 to provide a new boat entrance for the marina. More critically, it would generate substantial traffic (500,000 visitors annually) that would compete with other recreation activities (day-use beach activities) for the limited re- maining road capacity. Based on existing and projected congestion along High- way 1 and key coastal access roads, improved access for the boating public may be achieved at the expense of area beach and park users Therefore, potential marina sites (such as Pier J in Long Beach) that might not create these con- flicts should be considered as alternatives. Transportation: Key Decision Points and Alternatives. The primary public ser- vice commitents affecting, the level of development in Huntington Beach involve transportation improvements. The key coastal access routes for inland residents, Warner Ave., Route 39, and Golden West, must accommodate most of the increasing visitor traffic; according to City projections, these corridors also will ac- commodate about half of the City's projected residential growth. Route 1 and Route 39 are already at or near capacity, and Warner will exceed design capacity by the Year 2000. Only Golden West (a six-lane right-of-way) appears capable of absorbing the expected traffic increase based on current design. Therefore, basic decisions concerning toad and transit service levels must be made in the near future. Buildout to the projected population should involve the consider- ation of specific transit proposals, including: improved public transit service along major coastal access routes (Route 39 Golden West, and Warner), develop- ment of the Orange County rail corridor for passenger service, development of visitor destintion points combined With park-and-ride shuttle service to public beaches and the downtown area, and resolution of alternative proposals for the Highway 1 Transportation Corridor behind Bolsa Chica. Step 4: Alternative Development Levels and patterns Consistent with Coastal Plan Density and Access Policies Low-density residential development in the Bolsa Chica lowlands would conflict with Development Policy 164 (concentrating development) as long as additional development could be accommodated in the already developed, serviced Portion of the City. Development pressures on the fragile Bolsa Chica resource could be relieved by channeling higher intensity development toward areas with available service capacities and public transit potential. Development Alternatives. Based on the foregoing policies the following de- velopment alternatives might be consistent with the Plan: (1) intensifying development-along major coastal access routes (Route 39, Warner, and Golden West), (2) restricting residential development in the Bolsa Chica Lowlands and increas- ing densities in the Townlots and along the major coastal access corridors, (3) intensifying resort commercial development in the downtown areas,(4) de- veloping recreation and visitor serving,facilities in Hantington Harbour, and (5) expanding the current Central Park concept to include linkages via green- belt and trails with the Bolsa Chica Lowlands and Bolsa Chiba State Beach, including provision of upland support and buffer park facilities (parking, passive areas, etc.). -285- Comparison: Bolsa Chica Development Vs. Shift in Density to the Townlots. Development of a sizable portion of the undeveloped Bolsa Chica lowlands west of Golden West for commercial and residential purposes would result in (1) the los's of scenic viewshed, recreation land, and open space; (2) commitment.,of a.siz- able portion of one of the last remaining wetland habitats in the South.*Co'ast to intensive recreation/commercial use; (3) dredging a channel-to the marina through the State Beach,andHighway; and (4) excessive public costs (repairs to roads, flood control projects) associated with residential development in an area with severe geologic and flood plain hazards. The commitment to develop the Bolsa Chica Lowlands also would continue a pattern of consuming vast coastal land areas for low density sprawl (e.g., Sunset Height, and Townlot areas). Shifting the proposed Bolsa.Chica residential developme nt to the.T.ownlots or other parts of the City with good public services would have the following posi- tive impacts: (I ) a density shift with development.at higher densities in the Townlots area would facilitate the provision and maintenance of public transit along major access routes and in the Townlots area; (2) dependence on the auto- mobile would be diminished, thus contributing to improved air qualityand coastal access.; (3) efficiency of existing public services might be improved and the high costs associated with development in the lowlands area might be avoided; and (4) new incentives could be offered to landowners (in the form of increased densities) that would encourage the consolidation.of lots and blocks within.the Townlots area to enable the provision.of a mix of housing types and.costs, with an increase in public open space and parkland and a more coordinated approach to site planning and design. OTHER EXAMPLES.OF SUBREGIONAL PLANNING ISSUES Because of the tremendous diversity of the California coast, two case studies cannot convey a complete understanding of the range of issues that must be addres- sed in dealing with coastal areas threatened.by conflicting resource demands. The following section describes other major issues that can best be resolved through subregional planning. The areas of statewide significance described be- low present many of the major types of conservation-and development concerns on the coast. The examples: (1) the cumulative impact of development of many small lots in rural areas (the Mendocino 'coast); (2) a major agricultural area threatened by development pressure (the Oxnard Plain in Ventura County); .(3) a low density residential area important as a regional recreation center but now under pressure for residential intensification (Malibu,. in ILos Angeles.County); (4) one of the last large open coastal areas 'in southern California currently being planned for'development and parkuse (the'Irvine coastal property in Orange County); (5) a high-density residential and recreational area undergoing further intensification that is harming coastal access and threatening coastal neighborhoods (Mar-Ina del Rey/venice in Los Angeles); (6) an older urban area just starting to feel major intensification pressures resulting in displacement of residents (San Pedro in Los Angeles);and (7) important lagoons situated in. a rapidly developing area (Agua Hedionda and Batiquitos Lagoons). The summaries include at least one subregion in each coastal Region except North Central Coast to give residents a sense of how subregional plans might be prepared for their areas; North Central applied some- of the proposed process in preparing its Plan Maps and Regional Summary in Part IV. -286- Fort Bragg to the Gualala River (Mendocino County) Among the many,coastal resources of this region are its redwoods, fisheries, its rural, scenictharacter, and its small coastal towns. To maintain the character of the areai the economic viability of non-prime-soil agriculture must be improved and further land divisions must be controlled. Logging is very. important to the local economy but must be better controlled to limit soil erosion, disruption of wildlife habitat, and adverse effects on the fisheries resource that is also an important part of the local economy. Timber taxation practices can have a significant impact on the manner in which timber lands are managed. Tourism, one of the mainstays of the area's economy, 'should be en- couraged to expand, buttourist facilities must be well designed and located to avoid degrading scenic resources or overloading local,services such as water supplies. One of the main attractions of the.tourist industry, scenic High- wayl, c'ould be overwhelmed by congestion if tourism expands.and competes dur- ing peak summer months with residential traffic. In Mendocino County, 69000 undeveloped but subdivided residential lots within 1,000 yards of the coast have been carved out of grazing lands. Competition. for Highway.1 capacity could eventually force construction of a lateral access road from the coast to Highway 101 at a high cost to the public. From Caspar to Man,chester, the rural character of the landscape,* dotted by occasio nal small towns such as Mendocino, Little River, and Elk, may gradually be transformed ' by the buildout of thousands of single-family, primarily second-home, lots along Highway 1. Subdivisions such as Irish,Beach.and Whiskey Shoals may create sep@ arate.suburban secon-d-home communities with no tie's to existing communities and, commercial services. The. soils also present significant limitations on septic- tanks in many areas, possibly leading to failures and water quality problems as development of the existing lots take place. Lot consolidations .tPublic purchase, and other.controls on the buildout should be considered.' In the south- ernmost part of the subregion, PG&E is continuing to investigate sites for a nuclear or fossil fuel power plant, although USGS reacted unfavorably to the seismic hazard posed by a previous 'application*- Oxnard Plain (Ventura County) The Oxnard Plain.bontains some of.the most fertile agricultural land in California,'and also includes Mugu Lagoon, Channel Islands Harbor and marina, McGrath @tate Beach,-and the Santa Clara River'system. The extensive local commitment to.further urbanization will threaten many of these valuable resources. The possiblity exists, for conversion of thousands of acres of prime agricultural soils to urban uses- inadequate public ac'cess-to.harb6r and marina areas;-in- tensific-ation of,sholreline,coastal neighborhoods; long-term preemption of coast- al access.to State Beach facilities; home construction on'-sandy beach areas-- water quality deteriorationproduced'by inadequate sewage treatment;- saltwater intrusion'; bverdrafting.bf groundwater aquifers. and'uplands-development in the watershed'that'creates,intreased storm-runoff and-lower; water quality.- Proposed transportation improvementsthat will affect development patterns in the Oxnard Plain include the widening of Route 101, the possible construction of Highway 1 Bypass, @around the City of- bknard,, - and the: extension',and: expansion. of Route 12.6 (Santa Paula Freeway) to connect w@th Interstate 5. Alt ern'ative.'develo'p.ment@ patterns consistent ,with''Coasital Plan'policies could'in- clude the concintra@ion'of future growth'in the already"urbaniz6d area ofthe Plain (e.g., Oxnard, Port Hueneme);.the expansion of the Port Hueneme complex; and the consolidation of inland transient commercial services (motel accommo- -287-'_ dations, restaurantsl retail food.outlets, etc ) in urbanized areas where public transit can provide transportation to S@oreline* recreation resources. Complementary steps include impleme nting guidelines for development adjacent to agricultural lands, the balancing of public service commitments (water, sewer, and roads) with acceptable levels of future growth to ensure the protection of prime agricultural areas, the provision of public access opportunities in the rapidly expanding Channel Islands residential/marina complex, and the possible expansion of the McGrath State Beach-area. Malibu Subregion (Northern Los Angeles County) Malibu's principal coastal resources include its smog-free air, its scenic, in- termittently rocky and sandy shoreline (the Pt. Dume headlands, and Leo Carrillo, Westward and Surfrider public beaches), the rugged, heavily-eroded Santa Monica Mountains (Charmlee Regional Park), and wildlife habitat areas (Malibu Lagoon, offshore waters north of Pt. Dume), Malibu has long been an inter- nationally known resort-residential area for the Los Angeles Basin. The key issue is how to retain the natural and scenic coastal resources responsible for its popularity in the face of persistent development pressures that could re- sult in the suburbanization of the area. In the permit zone alone, more than 2,300 dwelling units have been approved or are pending, and the South Winter Mesa area (77 acres) is zoned for an additional 1,694 units. Other major pro- posals include a community shopping center and a 140-room hotel and condominium tennis club in the Civic Center area. Development approved between February 1973 and August 1974 represented a 4-fold increase over the Southern California Association of Governments' population allocations for the area. Based on the 2,300 dwellings approved and pending, the 1990 Master Plan population of 2,300 persons will be reached before 1980. Adverse development impacts on coastal resources are evident: much of the ocean view along,Route 1 is already blocked and the road is congested (according to the California Department'of Transportation, 'fit cannot be expected that Route 1 can adequately handle the anticipated future traffic ... It); public access to coastal resources can de- teriorate; and failing septic tanks can pollute streams and offshore waters (Malibu is not served by a sanitary sewer system). Alternatives to current development trends that should be considered include': (1) master planning the Civic Center area (including Malibu Lagoon); (2) the development of a limited sewerage system sufficient only to serve the Civic Center area and existing problem areas along the coastal terrace east to the Los Angeles City line; (3) the potential for public transit along Route 1, in- cluding increased tram/shuttle service to beaches and parks, the Civic Center, and primary destinations (e.g., Pepperdine University); and (4) the clustering of residential and commercial development east of Pt. Dume. The County and State could plan jointly to acquire and develop additional shoreline frontage, local parkland, and upland recreational support areas linked with beaches and the shoreline via trails and trams. Finally, the County and State should jointly explore how further development in Malibu could be phased.to relate to improved transit and parkland acquisition and development. Marina del Rey to Santa Monica Redevelopment Area (Los Angeles). Major coastal resources in this sub-region include the Santa Monica and Venice' beaches, the present and potential public use areas in the Marina and on the Marina peninsula, and the variety of housing for many income levels in the -288- Ocean Park area of Santa Monica and in Venice. Ten major projects are under way (including three hotels) and the County has received inquiries about con- verting existing low-rise buildings to high-rise. Commercial office space totaling 1.5 million square feet is either authorized or under construction. Full development of the Marina del Rey area will generate traffic equivalent to a population of 30-40,000 persons. Heavy development pressure has been felt on the Marina peninsula, in other areas of Venice (especially outside the 1,000- yard coastal permit area), and in Ocean Park. A recent study cites the possibi- lity of a.11virtual ring of high-rise buildings" around the Marina. Transportation system limitations combined with a lack of open space in resi- dential developments in the Venice and Marina areas results in competition between residents and coastal recreation visitors for road access and public recreation areas. A County study concludes that expanded parking serving the under-used Venice Beach area adjoining the peninsula would increase demand for more beach facilities. A shortage of boat service and water-related stores exists in the Marina area due to the virtual absence of dry storage areas; commercial pressures have forced most boat-oriented businesses east of Lincoln and north of Washington St. With only 33 of 401 acres of land used for public recreation and with limited bicycle and pedestrian access to the waterfront, there is a lack of commercial-recreational uses for the general public (e.g., Fisherman's Village).in the Santa Monica beach area, in the Marina peninsula, and in the western portion of the Marina* The Los Angeles traffic department states that development should be limited to transportation capacity or road capacity should be increased; it is possible that current development trends will force the constr uction of the Marina by-pass through a portion of Venice. Coastql Plan alternatives should focus upon restoring the concept of the Marina as a public recreational area. This means increasing access to existing recreational areas in Venice and the Marina and increasing the amount of public recreational area in Ocean Park, Venice, and the Marina. A coastal access plan should include a possible remote-parking/transit shuttle operation to serve the Marina, the Venice beach, and possibly the Santa Monica beach area. De- velopment should not exceed recreational access capacity, particularly in Venice and the Marina. Joint planning should: (1) explore with the City of Los Angeles the possibility of using city-owned lots in Venice for low-cost housing and to absorb development that otherwise would occur on unbuilt lots in the Marina peninsula (perhaps through 4 transfer of development rights); (2) work with the City of Los Angeles in down-zoning the Venice area and imple- menting low-cost housing programs; (3) work with the County to develop' "second generation" development policies for the Marina that would return significant areas to public use when-existing leases expire.(concentrating de- velopment in the remaining areas would promote transit use; priority sites for hotel/motel use should be related to an internal transit system); (4) explore with the City and the County the eventual transfer of residential density.'from the.Marina peninsula to the eastern portion of the Marina. A specific plan should link existing public use areas with those that will revert to public use in the future via pedestrian and bicycle paths. Commercial recreation sites near the Venice peninsula'and the Santa Monica beach should be designated-. The amount and location of commercial office development in the Marina should be limited, with the bulk of new office space demand relocated to areas with better,mass transit potential such as downtown Santa Monica and the Los Angeles International Airport area. -289- San Pedro (Los Angeles) Major regional recreation resources (both public and commercial) in the San Pedro Community include Cabrillo Beach and Museum, Del Mar and Harbor parks, Ports of Call, and Fisherman's Village. San Pedro residents are a diverse group including many minorities. The San Pedro General Plan and zoning are badly outdated. The area is generally not developed to the densities allowed by existing zoning, but if it were, the natural terrain and public service capacities would be overwhelmed. Proposed development could result in diminished access to coastal resources for low-income and minority groups, displacement of present residents, and a change in community character from a marine orientation-to a residential and office area. Current development proposals include the Beacon Street Redevelopment Project (senior and lowincome housing units and an Office/hotel/tourist commercial complex), a massive residential project near 20th and Harbor Drive (2,500 units and up to 4,500 boat sli's), 900 boat slips at Cabrillo Beach, and an Air Force proposal IP to build 220 condominiums on a portion of Fort MacArthur. The potential transfe 'r of Fort MacArthur to the City or County would add further public recreation facili- ties. Alternatives or modifications of current development pressures that should be explored focus first upon improving San Pedro's regional recreational resources and protecting widespread accessibility to them. Conflicts about the.future status of Fort MacArthur will have to be resolved. A mix of inexpensive and low-skill recreational activities should be provided, along with boating and other expensive recreation, to safeguard San Pedro's current status as a major recreational resource for minority and low-income groups. The City, County, and State must cooperate in phasing future building to balance commercial and residential development with better support for public transit. Alternatives here include shuttle services from parking centers at Beacon Street or Harbor Park; development of a linear park with pedestrian and bike trails linking downtown, Ports of Call, MacArthurt Cabrillo Beach and Museum, and Royal Palms Park, and connecting them with a greatly expanded regional trail system; and development of freeway transit services from other parts of the Los Angeles basin. A major@resource to be conserved through careful revision of the General Plan and joint public action is the continued availability of low- and moderate-income housing as San Pedro shifts from a modest residential community toward a job center with intensive residential complexes. Reduction of wholesale conversion pressures through- protective down-zoning might augment positive programs for reserving a portion of new dwellings for low- and moderate-income persons. Careful application of design standards could fit a certain amount of new building into established neighborhoods and help retain the existing marine/harbor orientation of the com- munity. Concentration of most of the new building downtown could help increase the practicality of transit service, which will be an important factor in judging the appropriate extent of commercial and residential development. This could also minimize the costs of expensive upgrading of sewers and streets. Suitability of sites in San Pedro for major marina, ING, and port development proposals must be evaluated in a regional context because they involve basic use conflicts such as safety and long-term major access questions inseparable from regional growth and intensification patterns. -290- Upper Newport Bay-Irvine (Orange County) This area, focusing on the San Joaquin Hills and 3*5 miles of almost undeveloped shoreline, includes the largest block of open coast in Orange County. The San Joaquin Hills provide significant open spacei habitatt and recreation values, while the bluffs and shoreline include a marine -life refuge, protected tide pools, and superb offshore waters being considered for special protection. Upper Newport Bay is a valued estuarine habitat that furnishes substantial,recreational use There are extensive prime agricultural lands at the 1-5/1-4,05 junction and in the vicinity of the San Joaquin Hills. Most of this subregion, except for the City ofIrvine and Upper Newport Bay, is owned by the Irvine Comparjy. It has recently proposed a coastal community of 30,000-509000 personsv with a major shoreline resort at Crystal Cove.. The Irvine planst in cooperation with the Countyv. anticipate the completion of a six-lane scenic corridor as-an extension of State Highway 73 through the hills to connect with 1-5 behind San Juan Capistrano. Four roads through 'the hills would connect inland areas with Route 1. Other major plans affecting,coastal resources include continued substantial growth of the City of Irvine; some further expansion of commercial and industrial space at the Orange County Airport; a major new industrial-commercial center near El Toro/Mis.sion Viejo; and a State-County estuarine restoration program for the Upper Bay. Area growth estimates varyq but generally conclude that the south coastal area will double or triple in population during the decade from 1970 to 1980. This will constitute a substantial share of anticipated County growth as affluent residents continue a major shift away from older portions of the Los Angeles metropolitan area. Thesevery substantial development proposals could severely harm the area's resources. Substantial residential development could destroy valuable natural areas and diminish public access to recreation and commercial facilities along the coa'st. Remote residential development would create a substantial increase in vehicle miles travelled, placing further stress on already poor air quality. Construction of the scenic corridor and.lateral highways through the San joaquin.Hills,connecting it with Pacific Coast Highway would greatly increasedevelopment pressure. Development around the bay and in agricultural lands and watershed,without very careful controls, could exacerbate current siltation and,pollution, impeding publicly-financed restora- tion efforts. Conversion of agricultural land would eliminate especially productive truck farming areas. Acceptable development proposals for the Upper Newpor*t Bay-Irvine area should focus clearly-,on two.basic concepts. A primary Coastal Plan goal is retairdng the immediate shoreline and its access routes as a major public recreational re- source. Given the accessibility of this area to 7 million southern Californians, priority should be given to satisfying.public res*ort and parkland needs and visitor highway.access. The amount of'private residential development should be determined only after these public.access concerns have been satisfied. Much of the visitor traffic will,have to be served by transit or shuttle-systems rather than autos. Public and private campgrounds and resorts should feature a range of prices, and extensive upland support areas sh6uld'.be reserved.for, future needs. Natural and agricultural resources within the planning-area should be preserved, even if this.means substantial'changes in the present projections of regional growth patterns. One major resource is the Upper Bay.' Adequate protection will probably require augmentation of the recent State purchase by a protective park for quiet recreation around the blufftops, severe development restrictions within the flood plaing and improved watershed practices such as stricter grading controls and collection and treatment of urban runoff before it enters the bay. Protection -2 91-, of agricultural lands will require major changes in planned growth. Protection of air quality may force rethinking of the planned scenic corridor and, in addition to heavy reliance upon.transit improvements, may suggest alternative development patterns to current proposals for east-west roads through to Pacific Coast Highway. Substantial recycling of older urban areas in the mid-county, with stronger transit linkages to existing job centers, should be considered as a real alternative to continued sprawl. Agua Hedionda Lagoon to Batiquit os Lagoon (Northern San Diego County) . The main coastal resources in the portion of North County extending from north and east of Agua Hedionda Lagoon to the south shore of Batiquitos Lagoon (shown as portions of Carlsbad and San Dieguito subregions on the Plan maps in Part IV) include major coastal agricultural areas, especially flowers and track crops, two major lagoons, and important present and potential public and commercial recreation areas. Planned public services and current development trends allow for UP to 4,500 new residents per year with a population of 46,000 to 60,000 persons by 1985, compared to a current population of 17,500. A 350-acre industrial park proposed south of Palomar airport, a proposed refinery southeast of Agua Hedionda, the La Costa development east of Batiquitos, an urban enclave near Poinsettia Lane and a proposed 1,100 acre (12,000 resi- dents) project north of Batiquitos could combine to create a second urban nucleus in Carlsbad separate and distinct from the existing urban center. Projected development patterns will result in the conversion of 33 per cent of Carlsbad agricultural lands by 1995, with most of the remainder slated for conversion with the completion of proposed planned communities. Development impact on the lagoons may include siltation from construction on steep sand- stone slopes, heavy urban storm runoff into the lagoons, interference with such natural flood plain and drainage areas as San Marco Creek serving the lagoons, and destruction of diverse wildlife areas formed by a combination of eucalyptus and coastal sage with grasslands and fallow fields around Batiquitos. Loss of potential recreational areas would be particularly severe because the North County area has the greatest deficiency of upland park support areas in San Diego County and State beach campsites can serve only 10 per cent of the projected camping demand by 1980. Sain Diego County has, however, significantly reduced its acquisition priority for Batiquitos due to high park development costs. Alternatives to current development trends that should be explored include encouraging concentration of development in the present urban center. In non-resource areas, determination should be made of the most a propriate uses near agricultural lands (e-g-, industrial vs. residential uses@. Agricultural 'preservation programs to be explored include agricultural zoning, use of the Williamson Act, possibly with a special category of subventions for urban areas, and the sale-leaseback program proposed by the San Diego Comprehensive Planning Organization. Public services should not be extended to resource protection areas. Master planning of both lagoons should determine balances between active recreation and passive recreation, agricultural use vs. wildlife uses, and park vs. residential uses. The State and the County should plan jointly a possible acquisition of park buffer area around Batiquitos, with Amtrak and tram service to beach areas. Limited dredging in the lagoon should be considered to restore wildlife areas. 91 1 -292- 1 Part III: Carrying Out the Coastal Plan Alternatives for Coastal Regulation and Management No plan dealing with controversial matters is apt to be of lasting value unless it can be enforced. The Coastal Act therefore requires that the Coastal Plan contain "recommendations fr the governmental policies and powers required to implement the [plan] including the organization and,authority of the govern- mental agency or agencies which should assume permanent responsibility for its implementation." There are many ways, some more effective than others, by which the Coastal Plan can be carried out. This section describes these options. No recommendation is made in this Preliminary Plan, because discussions and evaluations of these options are still being conducted by the State and Regional Coastal Commissions. Public testimony on the alternatives is specifi- cally sought at the plan hearings scheduled in the spring. This section of PartIII discusses three questions: (1) What form or forms of governmental structure can best carry out the Coastal- Plan? (2) What governmental powers will be needed to carry out the Coastal Plan? (3) And what will it cost to carry out the Coastal Plan? GOVERNMENTAL STRUCTURE TO CARRY OUT THE COASTAL PLAN CRITERIA Possible forms of governmental organization to carry out the Coastal Plan should be evaluated using the following criteria: Encourage Public Participation. Complex governmental organizations and procedures can make it difficult for all but the well-organized and well-fi- nanced to present their views effectively. Constant contact between a govern- mental agency and the interests it regulates can, over time, lead to decisions more and more favorable to the interests being regulated, and less and less favorable to the public. Sometimes, decisions of such an agency seek only to balance the views of the proponents of a policy and those opponents who are able to advance their views. The resulting decision may indeed achieve a balance between such views, but it may also leave out a considerable part of the overall public interest. The public should be able to play a major role in the decisions that will cumulatively determine whether or not the Coastal Plan is being carried out. The lone biologist who knows the effect of a proposed action on a marsh area, the homeowner concerned over a proposed coastal development and the owner of -295- a coastal farm may all have information and views helpful to any governmental agency required to preserve, enhance,,and restore the resources of the coastal zone--and such persons should be able to make their views known easily and fully. Provide '@isibility, Accessibility, and Accountabilit . The agency desig- nated to carry out the Coastal Plan should be visible: its actions should be open and widely publicized. The agency should be accessible: it should have understandable administrative procedures; should provide staff assistance for all pair-ties involved in matters before ity applicants and opponents alike; should have meetings and offices in'convenient.places; and should provide for easy access to appel I ate review and the courts. Finally, the coastal agency should be accountable: citizens should have a clear wayto seek to change both the decisions and the decision-makers if they do not adequately carry out the Plan. Protect Both Statewide and Local Interests. The Coastal Plan has identified coastal resources important to all the people of Californiag now and in the future-there is a "statewide" interest in these resources. They include scenic coastal highways, wetlands that are essential to the ocean fisheryv prime agricultural lands, coastal neighborhoodsp beaches-and parks. Some coastal streams have vital runs and-breeding grounds for fish critical to California's commercial and recreational fishing industry. Some coasta.1 lands provide unique recreational opportunities for persons who live elsewhere in the State, outside the coastal zone. Other coastal sites may be needed for energy generating facilities to meet California and national energy demands. The agency designated to carry out the Coastal Plan must be able to fully protect this statewide interest in the coastal zone. At the same timey it must be able to give full weight to the interests of the people who live in the area that will be most affected by coastal decisions, and to the views of the local governments having jurisdiction over such areas* In some casest the local and statewide interests may be in conflict. For example, people already living in coastal areas may seek privacy, with no increase in access for outsiders to reach the beaches near them; but the broader interest may lie in providing more access to the oceanfront. Or local government decisions may have unintended impact on coastal resources beyond the locality's immediate boundary. A baancing of interests will clearly be needed, and the agency desJ,gnated to carry out the Coastal Plan should be able to properly consider them. 22erate Efficientlv and Economically. The coastal agency should be de- signed to operate efficiently and economically. Duplication of activities among governmental agencies should be eliminatedg and decisions on proposed projects should be made as rapidly as possible. Administrative costs should be kept as low as possible. Deal Fairly with Diver=. The coastal zone of California is 1vO72 miles long and contains diverse terrain and diverse communities. But coastal resources deserve protectiong wherever they exist along the coast. Coastal Plan policies should be applied evenly and uniformly, and differences.in their application should be based solely on differences in coastal areas. Maintain Flexibility and Adaptability to Change. The Coastal Plan will need amendment from time to time. In an era of rapid changey the agency de- signated to carry out the Coastal Plan should be able to amend both statewide -296- and regional POliciesv,upon showing.t@hat such changes are dictated by new circumstances. Rut.such changes should not be made capriciously. No governmental agency can achieve all these standards to the same degree at the same time. For example, an agency that provides fully for public participation in decisions and for thorough hearings will have higher costs and longer processing times than an agency that does not. It is therefore necessary in evaluating governmental options to decide which of these criteria are paramount, and how to achieve a,balance among them. ALTERNATIVE GOVERNMENTAL ORGANIZATION TO CARRY OUT THE REGULATORY AND PLANNING PORTIONS OF THE COASTAL PLAN There are several ways new and existing governmentalagen.cies could be designated to carry out the regulatory and future planning functions called for in the Coastal Plan. Each has its advantages and 'disadvantagesp and there is no one "right" answer. The principal alternatives are the following: 1. Multi-Purpose State Agency. A new Stat 'e agency could be cre,ated.not only to carry out the Coastal Plan but also to have responsibilities in several related areas-perhaps statewide land use planning and regulation, transporta- tion, energy supply and conservation, control of air and water quality. Under this alternative, carrying out the Coastal'Plan would presumably be the responsi- bil ity of a division or department within a very large and powerful agency. In theoryp such an agency would provide foreffective coordination among the many areas of interest that affect the coast,, such as highway construction, agri- cultural land policies, and water quality control. In practice, it is likely that such coordination would depend.largely on the priorities established in the enabling legislation and by the governing body@ 'Whatever the statewide benefits'of such an agencyl,it is clear that coastal protection would be, unlikely to receive the high priority given it by the people of California through passage of the CoastalInitiative (Proposition 20) in 1972. One option within this generalalternative,would be a statewide.agen6y of the type.outlined above, but withregional components-multi-purpose regional agencies-in at least the urban areas of the State. 2. Single Statewide Agene If economy were, the main.criterionl'the best coastal agency would be a single statewide agency., There would.be no regional components. The State agency would do'all'the coastal Planning dnd' regulation called for by the Coastal- Plan; local governments would merely continue their present functions,and-,-ai#hority. Becau's6 the workload.for.such a State coaAal,agency would be great, a commission' of fu.11-time members would probably be required. Without regibnale '6mpon6htsf"it might be difficult for such an agency to fully recognize and deal with the diversity of coastal areas. It would also exclude,local government representation and greatly reduce public membership. Finally, accessibility.of.the piibli6might be limited if there were only one headquarters in the*State. State Coastal Uency with Regional Comi@onents. 'U nder this alternative, a State coastal agency would be-establ,ishedg,btit,it,,,@kould have regional components to provide for'greater publib visibility and acce6s:ibility. IPerhaps the struc- ture established under the Coastal Initiative (Proposition 20) could be continued, 297@- with a State and regional commissions; perhaps there could be a State com- mission, with regional as well as statewide r6presentativesp and with regional offices or divisions but not commissions. 4.. Carrying Out the Plan Entirely by'Local Governments. Under this alter- native, there would be no'State coastal agency. Existing State agencies (such as the Departments of Transportation, Fish and Game, and Parks and Recreation) would be directed to carry out Plan policies within their areas of responsibility, and the bulk of the responsibility would rest with local governments." One way of achieving this would be legislation requiring that eachlocal government have within its General Plan a coastal element consistent with the Coastal Plan. Another would be to require a comprehensive planning and implementation .program to carry out Coastal Plan policies. Such a program might include. capital improvement budgets and specific implementation techniques and ordi- nances, in addition to a land use plano This alternative would provide for public accessibility to the agency and should provide for efficient and economical operation. The principal drawbackv howevery is that this alternative could not provide for a comprehensive view of the coastal zone# In the absence of a State coastal agency to oversee' implemen- tation of the Coastal Plan it seems likely that varying interpretations and applications of coastal policies will occur. The Plan cannot always be specific enough to prevent conflicts. Providing for Plan revision would alsorequire some form of continuing State involvement in coastal planning. Also, could this alternative adequately protect coastal resources of state- wide,importance, weigh and balance local vs. statewide issuest and deal effec- tively with the concerns of single-purpose agencies such as those in the field of transportation. Many of the adopted policies in the Coastal Plan have state- wide 'Coastal implications and may be beyond the.scope of local governments to administer alone. 'Examples include: (a) coastal siting considerations for major energy facilities (power plants, refineries, offshore drilling platformsy LNG facilities, and tanker terminals) that are needed to meet California and national energy demands; (b) protection, enhancement, and restoration of re- sources of statewide importancep such as fishery resources, migratory bird habitats, and remaining wetlands through comprehensive statewide management programs; (c) the preservation of scenic vistas? significant open spaces, coastal dependent agricultural lands, and major coastal recreation areas that transcend local jurisdictional boundaries; (d) ensuring maximum public access to the shoreline; and (e) the development of-major inter-regional ports and coastal transportation facilities. Local implementation of the Coastal Plan could not adequately protect these and similar statewide interests with- out some kind of effective coordinating agency. 5- Plan Implementation PrimarlIX by Local Governments but with a State Coastal-Agency. This alternative would provide that most of the Plan policies would be carried out .by local governments? but that'a-State coastal-agency would be created (a) to continue planning efforts in order to keep the Coastal Plan up to date, (b) to hear appeals from decisions of localc5overnments challenged as being in conflict with the Coastal Plang and to safeguard the statewide interest in coastal resource management. This alternative has several.possible variations within it: there could be a single State coastal agency, or a State agency with regional components. Further, there could be regional components in existence for a short timet -298- perhaps three-years, to review local plans for conformity with the Coastal Plan. This alternative would provide for maximum plan implementation by local governments but for a continued State planning and monitoring role. ORGANIZING A COASTAL AGENCY Under several ofhe alternatives further uestions arise as to the boundaries of a regional coastal agency, the composition of its governing body, means of amending the Plan, etc. These are.discussed below. Rgigional Boundaries. If regional coastal jurisdictions were formed (or continued), how should the coastal regions be established? (The discussion here is a determination of the counties or other areas to be in. a region; the inland boundary of coastal jurisdiction will also be an important issues to, be discussed during hearings this spring. There is no ideal division of the California coast into logical regions. Certainly a strong case can be made for continuing the existing boundaries of the existing six regions: people are familiar with them as regions the Coastal Plan is based on them, and there are perhaps no more problems with this grouping than with any other. One alternative would be fewer regions: perhaps north, central, and,south, with Del Norte County through Marin County as one region San Ftancisco County. through Santa Barbara County as another, and Ventura County through San Diego County as the southern region. Because of the distances and wide diversities in these areas, it is hard to regard them as regions in more than name, how- ever. Other problems would lie in public accessibility to widely scattered offices and very heavy workloads in such large regions. Another possibility would be conforming theregional boundaries to those of existing Councils of Goverment (COGs). This is favored by those who seek to minimize the number of governmental boundaries in metropolitan areas, to minimize confusion to the citizenry, and to increase the likelihood of future regional government. One way of organizing boundaries under this alternative. would result in the following regions: (1) Del Norte, Humboldt, and Mendocino Counties; (2) Sonoma, Maring San Franciscov and San Mateo Counties; (3) Santa Cruz Monterey and San Luis Obispo Counties; (4) Santa Barbara County; (5) Ventura Los Angeles, and Orange Counties; and (6) San Diego County. This would. provide for regional coastal agencies with the same boundaries as ABAG in the San Francisco Bay Area, SCAG in southern California and CPO in San Diego, but not the same boundaries of AMBAG the Monterey Bay area. One argument against changing the boundaries is that it would not lead to that much more governmental coordination (which has been achieved to a large extent with the present boundaries); no set of boundaries will coincide, with those of all governmental bodies affecting the coast such as the Regional Water Quality Control Boards and air pollution control agencies. Composition of Coastal Agency. If a State coastal agency is established, how should its members be chosen? If a small, full-time State coastal agency were to be established, perhaps its members could be elected, either at large or in districts througout the State. This would have the obvious advantage of the highest degree of public -299- accountability for coastal decision-maker@q but the high costs of campaigning are a major disadvantage to this. Moreover, the tradition in California government is for election to-general--purpose offices, such as the Legislature, County Boards of Supervisors, and City Councilsy which deal with a variety of policy matters, and appointment to special Purpose offices., such as agencies established to carry out land use plans or control pollution. If there were to be regional commissions, perhaps these commissionsp which are most accessible and come in contact with the public most ofteng could be directly elected. A State agency or commission could be appointed, avoiding the problem of costly statewide election campaigns.and conforming to traditional State governmental systems@ If the decision-makers are appointedt there could be a full-time board (such as the State Water Resources Control Boardp whose five members are all appointed by the Governor).or a continuation of the present system'of part-time coastal commissioners. The argument in favor of the small full- time board is that its members,have greater expertise and concentr ation in'the areas of their responsibility. Arguments for part-time citizen commissioners are that they.bring greater breadth of experience to their worl,4and that the necessary expertise can be obtained through staff? consultants, and advisory panels. I I If a coastal agency is to be created through appointment, there are two basic choices: (1 all appointments could be made by the Governor or by a limited number of appointing powersq or (2) appointments could be from a variety of source,% as is the case under the Coastal Act (with half of the Regional Commission members now chosen by local government and half from the general public; one-third of the public representatives are appointed by the Governor, one-third by the Senate Rules Committee, and one-third by the Speaker of the Assembly). An argument in favor of a single appointing power is that, in determining the entire makeup of the agency, he cang if he wishesq ensure appointments of minorities and a cross-section of interest groups. The argument for the variety of appointing powers is that more points of view are apt to be re.5resented on the agencyq and there is less opportunity for a single (or a few appointing powers to unduly influence agency decisions. Appeals. Under some of the organizational alternatives abovey decisions could be appealable either from a local decision to a coastal agency or from a regional to a State levl@l within such an agency. The appeals system could be essentially.the same as under the present Coastal Actt or it could be modified. One possibility is that appeals could be made more difficult, perhaps by re- ,quiring fees or bonds for filing appeals. On the other hand, the "no substantial issue" mechanism in the present Coastal Act has worked well to filter out unwarranted appeals. Another possibility is thatp in addition to appeals by any aggrieved persong appeals could be initiated by one or more members of the coastal agency (perhaps an appeal could be filed by any two members) This general approach is in the law governing the State Water Resources Control Board; under that law, a majority of that five-member board may, on its own motion, initiate a review of a decision of a RegionalWater Quality Control Board. Amending the Plan. As indicated above, the Coastal Plan will need amend- ment from time to time. -300- One proposal for Plan amendment is that no change in Plan policies be allowed for 90 days after introduction of the proposed change and until there have been full public hearings on it (except in case of emergency), and no change in Plan maps for 60 days after introduction of the proposed change (againg except in case of emergency). And it may be desirable to require a two-thirds vote of the future coastal agency to amend a Planpolicy, with a majority of the agency's members needed to amend a Plan map. Another possibility is for amendment to be made only by the Legislature, because of the statewide significance of Coastal Plan policies. But legis- lative action is slow and must yield to many other priorities during a legislative year. Just as it would be difficult.to require the Legislature to enact the whole Coastal Plan in grea t detai.19 it would be equally cumber- some to require every amendment of it to be by legislative action. GOVERNMENTAL ORGANIZATION TO CARRY OUT COASTAL RESTORATION Guiding and regulating private development wi-11 be the key to implementation of much of the Coastal Plan. But many actions essential to an effective pro- gram of coastal management cannot be carried out by private developers under public regulation alone. Such programs include: (1) Public acquisition or financial incentives for-resubdivision of existing parcels. (2) Public purchaseand leaseback of agricultural lands in s ome situations. (3) Removing structures to restore access, views, ornatural areas. (4) Redeveloping and rehabilitating declining coastal neighborhoods. (5) Administering experimental,programs for transfer of development rights. (6) Accepting dedication of land and easements and c ollecting and expending in-lieu fees for public access.- (7) Acquiring and reserving lands for future uses. (8) Developing needed public facilities, preserving wildlife refuges, and ac- quiring interests in land necessary to protect,them. (9) Restoring marshes, wildlife sanctuaries, and marine environments. (10) Coordinating programs,of different agencies engaged in activities affecting Coastal Plan implementation. Alternative,organizational structures and assignment ofrespondibi-lities for these activities-are discussed below. 1. Primm7 Reliance*on Exisiing'State Agencies and Local Government6f The large"number%of Federal,@State and local agencies in the coastal zone are capable of taking on most of the-p'o'sitive public actions 'called for in the' Coastal Plan. Primary reliance on these existing agencies would be economical. -301--' But each agency has programs undertaken to fulfill its own responsibilities in accordance with its own perspectives and priorities. There would be no effective means to ensure that each agency pursued the same priorities. In addition, existing State agencies have authority for acquisition only for specifict limited kinds of public use. No State agency exists, for exampleg that engages in redevelopment and rehabilitationt-land assembly and resub- division, purchase-leasing of agricultural lands, and programs such as develop- ment rights transfer. Local redevelopment authorities do have the power to undertake redevelopment, rehabilitation, and restoration activities, but they are unlikely to undertake coastal conservation programs without State financial assistance and a change in financing methods. 2. Additional-Powers-for the Coastal Regulator y Agency. A second alter- native is to give a coastal regulatory agency authority to acquire and manage property, engage in restoration activities, administer a development rights transfer system, accept dedications of property or in-lieu fees for public access, engage in redevelopment and rehabilitation activities, and allocate funds to other agencies for specific projects consistent.with the Coastal Plan. A single coastal agency would thereby:be given overall.policy and financial responsibility for implementation of the Coastal Plan. Such an agency would have extensive power to influence future coastal development and management. With adequate funds or control over their alloca- tion, the agency would be in a key position to determine priorities for public action on the coast, to use its other powers to supplement regulation, and to ensure the most effectiveuse of available funds to implement the Coastal Plan. It could act as an intermediary between private landowners and other public agencies, implementing its own priorities for acquisition but leaving the actual operation and management of public lands and facilities to existing agencies. There would clearly be a close tie between plan-making and implemen- tation, as well as between land use.controls and use of other tools. But there are potential legal and political conflicts ifregulation and acquisition are in the same agency. Could the agency deal as objectively with its own projects as with those of other agencies? Might it abuse its regulatory powers to further its other programs. (for examplet by using its regulatory power to reduce the value of a property before buying it)? Such an agency would have great power, and thus its composition would be of great importance. 3- Creation of a Coastal Restoration and Devel2Rment Agenc To maintain the independent regulatory function of the agency designated to carry out the conservation aspects of the Coastal Plan and still ensure@necessary public actions to implement other parts of the Coastal Plan, another alternative is to create a separate-restoration agency. It could be established as an independent State agency, governed by a separate board of directors appointed by the Governor or the Legislature or both, with adequate powers and funding to carry out a.comprehensive program of coastal restoration and development. It could be given the power t'o issue its'own bonds, financed from both revenue-producing operations (such as leasing) and special earmarked sources of revenue. The agency could be modeled after similar public enterprises created in other statesp such as the New York Urban D 'evelopment Corporation and the New Jersey Hackensack,Meadowlands Commission. -3,02- Disadvantages of this alternative include the possibility of conflict between the conservation/regulatory coastal agency and the restoration/ development agency. On the one hand, conflicts might develop between @he two over projects and priorities: the restoration/development agency might overly favor development since it probably would be partially dependent on revenues from its operations. On the other handl the two agencies might become so close that the regulatory agency would lack objectivity in reviewing the projects of the development agency. Under this alternative, it would appear necessary that the projects of the development agency not be carried out until the regulatory agency had-certified themp after public hearings, as in compliance with the Coastal Plan. 4. A Coastal Grant-in-Aid Fund. An alternative designed'specifically to improve processes for the setting of priorities among public programs and ex- penditures-in the coastal zone is to create a special fund for grants to State agencies and local governments for approved projects. Funds-cQuld be made available as matching grants to local governments and State departments.: These grants would provide the incentive to engage in needed activities, such as marsh restoration, park acquisition, neighborhood rehabilitation, provision of improved transportation facilities@ removal of structures blocking views and access, and possibly even reduction in the number of subdivision lots and programs-of transfer of development rights within a particular jurisdic- tion. This alternative would not necessarily require the creation of any new agencies. 5- 'Project Programming by the Coastal Regulatory Agenc . The coastal regulatory agency could be made responsible for preparing an annual report making recommendations to the Legislature for &cquisitionsl.restoration, and redevelopment projects, perhaps including three-year and five-year plans for future projects. This is essentially the technique of "capital improvements. programming" used in most cities-. Experience with capital improvement programs suggests that this approach will have the same defects: a tendency to ignore recommendationssfor. annual projects; the program becoming only'a compilation of the projects desired by each separate agency involved incoastalactivities; lack of.secure funding for projects requiring long-term of multi-year funding;,.and inability to fund projects and take action at the.time when action.is required (as when a property owner offers property for sale or when a permit request indicates intention to develop). Also this alternative will hot pr .ovide a way't6 carry out projects for which no existing agency has authority, such as assembling, resubdividing, and selling subdivided but unbuilt lots along the,..coast.,.. Despite these pr@qblemsv this alternative could be useful in p;rov-ldng a single document where projects that might-,otherwise.be ignored.6ould be brought to the Legislaturel's attention. 6. A Coastal Conservancy Agenc . The last alternative would involve the creation of a'Co6stal Conservancy Agency,-mo deled.on-the California Tahoe Conservancy Agency. The Tahoe Conservancy.Agency was creiated'to assist in implementation of the Tahoe Regional'Plan, which is under the jurisdiction (oh'the California side) of the California Tahoe Regional Planning Agenc (CTRP 'y A latter -303- is the planning and regulatory agency; the conservancy agency is empowered to accept and hold land acquired by purchase, gift, or exchange and to develop or provide for the development of such land in accordance with the Tahoe Regional Plan. It may acquire any interests in land and set its own land acquisition policy. It is also intended to be the repository for funds from various sources to be made available for acquisitions.' The'agency is to be governed by,a board of five public members appointed by the Governor, only two of whom may be residents of the region. .The agency is not yet functioning' because a governing body has not yet been appointed. The agency is intentionally separate from the California Tahoe Regional Planning Agency, to avoid legal conflicts with the regulatory responsibilities of CTRPA. The actual mechanics of acquisition are to be handled by the State Department of General Services, but the conservancy will make the critical policy decisions---choice of lands to be acquiredg priorities for acquisition, whether to acquire fee or lesser interests, assignment of management responsibili- ties to other agencies, and contracts for use or development allowed by the Tahoe Regional Plan. A similar agency for the coast, however, would need additional powers to engage-in purchase-leasebacks to preserve agricultural and other lands and in acquisition, resubdivisiong andre-sale of existing parcels to reduce future development potential and to improve development patterns. As formulated for the Tahoe area, the conservancy would not have the power to engage in de- velopmentp redevelopment, or restoration projects itself. The major drawback of this alternative is the potential for competition and inconsistency between the conservancy agency's priorities for land acquisi- tion and the coastal regulatory agency's overall planning role. GOVERNMENTAL POWERS NEEDED TO CARRY OUT THE COASTAL PLAN Much of the Coastal Plan will be carried out by the actions of private landowners and developers: they will developt or not develop, coastal properties in accordance with the Coastal Plan. But no plan can be so.specific as to avoid all conflict over interpretation of the Plan; thus some kind of coastal agency is needed to insurethat the Plan is indee -d followed.. To be effectivep however, the coastal regulatory agency will need the powers outlined below. REGULATION OF USE OF LA NDANDWATER The coastal,agency will need authority to regulate development so as to insure that Coastal Plan policies are followed. There are three basic. ways this can be done: 1. Rules and Ordinances Without Permits, Rules and ordinances could define what may or may not be done (similar to the approach of criminal laws). A land- owner or developer may proceed on the basis of these rules without specific project permits;,then anyone who believes that the rules are not being fairly followed may go to court.,to seek to stop the project. This means the Coastal Plan would be enforced only through court action,' and-in many cases only after 40 coastal resources had been radically altered in preparation for a project. -304- 2,. Specific Plans. Under this legally established option, large areas are carefully planned and full hearings are held. Once the plan has been approved by the regulatory agency, development may generally proceed with no further actions except for building permits required by local law. This appears to be a desirable procedure and such specific plans could be based on subregional:plansl.described under Subregional Planning in Part II of the Coastal Plan. But this option is.not suitable for all areas or all projects. 3- Permits for Individual Developments. This is analogous to the permit system under the present Coastal Act, 'hilt of course changes'could be made in the types of projects for which permits are required. This alternative should also provide, as under the Coastal Initiative, for public hearings on proposed projects having a significant effect on coastal resources. This alternative involves the most processing time for the developer, but provides-the greatest assurances for the public that no construction of any sort will actually be begun until the:proposed project has been fully -evaluated for conformance with the Coastal Plan before a permit is issued. SUPPLEMENTARY REGULATORY TECHNIQUES. Other aspects of regulating land use can help implement the Coastal Plan. Five specific techniques that may be particularly useful.-subdivision laws, dedication and in-lieu fee requirements9 density bonuses, requirements for lot consolidation and resubdivision, and transfer of development rights-are discussed below. The first four techniques are in common use by city and county governments in California. The transfer.of development rights is a relatively new'concept.that is in limited use. 1. Revised Subdivision Laws. A1.1 division of land in California I must conform to the requirements of the Subdivision Map Act, which establishes State standards to be applied by city and county governments. The require- ments are mostly procedural. There is no provision for approval by any State agency, except for the current Coastal Commission permit authority over sub- divisions within its jurisdictions. Divisions of land can influence densityv design, environmental impacts, and even the type of land use. Fragmentation of the ownership of land tends to make continued agricultural use infeasible, to increase the potential density of development, and to 'encourage speculation on surrounding land. Subdivision of land contrary to the,..objectives of the Coastal [email protected] in irreversible 'commitments and, eventually, harm to the public interest in the coastal zone* ,At present, the requirements of the Su 'bdivision Map Act donot provide a means for assuring compliance with the Coastal.Plan. Specific policies of. the Coastal'Plan should be.made mandatory in the Subdivision Map Act,,.and applied by local governments in their review of subdivisions,along with the other requirements.of the Actt or a discretionary permit system over land@.. divisions is needed to implement..the Coastal Plan., 2. Dedications and In-Lieu Fees. Several policies of the Coastal Plan call for the dedication of access -ways.and,eas.ements to provide for,,public access to the'ocean. Where dedicatiOn.3-5 not pr6citicall".ah ihr-lieu fee. is. called for so that better-access.c.an,be provided.elsewhere., Local..governments are already empowered. to require such. dedications or, fees in new. subdivisions, -305- and the current Coastal,Commission can impose-such conditions,(but cannot. itself collect fees) on any permit for development. Requirementsfor private developments to provide access are"a reasonable compensation for the increase in demand for open space that they generate and any existing public access they may eliminate. To carry out the Coastal Plan, some agency should have the authority to ensure that every project that adds significantly to the demand.forg or that reduces access to the shore- line, contributes to providing access. The.agency-should also have the authority to use in-lieu fee funds to acquire and improv6.access in suitable locations. 3. Density Bonuses. Where large parcels of land or several lots appro- priate for development are held by a single developer, an inc'rease in density can be offered as an incentive to achieve certain objectives. Density bonuses are frequently used by local governments to encourage innovative design and better use of land. Such special bonuses could also be effective in implementing the Coastal Plan. An increase in density could be allowed for example, where a developer had made special efforts to achieve Coastal Plan objectives-as part of the project, perhaps by including extensive'-public use and access, or by providing low- and moderate;..income housing, or by restoring a degraded wetland area. 4i,'Reauirements for'Lot Consolidation and Resubdivisiono Many Coastal Plan policies address the problems posed by the thousands of existingg sub- divided lots along the coast. Where contiguous lots are in common ownership (that isp if they have been subdivided but not yet sold), consolidation of lots can be required to meet certain standards. This was done throughout California when the present Subdivision Map Act was first enacted in 1937. A recent ordinance in Madera County (upheld in the.California Court of Appeals) effectively consolidated parcels to achieve minimum lot sizes for agriculture. Similar legislation may be needed to carry out many of the policies of the Coastal Plan. If existing subdivided parcels in common ownership were to revert to acreagep the owners would be able to resubdivide or develop in accordance with new requirements that could-assure protection of coastal resourcese A more.difficult problem is presented by individually owned lotsp because each owner has no control over,other lots. It may be legally possible to require lot consolidation even in-this situation ifq for exampl6p little development has occurred and if owners could meet new requirements by buying adjoining lots. But such stringent requirementsl imposed after people have already bought parcels with local government approvalo may well be beyond the reasonableness and equity of regulatory powers. Yet development of these fragmented lots often threatens coastal resources and would harm the public interest. A program of financial incentives for voluntary lot consolidation may be able to achieve coastal policies in some of these cases. In other casest positive public action (such as acquisition and resubdivision) may be required. 5. Transfer of Development Ri ghts. An innovative technique recently developed to preserve historical landmarks and areas of special environmental value is transfer of development rights (TDRs). This involves shifting the right to develop from an area where development is not desired to an area -306- where it is. TDR separates the right to develop from the right of ownership. of the land. The landowner who is not allowed to develop can sell his development rights to a landowner in an area specified for development; the latter can then build at a higher density. Thus it makes possible limita- tion of development in an area without excessive economic losses to individuals. ACQUISITION AND POSITIVE PUBLIC ACTION Many policies of the Coastal Plan call for preservation, restoration, and provision of public services or development. These cannot be achieved by regulation or by private development alone, and will require other govern- mental actions. Some resources should be completely preserved for example, a wildlife sanctuary, an archaeological site, or a spectacular scenic viewpoint. in areas where coastal resources should be set aside for pubiic use, acquisition should- be planned. In other areas, partial acquisition could achieve the objectives of the Plan. Perhaps this could be done through dedication rather than outright purchase, or purchase of easements and development rights rather than of all the land rights in the parcel. As noted above, it may be decided that a single agency should be responsible both for regulation and restoration/development that separate agencies are desirable to carry out these various powers in implementing the Coastal Plan. COSTS OF CARRYING OUT THE COASTAL PLAN AND POSSIBLE SOURCES OF FUNDS COSTS The costs of carrying out the Coastal Plan are of two types: (1) the administrative costs (office rent, travel, agency and staff salaries) of regulating the use of land and water in accordance with the Coastal Plan. and of keeping the Coastal Plan up to date through further studies hearings, etc.; and (2) the acquisition and development costs of Coastal Plan policies calling for preserving wetlands, acquiring new park and recreation areas and scenic areas, etc. These costs may be born at different levels of government depending on which bodies-local governments, existing State agencies, or a successor coastal agency-are designated to carry out portions of the Plan. Unfortunately, precise cost estimates cannot be provided this time. The administrative costs will depend in large measure on the type of agency selected, and if it is a State agency on whether or not it has regional divisions or offices. Similarly the acquisition and development costs will depend on appraised values of coastal properties at the time acquisition is proposed, on levels of inflation,etc. Nonetheless, some guidance may be given, at least as to the administrative costs, by the experience of the Coastal Commissions. Further staff work is underway to try to analyze this experience and apply it to future costs. -307- SOURCES OF FUNDS Some possible sources of funds to carry out the Coastal Plan are out- lined below* 1. Permit Fees. If a regulatory.permit system were to be adopted@a system ofpermit processing fees similar to the one nowin effect could yield from $500,000 to $1-5 million per yearp depending on the size of the permit areas 2. Grants Under the Coastal Zone Management Act of 1972. The Federal Coastal Zone Management Act provides funds to help finance states' coastal management. Because the Federal grants must be matched with.state or local funds, revenue will be needed to provide the matching funds. Permit fees and direct state'appropri.ations made to finance planning and regulatory activities would qualify. It is impossible to predict at this time the amount of funds that the Congress will appropriat 'e for this program in future years (the initial grant to California was $720,000). California could, however, expect to receive.a fair share of any funds made avallable under this programg because California's coastal zone management program should fully meet the Federal requirements. 3- State Tax Revenues. These could be from.th.e State General Fundq or perhaps from special taxes. One alternative is that only users of the coast .or those who benefit directly from coastal resources should pay for coastal protection. Another is that because the coast is an area of importance and benefit to all Californians? they should help pay for its management* The following three types of tax address both these views: a. State Transient Occupancy Tax. This tax is equivalent to a sales tax on hotel and motel room rentals. It is presently levied by almost all counties and cities in the State; there is no State tax. The typical local ,rate is five per cent-the maximum rate permitted under State law, except for chartered cities and counties. The rationale for increasing the rate-.of this tax to finance coastal activities is found in the strong attraction of the coastal zone and its natural and manmade resources to tourists and State residents travelling within the State. The tax is one means by which the benefits of carrying out the Coastal Plan could be financed in part by those who visit and make use of the coast, including out-of-State visitors and inland residents. b. State or Coastal Property Transfer Tax. The property transfer tax is currently used exclusively by counties and cities underuniform State legis- lation. The allowed rate is 550 per $500 of equity transferredg or 11/100 of 1 per centp a very low rate. Statewide, this tax generated $27 million in 1972-73 from a revenue base of $25 billion in values of property trans- ferred. An.additional 100 per $500 (for a total rate of 650 per $5.00)? or indeed even a more-substantial increasep would have no real effect on real estate transactions and would not reduce existing local receipts. A state- wide rate of 100 per $500 would generate $5 million in StAterevenues. It,is possible to levy such a tax only within the coastal area. Within a 11000-yard coastal area, such a tax would raise about S2OOpOO0 per year at a rate of -100 per $500; an increase of 50o per $500 would raise $1 million. Howevert the proper taxing area would be difficult to identify, enforcement would be costly, and there could be some unexpected effects on the real estate Markett such as increased use of leases, rather than sales to market property. -308- c. 011 Ex 3 -port-ImDort Tax., An excise tax on petroleum exports and imports has been suggested by Controller Ken Cory,'to finance research and development on oil spill cleanup and for coastal land acquisition. It is.estimated that such a tax might produce $6 million a year. 4. State Bond 'Issue. Another funding source besides feesq taxes, and .grants is State bonds. The most recent State bond issue for park acquisition was the $250 million approved by the voters in June.19749 and another bond issue specifically for acquisition of additional coastal properties is a possibility. 5. Tideland Oil Revenues. Tideland oil revenues are derived directly from depletion of resources in coastal waters and submerged lands9 and should be considered to fund protection of other coastal resources. Given the most liberal estimates of other demands on those revenues and assuming a renegotiation of existing leasesq at least $50 million annually should be available-for - coastal activities and it is probable that over $100 million would be avai-labley if the Legislature assigned highest priority to coastal conservation. CONCLUSION @overnmentj powers, and funding. These are the keys to successfully carrying out the Coastal Plan, in whole or in part. But the choices are not easy. The foregoing is intended to provide material for.informed discussion towards,the evolution of a workable management system for recommendation to the Governor and the Legislature in.the final Coastal-Plan. SUMMARY OF KEYISSUES IN CARRYING OUT THE COASTAL PLAN To assist the public in evaluating the several options@for carrying,out the Coastal Plan, the key issues in determining the most effective arrangements are set forth below, with cross-references to the pages that cover each issue. @A. Level of Government. What level(s) of government should"be responsible for carrying out the Coastal Plan? (1) State government'entir'ely, with minimal participation'by local governments. (Alternatives 1, 2, and 3, on pages 297-98-) (2) .,Local governments entirely, with no State coastal agency.- (Alternative 4, page 298.) (3) Primarily local governments, but with a State coastal agency to coordi nate continued coastal planning and to ensure, through an appeals procedure, that local decisions'are in fact in conformity with'the Coastal-Plan.' (Alterna- tive 5, pages 298-99.) B. Kind.of State Agency. If a State agency is to be involved, what kind of State coastal agency should be established to carry out the Coastal Plan? (1) A coastal-agency that would be part of an as-yet-not-established statewide. environmental and land use agency. (Alternative 1, page@297.) -309- (2) A single State coastal agency, with no regional commissions but possibly with regional offices for public accessibility. (Alternative 2, page 297.) (3) A State coastal commission and regional coastal commissions (essentially the present arrangement, though perhaps with some change in regional boundaries). (Alternative 3, pages 297-98.) C. Com@osition of State Uency. How should a State coastal agency be constituted? (See pages 299-300.) (1) With part-time members, as at present,half chosen by or fro.m local govern- ment and half appointed to represent the public. (2) A small, full-time appointed board (5 to 9 members) similar to the State Water Resources Control Board. (3) A small, full-time board with members directly elected by the people of California. D. Delegation to Local Government. If a State coastal agency is estab- lished, how should it delegate responsibilities to local government? (1) Local plans would be required to conform to the Coastal Plan; local govern- ments would make all coastal decisions. The State agency would be empowered only to bring suit if it thought a local decision was contrary to the Coastal Plan.. Resolution of conflicts would be done by the courts, not an administra- tive coastal agency. (2) The State coastal agency (with or without regional components) would approve local plan's as being in conformity with the Coastal Plan; local governments would issue permits pursuant to such approved local plans. Appeals could be made to the coastal agency from local actions either approving or deny- ing projects on the basis of conformity (or lack of conformity) to the Coastal Plan. (3) Same as (2), but in addition, the State coastal agency (with or without regional components) would have direct permit jurisdiction over a zone con- sisting of critical coastal resources, such as coastal waters, beachest and wetlands, and over certain important development decisions, such as roads or major sewer systems. E. Regional Boundaries. If there are regional commissions (or regional offices of a State coastal agency), what should the regional boundaries be? (See page'299.) (1) Same as at present. (2) Same as,regional Councils of Governments (i.e., ABAG, AMBAG, SCAG). (3) Maintain boundaries as at present, but empower State coastal agency to change them on the basis of future study. F. Land Salez&sale AuthorjU. Should a new State agency be created to assemble, resubdivide, and resell coastal lands to help achieve objectives of the Coastal Plan? (See pages,301-04.) -310- (1) No, this should be left to the redevelopment,capability of locdl'govern*- ments and existing State agencies. (2) Yes, but this should be done in urban areas only if local urbanrenewal agencies fail to carry out Coastal Plan objectives; it is, however, needed immediately to protect rural areas from cumulative, sprawling development .inconsistent with the Coastal Plan. G. Revenue from Petroleum Production. Should revenues from offshore petro- leum production be used to help carry out the Coastal Plan and to purchase coastal properties for recreation and preservation? (See page 309-) (1) No, because this will give the future coastal-agency too much-incentive to approve unwise projects solely to receive revenues from them.-- (2) Yes, because this will be revenue only from projects that will win approval on their merits, as specified in.the Coastal Plan, and it is entirely fitting that funds from coastal-resource extraction help finance coastal resource protection. many aspects of the Coastal Plan should be carried-out along the lines of one of the alternatives outlined in the preceding-section. Other aspects of the Plan should be carried out through privateinvestment in various developments that meet the Plan's policies. Still other aspects of the Plan will require new legislation and new programs by existing governmental agencies. The following pages list the Plan's proposals for new laws and for new actions by existing agencies. Where a review of present law clearly indicates the appropriate agencylIt is shown. *But many of-the new programs. require further study before the best solution will be clear. I. i @ 1. I' All of the propos*als in this sectionneed.not be.carried out immediately, nor will all be financially-feasible immediately.., IhIt many are.of-great import-@ ance (these will be emphasized in the final Coastal Plan), and all deserve careful consideration if.t.he full mandate of:the Coastal Act is-to be u1timately-achioved. All of the recommendations listed here have been adopted by the State Com- mission as part of the various Plan elements considered to date.I.They are.:,combined for clarity into: (1) recommendations for new legislation, and (2) recommendations to other agencies.. Within these sectionsg,they,are.grouped-by.chapters corres- ponding with Part II,, 4ndings and Poliolesi. -311- RECOMMENDATIONS FOR NEW LEGISLATION MARINE ENVIRONMENT 01 Require that bonds.be posted for activities potentially hazardous to water resources and wildlife; applicants for State offshore dri-Iling must show evidence of secured financial responsibility in the amount of $20 million for each indivi- dual lease. All drilling applicants and owners and operators of tankers operating in California waters must register with the Secretary of State for service of process. (See Policies 10 and.11.) Establish liability of up to $20 million for owners and operators of oil production, processing, or transportation equi ment and up to $100.million for owners.and operators-of terminals. (Policy ll@ Establish an Oil Spill Liability Fund by imposing a_tax of two cents on each barrel of petroleum produced on.State lands or entering California, adminis- tered by the Resources Secretary, to provide all clean-up costs and to compensate all damages caused by oil discharges in coastal waters. (policy ll) Urge the Federal government to create a similar oil spi-11 liability fund at the national level,*precluding the need for a State Fund. (Policy 12) * Develop programs for fisheries control with adjacent states; participate in appropriate organiz.ations; support international fisheries control, (Policy 2) *.Designate and-enable an appropriate State agency to phase out or upgrade marine structures that adversely affect water circulation. (Policy 18) Designate a State agency to undertake a comprehensive fisheries management and.ocean'water quality resear@h'and regulatory programs, including: (1) regula- tion of commercial and sports fisheries to assure sustained yields over time; (2) expanded research and development of baseline studies; (3) evaluation of all hazardous discharges and. activities affecting the marine environment; (4) develop- c ment and enfor ement of regulations to prohibit or control highly toxic substances, (5) habitat restoration and kelp propagation programs; (6) development of hatcheries and stocking programs- and (7) research and monitoring of fish populations. (Policies 5, and 10@1 Consider programs to assure adequate berthing and support facilities for .commercial fishing boats, (Policy 4) * Require vess el fueling and deballasting equipment and practices that elimi- nate routine leaks and spills of oil and fuel. (Policy 10) Prohibit the manufacture or sale of harmful types of boat paints. (Policy 10) COASTAL LAND ENVIRONMENT Require all local governments to provide for water conservation in their planning and building code programs and to establish impervious surface limita- tions, flood plain zoning, and other development standards designed to protect groundwater recharge and surface drainage areas. (Policies 24 and 25) 0 t -312- . f Prevent unwarranted conversion of agricultural lands to urban development through r6gulation, development easement or purchase-leaseback techniques, en- forcement of Article 28 of the California Constitution, State subdivision regulationsq and other laws regulating the use of land. (Policies 30-33 and 36) Consider amendments to the tax code to support land use controls preventing unwarranted conversion of agricultural lands (e.g., a land gains tax, inheritance tax changes, possible changes inthe Williamson Act) (Policy 36) Consider other measures to encourage agricultural land uses, including farm loans or subsidies, multiple use of farmlands, research in new crop strains, pest control management, agricultural pollution controls, the use of reclaimed water, and soil conservation practices. (Policy 36) Amend the tax laws to encourage a sustained-yield basis for timber production in California. (Policy 39) Incorporate protection of high-quality-commercial timberlands in forestry and subdivision laws. (Policy 37) * Designate I, preserve, And restore rare or endangered plants and natural communities (patterned after legislation protecting endangered species). (Policy 26) Designate an agency with regional jurisdiction to manage the coastal stream system on a comprehensive, watershed basis. (Policy 19) * Enable and fund the Department of Fish and Game to systematically survey anadromous fish streams for various data. (Policy 22) MANMADE RESOURCES Authorize cities and counties to contract with owners to preserve historic buildings and features in return for reduced property tax assessments. (Policy 46) Formulate criteria for determining significant archeological and paleontolo- gical resources and develop a program for the protection and, where appropriate, professional excavation and study of the resources. (Policy 46) APPEARANCE AND DESIGN Provide funds to local communities to develop and implement Design Elements for general plans. (Policy 49) Consider legislation to prohibit the sale of non-returnable glass bottles aluminum and pop-top cans, and non-biodegradable plastic.packaging. (Policy 52@ PUBLIC ACCESS TO THE COAST Provide funds for t.he.acqu'isitlon of urban waterfront lots, presently sub- divided small coastline lots in 'scdtter6d'ownership, and other designated acquisi- tion areas. (Policy 65) -313- Preserve and maintain the public's rightg. acquired through historic use and custom, to use dry sand and rocky coastal beaches,to the first line of terrestrial vegetation and those bluffs and headlands customarily used by the public. (Policy 62) * Provide that, in judicial proceedings9 showing.that an area is a coastal beach establishes a presumption that the public has traditionally used the area for recreational purposes. (Policy 62) * Amend the Subdivision Map Act to provide for State review and approval of local determinations that public access is available within a reasonable distance from the subdivision. (Policy 63) Extend the statute of limitations on government acceptance of coastal access dedications to ten years, (Policy 63) Require that governmental agencies issuing permits for coastal development require dedication of public access or payments of in-lieu fees equivalent to the cost of acquiring access. (Policy 63) Authorize a State agency to receive and manage public accessways9 to require payment of in-lieu fees, and to exercise the power of eminent-domain and expend fees in purchasing public acc'essways. (Policy 63) * Continue efforts of the Attorney General's office to actively enforce the public's rights to coastal access. (Policy 63) * Enact measures to preserve existing low- and moderate-income housing in the coastal zone and to provide new housing and tourist facilities for low- and moderate-income persons. (Policies 71 and 72) Strictly regulate the conversion of rental housing to condominiums. (Policy 72) RECREATION * Establish a coastal reserve system, including marine, land, and manmade resources especially,valuable for educational and scientific use, and establish a Coastal Reserve Board to coordinate and advise regarding areas to be included and appropriate management. (Policies 88-90) * Designate a State agency to inventory natural habitat areas and establish the acreage needed so,that additional reserve areas can be identified for acquisi- tion. (Policy 88) � Increase funds for acquisition of recreational lands and their development and management for public recreation. (Policies 75 and 95) � Provide funds to establish and maintain a coastal trails system and author- ize the State Department of Parks and Recreation to use the power of eminent domain for acquisition of trails where necessary. (Policy 91) � Provide State financial support, where appropriate, to local governments for maintenance of beaches used heavily by non-residents. (Policy 96) 01 -314- Authorize a State agency, to regulate and assist in: (1) developing dry storage and stacking devices for pleasure.craft; (2) increasing the number of public launch facilities; (3) expanding berthing in existing harbors; (4) designa- ting sites for new harbors; (5) encouraging multiple ownership of boats; and (6) developing incentives for marinas to give priority to rental craft. (Policy 93) Authorize the Department of Parks and Recreation to establish a centralized statewide reservation system for overnight recreational facilities. (Policy 79) TRANSPORTATION * Mandate that the Circulation Elements of local general plans include a section on bike paths and bike lanes, (Policy 97) Require that local, regional, and State transportation plans include con- sideration of recreational travel, emergency travel, and energy"conserving and non-air-polluting transportation-modes. (Policy 97) Provide increased funding for mass transit, with funding priority for feasibility studies for alternative transportation systems, seed money for new transit services, ongoing operating subsidies, and demonstration projects. (Policy 107) Encourage Amtrak and rail- companies operating in the coastal zone to expand rail service. (Policy 110) ENERGY Authorize the State Energy Commission to review all development proposals related to oil and gas productiong processing,, and transmission facilities as well as power plants. (Policy 131) Adopt measures encouraging the elimination of energy inefficiencies in existing buildings, automobiles, appliances, and public lighting systems (e.g., special loans,- tax incentives, etc., where appropriate).- (Policies 123 and 127) Provide tax incentives to promote installation of low- or non-fossi-1 fuel energy systems. (Policy 128) Require tha 't.local.governments adopt.11sun rights" ordinances to ensure that building own6rs.have.access to sun radiation.', Policy. 129)- Enable and fund State agencies to research and develop alternative sources of energy., (Policy 130) Seek agreement from the U.S. Department of Interior.:that Federal,OCS devel-. opment will be consistent with the standards and practices of State agencies and the policies of the Coastal Plan. (Policy 145) Petition the U*S. Coast Guard to require and enforce specified tanker design and performance %capabilityt 0-mihimi,ze@ oil: spi-11. risks and,to.apply strict marine tr&ffic,and-,ve'ssel control.1l.duringl',loaded LNG1,carrier.ope'ration in terminal.areas. (Policies 157 and 159) -315@: Authorize.the Division of Oil and Gas to regulate petroleum production and completion practices in order to increase efficiency and to require submittal of original exploratory and-production data from surveys or drilling of wells within 60 days after finishing. (Policies 143 and 2") 01 DEVELOPMENT Require that local governments adopt, and enforce those chapters of the Uniform Building Code pertaining to geological hazards and grading. (Policy 171) * Enable'and fund local agencies to conduct geologic evaluations and to res- trict or require adequate engineering specifications to assure site stability and structural safety in hazard areas. (Policy 171) * Assign 'empower, and fund a State agency to designate geolog ic risk areas, recommend and impose appropriate land use and building regulations.related to the designations, to establish criteria for local government review of construction in hazard areas, and to review and approve local plans and building code standards and enforcement for consistency with the designations and goals it develops. (Policy 171) 1 * Authorize this agency to enforce standards and site review for pro'osed State projects and for advisory review of Federal projects. (Policy 17Z * Require that geologic hazards information be included as part of the chain of title to property and be incorporated in the title report and the report for subdivisions filed with the Real Estate Commissioner. (Policy 173) * Provide that there is no,presumption of public liability for property loss (disaster loans or forms of insurance borne by the general public) due to construe- tion in geologically unstable locations and that occuparts and future purchasers of such construction be advised of the hazard. (Policy 17@) Require that local governments within the 100-year tsu nami run-up zore include within their Safety Elements a disaster preparedness plan. (Policy 176). RESTORATION OF COASTAL RESOURCES Provide funds to local governments for restoration planning and improvement program,s and for the redevelopment of b.lighted urban areas when rehabilitation efforts are not adequate to relieve blighted conditions. (Policy 182) Require posting of financial security to assure the completion of resource restoration or protection activities necessary to offset unavoidable resource degradation. (Policy 180) SUBREGIONAL PLANNING *. Provide State grants, similar to the Federal 701 planning program, to assist local governments in their preparation of subregional plans and plans pursuant to the subregional plans. (Policy 183) -316- RECOMMENDATIONS TO OTHER AGENCIES MARINE ENVIRONMENT The State Water Resources Control Board, the Regional Water Quality Control Boards, and other appropriate State and local agencies should rev--;se water quality standards, including: (1) upgrading of municipal and industrial waste discharges ' to meet the standards of the 1972 amendments to the Federal Water Pollution Control Act; (2) phasing out of discharges to enclosed waters except where they enhance water quality; (3) restricting the extension of sewer service in systems with substandard treatment facilities; (4) pretreating toxic and hard-to-treat indus- trial wastes that cannot be effectively or economically handled at-municipal treatment plants; (5) monitoring thermal discharges and requiring mitigation or alternative systems where adverse impacts are found; (6) developing and enforcing a runoff, erosion, and silt control ordinance; (7) controlling runoff continaing substantial amounts of contaminants through pretreatment or containment; (8) re- searching the effects of thermal discharges, entrainment,.oil spills, and heavy metals.on the marine environment; and (9) developing methods of tagging or finger- printing oi-I and of preventing, containing, and cleaning up oil spills. (Policies 59 61 91 10, and 13). The Environmental Protection Agency and the UOS. Coast Guard should vigor- ously enforce standards on vessel discharges. (Policy 8) COASTAL LAND ENVIRONMENT The Departmentlof Water Resources, the Water Resources Control Board, the Department of Fish and Gamet and appropriate Federal agencies should-preipare a comprehensive watershed plan for the coastal zone, including: (1) measures for the protection of anadromous fish habitats such as systematic stream surveys, water ity regulations, habitat restoration, and expanded enforcement activity; and (2 research on the effect of coastal mining and the movement of sand along coastal stream on the marine environment. (Policy 19) The Department of Water Resources, the Department of Navigation and Ocean Developmentq the Division of Mines and Geology, State-Lands Commission, the.De- partment of Parks and-Recreation, etc.., should participate in sand supply and movement research and-restoration programs. .(Policy 23) The Department of Water Resources should expand its programs of gathering and disseminating information on water supply and researching and implementing water conservation and reclamation measures, giving emphasis to-the benefits Of water reclamation and assisting local programs. '@Policy 24) Local agencies and utilities should develop water management plans based on thorough"evaluations of hydrologic,conditions and on regional basin plans;'develop- ment decisions should be related,to.an inventory'of water supplies, wastewater management, and water conservation measures. (Policies,24 and 25) The State Division of Forestry should@strictly-regul ate timber harvesting in key watershed areas and along stream banks,-including.the establishment of buffer zones with the assistance of other agencies, and should undertake programs, to rehabilitate forest areas as part of the watershed plans for the coastal zone. (Policies 37 and 38) -317- The Division of Mines and Geology should: (1) adopt and enforce uniform statewide regulations to provide a minimum level of control of noise, dust, surface water pollutiont waste materials and dredge spoils disposal, and reclamation for extractive sites; and (2) inventory the location, quantity, and quality of resource deposits in the State to reduce the pressure to mine sand and gravel and other non-petroleum mineral resources in fragile coastal areas and to identify suitable mining sites. (Policies 41 and 42) The Air Resources Board and those agencies now preparing Air Quality Main- tenance Plans should design and implement programs to improve air quality and pollution control technology. (Policy 44) MANMADE RESOURCES Communities and neighborhoods identified as special coastal resources should not allow developments that are out of scale,-size, or social character within their jurisdictions and should involve local residents in determining the parti- cular values of their areas and how new development can accommodate them. (Policy 45) The State Historic Preservation Officer should complete a comprehensive survey and develop plans for the protection of historic and pre-historic resources of the coastal zone. (Policy 46) APPEARANCE AND DESIGN Coastal cities and counties should: (1) develop and incorporate Design Elements in their general plans; (2) formulate definitive design criteria for improving the appearance along the shoreline; (3) undertake visual inventories as needed; and (4) establish Design Review Boards. (Policies 49 and 50) The Department of Parks and Recreation, the Department of Transportation, local agenciesp and other appropriate agencies should give high priority to main- taining road turn-outs, recreation areas, and other such coastal areas free of litter. (Policy 52) The Public Utilities Commission should develop a program of undergrounding existing and new distribution and transmission facilities in the coastal zone, with priority for undergrounding of existing facilities in highly scenic areas. (Policy 59) PUBLIC ACCESS TO THE COAST The Department of Parks and Recreation, the Department of Fish and Game, the Department of Transportation, and other State agencies and local agencies authorized to acquire recreational and open space lands in the coastal zone should work toward the long-term goal (possibly 50 years or more) of acquiring a strip of land paralleling the coast,which has statewide and regional significance. Techniques such as design controllincentive zoning, purchase and leaseback, ex- change of development rights, scenic easements, dedicationsg etc., should all be utilized as appropriate. (Policies 64 and 66) -318- The, Federal government should increase public access to the coastal areas of Federal military installation to the maximum-degree consistent with military security and.safety requirements and environmental protection and should.make surplus lands available for public purposes. (Policy 69) RECREATION The Department of Parks and Recreation, local park and recreation depart- ments, and private organizations concerned with such matters should develop a long-range program to manage coastal recreational resources, including: (1) giving preference to'uses requiring few physical facilities or environmental modifications; (2) providing for transit, shuttles? or'paths from upiand.parking to shoreline recreational facilities (local agencies and transit districts should assist in this effort); (3) iving preference to coastal- and water-dependent uses,in the shoreline area.; M reserving and developing upland support areas for public and commercial recreational 'facilities that would otherwise require shoreline areas; and (5) continuing research on the concept of recreational carrying capacity and other aspects of recreation planning. (Policies 14-@87) In addition, the Department of Parks and'Recreation should coordinate the development of a coastal trails system, including connecting.a statewide system with paths, linear parks, and locally owned traila.nd park systems. (Policy 91) The State Department of Education, the Department of Parks and Recreation, and local school and park districts should expand information and interpretive programs. to encourage proper use of.coastal resources and expand school and public education programs on the coastal environment. (Policy 87) The Department of,Parks and Recreation, the Department of Fish and Game, and other State agencies authorized to acquire lands in the coastal zone should recom- ment additional ecologically significant areas for acquisition. (Policy 90) TRANSPORTATION The Department of Transportation should: (1) develop a scenic route System on coastal roads, including construction of improvements for scenic viewing, pi .c- nicking, pedestrian and biTle traffic, and off-road parking, preferably on the inland side of the road; (2 restrict parking on the seaward shoulder of such routes; (3) improve inland travel routes that might relieve traffic on coastal roads; .(4) allocate a substantial portion of, the capacity of Highway 1 to recrea- tional use;,(10 plan for the special tr anspor.tation.needs.of,the.handic.apped and of recreational users such as surfers and bicyclists; (6),study the 'feasibility of a recreational and commuter ferry system; (7) give preference to public transit over new or expanded roads and parking lots for automobiles; (8).base decisions about capacity increases on the sensitivity of,resources to-increased access and on;.coastal 1.and use .. -policibs;'(9) minimize environmental impact;of.road construction; and (10) consider'emergency and weekend transportation needs. (Policies 97-111 and 120) Port and harbor agencies should prepare or update-Port Master.Plans.that coordinate vessel traffic, maximize use and efficiency of existing faciliti6s,'ahd provide for any necessary improvements with the least environmental damage, (Policies 117 and,119) -319- Local governments, local and regional transportation planning agencies, and transit districts should: (1) coordinate transit to and from the. coast; (2) adopt measures to encourage the growth of mass transit within coastal communities; and 01 (3) promote development of multi-use recreational centers and land use patterns that can be served by transit. (Policies 108-11-1) ENERGY The State Energy Resources Conservation and Development Commission should: (1) consider energy conservation standards for lighting, heating, and cooling, and natural gas use;'(2) establish an energy budget code for individual bui-ldings; (3) devise'programs to encourage energy conservation in existing buildings, design of automobiles and appliances, and public (1.e. outdoor) lighting systems; and (4) encourage the development and application of alternative energy sources including solar, wi,ndp geothermal, solid and liquid wastes, and methanol. (Policies 122-130) The State Public Utilities Commission should revise uti-lity rate structures to discourage inefficient and wasteful uses of energy. (Policy 121) The State Lands Commission should: (1) require preparation of 1-1 5-1 and 10- year plans for all related offshore and onshore development prior to approval of drilling; (2) submit specifically requested lease provisions relating to environ- mental impacts to the coastal agency before lease bidding; (3) consider the possi- bility of public access and multiple use of any proposed new drilling and pro- duction islands; and (4) require unitization of facilities wherever possible. (Policies 137-144) The Division of Oil and Gas (Department of Conservation) should: (L) assist in the development of alternative energy sources, particularly geothermal energyi and (2) receive and make public within one year of submittal all exploratory and production data from surveys or drilling of wells in California. (Policies 130 and 144) The Geothermal Resources Board, the Solid Waste Management Control Board, and the State Water Resources Control Board should take action to expedite the development of geothermal, solid, and liquid wastes as alternative energy sourcese (Policy l3O) DEVELOPMENT Local uti-lity, transportation, and assessment districts should coordinate their plans for major sewer, water, and road systems in the-coastal zone with.the coastal agency. (Policy 169) The State Division of Mines and Geology (Department of Conservation) should advise the coastal agency on review of development projects in geologically hazard- ous areas. It should have a review team available for this purpose with expertise in various fields. (Policy 174) RESTORATION OF COASTAL RESOURCES Local agencies in areas that have been degraded should develop and implement long-range restoration programs. (Policy 182) -320- SUBIREGIONAL PLANNING Local governments, regional agencies, State a ,gencies, and citizens groups in areas where the cumulative impact of development over time has the potential for adversely affecting coastal resources or coastal access should prepare subregional plans and refine and apply these with enforceable plans and programs. (Policy 183) -321- Part IV: Resource and Plan Maps @hs The maps that-follow show the distribution of coastal resources as described in the Plan policies for the entire coastal zone and illustrate how the Plan policies could be applied to specific coastal areas, pointing out problems that need to be addressed and, in some cases, indicating possible solutions. These maps were prepared by the Regional staffs under the supervision of the Regional Commissions, but it is important to note that they have not been formally approved by any of the Commissions. During the coming months these maps will be reviewed in public hearings and may be revised. In the fall# revised Plan Maps-will be approved by the State Commission for inclusion in the final Plan-to be recommended to the Governor and the Legislature. The purpose of these maps is to illustrate the application of some of the Plan policies. They are preliminary proposals only pending further review. it is expected that each Regional Commission will have supplemental maps showing at a larger scale and in more detail the distribution of coastal resources identified by Plan policies and the application of Plan policies to more geographically specific areas than can only be shown on maps of the Scale in this report. Following is a summary description of the content of each map as -well as the available sources of information used in preparing them. Coastal. Resources Map The purpose of this map is to identify the general location and distribution, of key coastal resources described in the statewide findings and policies. The coastal resources have been grouped into five major categories: (1) Productive'Resource areas, including agricultural lands, range lands,.timber landst and mineral areas; (2) Sensitive Biological Areas, including marine, wetland and estuary, and land habitat conditions; (3) Major Recreation Areas, including public and semi-public parkland, marinas, and special water areas. of value for recreation; (4) Developed,Areas, and (5) Areas of Potential Hazard to Public Safety. Additionally, a Coastal Zone Boundary as proposed -but not formally adopted-by the Regional Commissions is illustrated and significant public and semi-public ownerships are shown. Because of the limitations imposed by the scale of this map, mutually exclusive resource areas cannot be entirely shown. Resource a@reas-shown,on the map, represent the landscape type judged predominant by the Regional planning staff. Certain key resources that are geographically less dominant than others are shown, where possible, by special notation to indicate their general location. Shown at the left side of each map are lists of critical environmental features too small to map at this scale, along with other special qualifications pertaining to each map.'. Descriptions of each of the mapped categories follows below. -325- PRODUCTIVE RESOURCE AREAS AGRICULTURE 01 Four categories of agriculturalland have been aggregated under this heading: 1. Prime agricultural land as defined by Government Code Section 51201(c). (Williamson Act; see definition, page @9). 2. Areas capable of supporting coastal-dependent crops and currently in crop production (agricultural lands of any soil class capable of supporting crops that cannot grow in inland areas away from coastal climatic influence'). 3. Areas supporting coastal-related crops (non-prime agricultural lands of any soil class other than I and II currently supporting crops that may grow elsewhere but grow better in areas influenced by the coastal climate). 4. Other land managed for intensive agricultural use, including crops or floriculture, but not rangeland grazing. Available Sources: Office of Planning and Research maps of prime agricultural land at scales of 1:62,500 and 1:250,000; various Soil Conservation Service County maps and reports; communications with county offices of the Agricultural Ex- tension Service and the Agricultural Commissioner's Office; U.S. Soil Conservation Service district offices; coastal climate maps prepared by Marston Kimball, Extension Bioclimatologist, Agricultural Extension Service, Davis, California, 1964; local, State, and Federal land use inventories, including Department of Water Resources inventories at 1:24,000 scale and the California Region Comprehensive Framework Study, 1972. GRAZING Land currently being used for grazing livestock that does not fall into the above classification of "prime agricultural land" or "other land managed for intensive agricultural use.,, Available Sources: Land use inventories as mentioned above; personal communication with local Farm Advisors; Prime Rangeland Soils maps (1:125,000) of the coastal counties by Darwin Briggs, Planning Staff Leader, Soil Conservation Serviceq Davis, California, 1974 COM M ERCIAL TI M BER LAN D All land currently:being managed for commercial timber purposes (usually classified as Site I, II, or III). Available Sources: State Division of Forestryq U.S. Forest Service Regional Forester, and local timber operations. -326- OTHER TIMBER LAND All remaining timber land not being managed for commercial timber purposes or grazing. Available Sources: Same as for Commercial Timber Land. MINERAL RESOURCE AREA Two categories of mineral resources are aggregated under this heading.- 1. Major extraction sites for sand and gravel and other non-petroleum mineral resources in current operation and historic sites which have not been restored or converted to another use, and 2. Extraction sites for petroleum resources, including oil and natural gas, but not the spatial extent of un-mined petroleum fields. Available Sources: Local studies by Division of Mines and Geology; Local land use surveys; statewide mapping (1:1,000,000) by Division of Mines and Geology; studies by BLM, State Lands Commission, and Division of Oil and Gas; local land use inventories; California Region Comprehensive Framework Study. SENSITIVE BIOLOGICAL AREAS SPECIAL MARINE HABITAT To the extent that they are mappable, all offshore water areas.and.rocky intertidal areas of marine habitat value, such,as: kelp beds; existing-Marine Life Refuges; designated Areas of Special Biological Significance; ocean water identified by California Natural-Areas Coordinating Council; coastal watersof educational and scientific value as identified in the Comprehensive Ocean Area Plan, Appendix IX; marine mammal and sea bird breeding sites in coastal waters; proposed marine preservation areas as identified in the California Coastline Preservation and Recreation Plan; and other areas of acknowledged marine,habitat value. Coastal sport and commercial fisheries are not shown because of their exceedingly large range. Available Sources: Special studies by: Department of Fish and Game,-Department of Parks and Recreation,-Department of WaterResources,-and.State Water Resources Control Board..,,Key publicationsinclude: Comprehensive Ocean Area Plan, Appendices III and IX, Department of Parks and Recreation's California Coastline Preservation and Recreation Plan, and SWRCB Resolution,74-@8. -327- COASTAL WETLAN D OR ESTUARY To the extent that they are mappable, areas shown as wetlands include salt and freshwater marshes, mudflats and their immediately adjoining upland habitat zone, and also coastal lowlands "covered periodically or permanently with water" that are of critical value to.either fish or wildlife or - both. Included in estuaries are sheltered waters of estuaries, lagoons, sloughs, and mouths of streams and rivers (COAP Appendix III, page 44, and Marine Environment Policy Avai I able. Sources: Wetland studies by Department of Fish and Game; Acquisition Priorities for the Coastal Wetland of California; California Coastline Preserva- tion and Recreation Plan; and COAP Appendices III and DC., SPECIAL COASTAL LAND HABITAT To the extent that they are mappable, areas shown as coastal land habitat in- all land areas supporting coastal-dependent or related plant and/or animal life and all other land areas falling in the coastal zone that are of acknow- ledged habitat value. Criteria for habitat value include: @11(a) restricted natural communities-ecol6gical areas which are scarce, involving only limited area; (b') rare and endangered wildlife species habitat; (c) rare and endangered plant species range; (d) specialized wildlife habitat; (e) outstanding repre- sentative natural communities; (f) sites with outstanding aesthetic or educa- tional value; (g) wilderness or primitive areas" (adopted Coastal Land Policy Specialized wildlife habitat include, but are not limited to; along all in- termittent and perennial rivers, streams, lakes ... "-Coastal Land Policy Anadromous fish (salmon, steelhead, etc.) spawning streams and rivers are mapped to the extent that the primary channel can be shown. Available Sources: California Coastline Preservation and Recreation Plan; California Natural Areas Coordinating Council; California Native Plant Society; Protected Waterways Program; COAP Appendices III and IX; and Department of Fish and Game. MAJOR RECREATION AREAS MAJOR PUBLIC This category refers to parkland and significant,open space lands held in public ownership. Included are local, State, and Federal parks. MAJOR PRIVATE This category includes parkland held in private ownership that may or may not be accessible to the general public. Golf courses and major privately owned campground areas would be represented by this classification. Tourist commercial districts are not included. lie I MARINA All marinas accommodating more than 200 boats are identified by a symbol.for this category. AREA SUPPORTING WAT ER-DEPENDENTRECREATION This,category refers to surfing, skin diving and SCUBA areas recognized as pro- viding outstanding conditions for these activities. Available Sources: Local, State and Federal land-use inventories; State Department of Parks and Recreation; U.S. Forest Service publications; Western Surfing Association. SIGNIFICANT PUBLIC AND SEMI-,PLIBLIC OWNERSHIP Significant public ownership includes large contiguous parcels by local, State, and Federal agencies. Semi-public ownership includes large contiguous,Tcels existing in an open space condition. Semi-public owners have either a recognized responsibility to the public interest, such aspublic utilities, water districts, and universities; or (2) an established intent to serve the public interest through non-profit land-banking endeavors such as accomplished by the Nature Conservancy or the Catalina Open Space Easement. Each of these ownerships is identified by name on the Coastal Resources Map. Available Sources: County Assessor's books; local State and Federal land use inventories. DEVELOPED AREAS Land generally committed to urban-type uses, including'residentiall'commercial institutional, industrial, manufacturing, and military facilities. No consis- tent statewide guidelines were used for there designations by the Regional staffs for this Preliminary Plan. Available Sources: 'Local land use inventories; California Region Comprehensive,Framework Study. AREAS OF, POTENTIAL HAZARD TO PUBLIC SAFETY Included in this category are areas subject to the following potential dangers: tsunami, flood, landslide or other mass movement, high or severe'seismic risk areas; and cliff retreat or shoreline erosion. -329m- These dangers are aggregated to shown general areas of potential hazard. Where reliable sources differ as to the extent or severity of a particular type of hazard, the more conservative position has been adopted. The degree of potential risk has not been shown. Available Sources: Division of Mines and Geology; Corps of Engineers; U.S. Geological Survey; and local general plan Safety Elements. PROPOSED COASTAL ZONE BOUNDARY See description below. Pmfirninary Plan Map This map illustrates the application of Plan policies to geographic areas. Subregions are delineated and areas having deeper problems for which policy recommendations could not be completed by the deadline for this Preliminary Plan are indicated as needing further study. Natural or man-made areas of critical concern in the coastal zone have been identified as preservation areas. And some sites for future acquistion have been proposed. The notes on this set of maps are interpretations or Regional Amplifications of Plan policies. Comments are directed towards identifying major coastal issues and where possible, indicate a direction or solution for resolving conflicts between Plan policies and current land use patterns. All notes have been pre- pared by regional planning staffs in conjunction with Regional Commissions but have not been formally adopted. Descriptions of each of the factors mapped follows. EXISTING COASTALZONE BOUNDARY This line represents an interpretation of the Coastal Act's definition of coastal zone by each of the Regional Commissions. PROPOSED COASTAL ZONE BOUNDARY The proposed coastal zone boundary is based more nearly on the extent of major coastal zone resources (as shown on maps prepared by the Regional Commissions) than is the existing boundary. The Vroposed boundary thus does not coincide with the interim lines established by the Coastal Act. SUBREGION BOUNDARY For both descriptive and planning purposes, coastal Regions have been subdivided into subregions along natural geographic boundaries and distinct boundaries -330- separating different urban communities. Accompanying text that begins below, prepared by each Regional staff;describes major coastal planning issues for each subregion and often recommends appropriate resolutions. SPECIAL STUDY AREA This designation indicates areas where special studies are recommended to be undertaken or are being developed presently by the Coastal Commissions in coopera- tion with local agencies to solve difficult problems. The regional summaries generally describe the problems and indicate the kinds of studies required to address them. 13 UOIN.B@ 83,1nd [Ran FMPOSHEda The following pages describe in summary form the critical resources; major plans, development pressures, and environmental problems (including economic and social concerns where appropriate); and major Plan proposals recommended by the staffs of the Regional Commissions. The discussions are organized by Region from north to south, each beginning with a Region summary followed by more detailed descriptions of smaller geographic units or "subregions." These subregions, depicted on the Preliminary Plan maps, have been defined for descrip- tive purposes only at this time. North Coast The North Coast Regiont one-quarter of the California coastlinet is composed of. the three northernmost coastal counties in the State. This region is a sparsely populated area with the focus of population scattered along.Highway 101 and Highway 1. The counties and their population as of 1970 are, from north to south, as follows: Del Norte, 149600; Humbodlt, 99,500; and Mendocino7 51,300. Unlike most other coastal counties which have reflected increasing populationt' the three northern.counties have actually decreased between 1960 and 1970. Del Norte is among the smaller coastal counties in area while Humboldt and Mendo- cino are among the largest. The rural character of the countryside with its ranches and dairy farms, the quaint,and charming New England flavor of communities such as Ferndale and Mendocinc4and the lack of large city congestion.are part of the appeal of this region. The remoteness of the North Coast from any large population center is responsible for the ability to retain this appeal and also has allowed low!@ and moderate-income groups of the region to be able,to enjoy this appeal and to have theadditional benefits of a slower paced lifestyle. The economy of the North Coast is based upon forest products, agriculture, -331- fisheries, and tourism. Timber products are the primary ingredients in the liveli- hood of the people of this region. Agriculture and fishing are additional but cannot replace timber as the basis for the North Coast economy. The recreational appeal of the region attracts an additional 40,000 to 50,000 visitors from across the nation; however, this influx of visitors is limited to the months of June to mid-September. This short tourist season is not only significant to the -North Coast but it is a stimulus to the national recreational industry. Likewise the timber and fishing industries are not only important to this region and the State but are of national concern. The objectives of the Coastal Plan in Del Norte, Humboldt, and Mendocino Counties should be to maintain these present attractions as a scenic and natural resource area, to preserve agricultural lands, and to conserve natural areas without jeopardizing economic stability. SUBREGION 1: DEL NORTE COUNTY Del Norte County's coastline extends from the Oregon border south to Humboldt County. Of this 45-21- mile long coastline, 51 per cent is open to the pub-lie. Approximately 20 miles or 44 per cent of this shoreline is composed of rocks and rugged beaches. These rocky beach habitats provide primary wildlife areas; for example, four offshore rocks (Hunter Rockst Prince Island, Castle Island, and False Klamath Rock) support 46 per cent of all the newts located on coastal rocks in the State. The remaining 25 miles of shoreline is composed of wave-swept sandy beaches. The marshes and mudflats of Del Norte County are valuable in furnishing food and habitat areas for an assemblage of water-associated birds and mammals. These wetland areas are located at Lakes Earl and Talawa and at the mouths of the Smith and Klamath Rivers. The coastline of Del Norte County is a valuable scenic and natural resource area; however, the adjacent coastal plain is the location of over three-quarters of the county's population and its primary activity area. Public ownership in the county, nearly 75 per cent of its total area, limits the activity area and also the tax base of the county. SUBREGION 2: HUMBOLDT COUNTY Humboldt County's 121.3 miles of coastline consists of 39.1 miles of rocky shores and 82.2 miles of sandy beaches. The rocky shoreline provides secluded habitats for seabirds and marine mammals. The sandy beaches of Humboldt County are unsuitable for swimming but are used for fishing, strollingland clamming. Boating facilities at Trinidad, Humboldt Bay, and Shelter Cove provide launching sites for sport fishermen. The remote southern third of the county, between Centerville Beach and Shelter Cove, is.infrequently used by visitors and con- sequently provides habitat areas that remain relatively undisturbed. Two major wetland areas, Humboldt Bay and the Eel River delta, are of statewide importance in their contribution to maintaining associated wetland wildlife populations. These and other coastal wetlands along with pasture lands and*sheltered waters comprise the center for wintering waterfowl in California north of San Francisco Bay and are essential in maintaining Pacific Flyway waterfowl populations. Over 34 per cent of the coastline of Humboldt County is owned by the public. Combined with private lands available to the public, this increases the percentage available to public use to over 65 per cent. Public parks along Humboldt coast -332- provide.the beach visitor with,the,ruggedness of the King Range.NationalConserva- tion Area to the quiet beautyof the Redwoods National Park. Clustered around Humboldt Bay Are the industrial, comercia-Land population @50 per cent of Humboldt's 99t642) centers of the county. The bay in addition to .ts role as wildlife area provides waterborne transportation for Eureka industry and recreation. SUBREGION 3: MENDOCINO COUNTY Mendocino's coastline is dominated by rocky beaches and headlands--84 miles- and interspersed with 36 miles of sandy beaches. Of the 120 miles of shoreline, 10 per cent or 12.6 miles is open to the public; 11 of these miles are in existing State Parks. The Noyo, Ten Mile, Big, Albion, Navarro, Garcia, and Gualala Riverst along with 19 other coastal streams, rivers,-ponds, and creeks, provide salt and fresh water marshes, mudflatst and riparian habitats which support many forms of wildlife. The rugged terrain and the cold water and other characteristics which make the beaches unsuitable for swimming reduce the amount of human use expected and will probably keep it at a low level, offering a minimum threat to the wildlife resource. The coastal shelf of Mendocino, one of the largest and least populated coastal counties, contains one-third of the county's 52,000-plus population. Numerous small communities and towns, such as Gualala, Mendocinot and Westport, reflect a New England flavor. These communities and the scenic and natural resources are the attraction of the Me ndocino coast. North Central Coast The North Central Region covers 140 miles of coastline in Sonoma, Marin,and San Francisco Counties. The northernmost pounty, Sonoma, has a rugged rocky coastline shared in roughly equal proportions by second home developments, public parks, and grazing cattle. Coastal problems center on the tremendous future commitment that has been made to second home subdivisions by county government, and how to keep the remaining coast physically and visually accessible to visitors. Marin Countyfs coast is mostly in public ownership except for a few coastal villages surrounded by parklands. Tomales Bay is an important feature in the Marin landscape, both as an esturine area of environmental significance and, as a reminder of that great geologic flaw that has so influenced the regiorls coastal landscape the San Andreas Fault. In Marin the growth commitment issue is somewhat reversed in that development is being strictly limited at the local level. But the exclusionary effect upon citizens of the State is similar, because it is visitor-serving facilities catering to "outsiders "---even in parks- that come under the strongest opposition from local growth control advocates. In San Francisco, the sand dunes that once made up the coastline were long ago covered over with homes so there is little natural coastline left, and, acces's is hardly an issue when city sidewalks reach almost to the sea. Accom-. modating newcomers is an issue even ir! urban San Francisco, however.' The -333- unwelcome newcomers here are the bl'and-four-story apartments which are randomly replacing the small aging houses that represent San Francisco's last bastion of fami ly living. SUBREGION 1: NORTHSONOMA COAST This subregion stretches 32 miles from the Gualala River (Mendocino county line) on the north to the Russian River Valley*on the south.' Redwood and pine forests cover the undulating ridgelines of the coastal mountains. In many places, grass-covered or partially forested terraces slope gently toward the ocean ending abruptly in a drop to a rugged sea-etched coast. In other places, the coastal mountains drop directly to sea and the coastal highway, clings none too permanently to the slopes. The San Andreas Fault slices down the length of the region forming t he Gualala River Val-ley; much of the area is geologically active and unstable. Even the level-terrace lands are poorly drained and highly susceptible to erosion and soil slippage. However, ample rainfall (40 to 75 inches per year) creates a lush vegetative blanket over the area's-fragile and hazardous geology. Forest and grasslands provide habitat for a rich variety of wildlife. Cattle and sheep range across the lightly forested land, and logging has become a sustained activity in areas of denser tree growth. The many tiny coves along the shoreline that once gave flimsy protection for the loading-of lumber schooners are now frequented by sports divers and fishermen. All land transportation between Jenner and the Navarro River (42 miles north of Gualala in the North Coast Region) is virtually confined to Highway 1, which cuts a sinuous, scenic, and,precarious pathway along the ocean's edge. The great beauty of the natural setting and the marginal nature of the road system serving this subregion are the.basis of this area's major issue. Heavy commitments have been made by Sonoma County to sec.ond.home subdivisions to- a point that makes extensive additions to the coastal r oad system seemingly in- evitable. Plan policies, however, place high value on retention of the present rural characterof the coastal road system, and it is apparent that reconstruction of Highway 1 to more ample dimensions through this subregion would call for elaborate and expensive applications of road engineering skills. The en- vironmental and aesthetic pricetags would be forbiddingly steep. The extent of public commitment to.second home development at the Sea Ranch, which takes up the northernmost 10 miles of coastline, is a subject of current litigation between the developer and the Coast Commission. At this time,it is unknown whether Sea Ranch has the legal right to create 5200 dwellings on its property (the developer's position) or whether it will be possible to limit the number of units to a fraction of this number. The Regional Commis- sion is.now considering the implications of four different options at Sea Ranch:' (1) a Sea Ranch of 4000 dwelling (the developer's current plan); (2) a Sea Ranch of 2000 dwellings (approximately the number of lots a 'lready sub- divided and sold); (3) a Sea Ranch limited to 800.dwellings (a number which could be sustained'by the existing roads); and (4) a Sea Ranch limited only by dwindling market demand. If the developer has a legal right'to create 5200 units, then the public h-as one option to improve Highway Lor to reconstruct the Skaggs Springs-Stewarts Point Road as a lateral connector to provide additional capacity for Sea Ranch- bound traffic* Alternatively? it might be preferable to simply have the public purchase undeveloped lots at Sea Ranch, since the cost of lots, while high', will probably be less than the costs of road reconstruction. It might be that even 2000 lots at Sea Ranch would be too many and that public purchases will be recommended regardless of the rulings of the courts. Since the Sea Ranch as now planned is an exclusionary enclave which would bar physical and visual access to the length of its coastline, the Plan calls for acquisition of coastal day-use areas at several points in presently u.n- subdivided portions of the subdivision (at'Units 8, 34 and 36). Except for several existing parks, much of the area's dramatic coastline is in private ownership andin use as grazingland. The Plan calls for practically all ofthe undeveloped land between Highway I a@d-the shoreline from Sea Ranch to Jenner to be retained in open space. In total,.this.would amount to approximately 16 additional miles of, coastline to be protected through public acquisition of development rights, scenic easements,or fee title. As funds- become available, trails.and day-ruse areas would be created along portions of the blufftops to create a band.of coastal access and view protection. It is desirable, however, to maintain as much of this land in productive agricultural use as possible so it is recommended that, even with public purchase, agri- cultural activities would be continued. At Stewarts Point, a number of buildings remain of a settlement which was once a I'doghole" lumber port. It is proposed that this area be.preserved as an.historic park and restored.either with private.or state funds. Salt Point State Park should be expanded in area and some 200 additional campsites built. The coastal terrace of the Seaview Highlands subdivision should be purchased and added to the park. T-he park at Stillwater Cove is also slated for expansion in three directions: west to Ocean Cove along the bluff; northward to include Stockhoff Creek Canyon; and southward along the coast to the Timber Cove subdivision. About 214 lots at Timber Cove would be approved for development. This is all of the existing parcels'except for those lots with septic tank problems whibh front on Timber Cove Creek (the subdivision's water source) and the lots in the Nineve Drive terrace section which would be acquired for public view protection and day7use access* Plans to expand both the historic interpretive function at Fort Ross (and the area of the park) are endorsed..'as well as.the concept of adding,aftiVities- and displays that reflect.the cultural history of,Californ.i,a Indian settle- ments at that site. .Care should be exercised, however, to make certain that contemporary reconstructions do not.,destroy sites ofarchaeological, historical, or religious value. Rassian " Gtil hwould' be s` acquire. a a..pclrk and campground, along wit'han up@- lands. area. including, several. strategically located lots in the. Muniz'Ranches..' At Jenner, development is to be restricted to the present village area. No further.division of open lands adjacent to the village should take.place. Geological and septic tank,const.raintr@ dict*[email protected],lot-.cbnsolidati6ns will be needed before any additional growth takes place, and.that future-population, increases'will be' minimal.. -335- Major campsite development and visiton-serving facilities are encouraged in an/ the Duncan's Mills area, consistent in character and scale with this Victori 01 western village. No substantial development or structures should be permitted within the Russian River floodplain, however. The Willow Creek area, just inland from the immediate Russian River shoreline, is an appropriate location for state campgrounds, but the fragile and unique fresh water marsh at the mouth of the creek and other special- natural areas must be protected. SUBREGION 2: SOUTH SONOMA COAST The 15 miles of coast from the Russian River to the county boundary at the Estero Americano differ from those further north in several. ways.- The,coastal ridge softens in its contours and the coastal terrace broadens. Except for scattered plantings of cypress and eucalyptus, the land is treeless and open. A very narrow band along the immediate shoreline has been developed as the Sonoma Coast State Beach. While much of the area inland remains as grazing land, there are interspersed patches of'subdivisions, both developed and specu- lative. The settlement of Bodega Bay, with a permanent population of around 400, represents the greatest concentration of dwellings in"this section of the coast. While the land in this subregion is relatively barren, the seacoast is spec-_ tacularly'attractive. The sea, cutting into coastal sandstone, has sculpted* a shoreline that includes expanses of sandy beaches punctuated with low cliffs and offshore sea stacks. At Bodega-Bay,is a shelt ered harbor which is home port to 203 fishing boats and a temporary home to many migrating water birds. Bodega Head, 'a small peninsula jutting into the sea, is .the 5ite'of the University of California's Bodega Marine Laboratory- testimony to the rich variety of habitats in the area* Underlying the sandy dunes area which connects Bodega Head with the mainland is San Andreas Fault which also underlies the harbor. Also hidden under the'. sands and.grasses around the harbor are the'remains of a cluster of Indian villages. Thestate parklands lining the subregion's beaches are intercut with small subdivisions. The.Plan recommends acquisition of undeveloped parcels that lie.in the important view corridor between Highway 1 and the ocean. Parcels to be acquired include those in the two small units of Pacific View Estates and visually prominent ones adjacent to Goat Rock State Park. Parking for the state beaches is a problem' that will require a detailed special study.for solution. In the summer months, the length of the coastal roadway becomes lined with parked cars and campers2 and every headland promontory is crowned with a similar collection of chromium and sheetmetal. Adequate park- ing should be provided east of Highway 1 (with safe pedestrian undercrossings), and roadside and-blufftop parking be discontinued. At the settlement on Salmon Creek, a--severe septic system failure rate has'. been reported. While the Plan approves a buildout of the remaining several dozen lots in this settlement,* further construction should be halted until the Regional Water Quality Control Board makes recommendations for' a long-term solution to this pollution problem. There-are a number of environmental threats to the Salmon Creek watershed that can affect its value as a habitat and spawning stream-ranging from.saltwater barrier construction at its mouth to logging at its source. At the upper reaches of the watershed there is a stand of 30 acres of virgin redwoods-perphaps the only remnant of the forest that once covered the Sonoma coast. This potentially important spawing habi- tat and natural area deserves special watershed-wide study and regulation. At Bodega Bay the question is, "how much growth?" The-county plan shows this small, picturesque fishing village growing from its present population of 400 to around 10,000, but the Coastal Plan would permit housing for only an additional 200 residents in the town area. Instead of extensive residential growth, an approximate doubling of the current level of commercial fishing and visitor-serving facilities would be more appropriate. The nearby Bodega Harbour Subdivision is to be limited to the 336 homesites that had been created before the Coastal Act took effect, plus a moderate level of additional growth (150 units), with preference in this additional development given to visitor- serving lodge facilities. At Bodega Harbour, as at the Sea Ranch, the Commis- sion is in court against the developer who claims that Sonoma County had given all necessary approvals to 11600 rather than 350 dwellings. Other growth issue's at Bodega Bay concern the need to improve existing facili7 ties for the commercial fishing fleet that plies the waters beyond.Bodega Head. While the Plan endorses construction of modern facilities at Spud Point, it would require that full consideration be given to reconstruction of existing marinas in the harbor as an alternative. The dredging of marshes, wetlands,. and mud flats should be absolutely minimized in any expanded berthing facility. it is now apparent that construction should never take place on many of the tidelands leases granted to Sonoma County in 1951 by the State Lands Commission; the amount of maintenance dredging in the Harbor could be reduced by abandoning the most southerly.portion of the channel that serves these undeveloped industrially and commercially zoned properties. The University of California Bodega Marine Laboratory should remain as a cen- ter for research, but should not be'expanded into a.residential campus. The laboratory property now blocks public access between public parklands to the north and south of the facility. A connecting trail should be established through the property, suitably designed and regulated to protect the natural resources of the site. Because of the high probability that'any new construction in the vicinity of Bodega' Bay would disturb archeological sites, surveys would be required by the permanent coastal agency before'any construction is authorized* SUBREGIO-N&TOMALESBAY The San Andreas Fault has created a great sunken valley as it cuts into the California mainland near the northern boundary of Marin County. The resulting embayment, Tomales Bay,' is a wetland with-many' unusual properties. The eons of slippage along the fault'have resulted in the opposition of shorelines that are geologically from different places. .The-land on ihe'east- side of the fault is arid, open, and rolling, while the opposing shore I's'rocky, tree-covered, and angular., The bay seems a great hallway where the viewer is ever aware of the sweep.of the narrow bay and the peculiar.contrast of the opposing,shores. Beyond the entrance to Tomales Bay are twoesteros, Americano and San Antonio, that are virtually inaccessible and-pristine. At the entrance of the bay is the town of Dillon Beach and the Oceana Marin subdivision-both slipping im- 01 perceptibly downward toward the sea. Sheltered behind a-row of dunes is a jumbled city of decrepit trailer homes populated on weekends by fishermen drawn from Sacramento, Stockton, and other valley cities. Ranchers graze their livestock along the softly-slumping hills of the east side of the bay and the shoreline is either open or cluttered by modest homes perched at the water's edge or poised over the bay on pilings. Reminders of historic settlements remain at Cypress Grove and Marshall. In 1913, the Army built a large hotel-like structure on the bay in an unsuccessful attempt to entice Marconi to locate his work on a transcontinental-radio system here. The structure and surrounding lands now form the nucleus of the Synanon Foundation's .."people ranch," the largest concentration of population on the east side of the bay. The tree-covered west side of the bay, at Inverness and Inverness Pa 'rk, has been a focus of real estate speculation since 1889. In spite of decades of promotional effort, the construction of homes has proceeded at a leisurely pace. There are now about 770 homes here. 'The village of Point Reyes Station, with a population of 400, lies at the end of the bay where shallow waters and primitiveIseptic tank systems create persistent pollution problems. .. The bay itself is a valuable natural resource. The University of the Pacific maintains a marine station at Dillon Beach and the Audubon Canyon Ranch has ambitiously acquired shoreline habitat areas for study and protection. For years the bay has been the site of mariculture activities and there are a number of small-scale oyster-growing operations in the bay's waters. The bay supports active commercial and sports fisheries. Hunters and birdwatchers share an interest in the waterfowl and shorebirds that frequent the bay. Little growth is recommended in the several small villages near-the coast: Bodega, Valley Ford, Fallon, and Tomales. Such development as does occur should be of small scale in keeping with the character of these settlements. The coastal zone boundary should be redrafted near Valley Ford to include the segment of Highway I that is presently excluded. Because of its environmental interest and richness, and because it is a center for research facilitiesq the entire Bodega Bay to Tomales Bay area should be managed as a marine resource area. Bodega Harbor, Bodega Bay, and Tomales Bay should be placed under a special management-system that permits continued productive use of fisheries but establishes controls to protect marine resources. Some areas would be designated as special research zones and access would be controlled. The estuarine sanctuary program of the Federal Coastal Zone Management Act may well be appropriate for part of this area. Estero Americano and Estero de San Antonio should receive special protection. The shoreline areas should be accessible, but only to those members of the public willing to hike in from Bodega Bay or from Dillon Beach. At Dillon Beach, infilling of already subdivided lots (250) would be permitted, but the undeveloped north unit of Oceana Marin subdivision should be maintained and rezoned as an agricultural area. Some existing lots may be unbuildable becaus,e of geologic instability; detailed soil investigations will be required befo.re construction is permitted on lots with probable problems. There is a potential for expansion of limited visitor facilities in the vicinity of Dillon Beach but sanitation improvements will be needed before there is any expansion of the trailer encampment.south of town. There are a number of locations along Tomales Bay where boat launching areas and boat slips could be provided with minimal environmental effect. The treach- erous entrance channel to the bay can trick even experienced local boaters, so before any expansion of boating on Tomales Bay is permitted the environ- mental effects of channel improvements should receive.thorough study. The long abandoned right-of-way of the North Pacific Coast Railroad'.along the east side of the bay should be utilized and developed as a biking and hiking trail. The plans of Audubon Canyon Ranch to create a nature study cen- ter at.the old Cypress Grove resort would be quite compatible with this pro- posal, providing that portions of the property and facilities were open*to the public. Properties between Highway 1 and the'bay should remain minimally- developed. In some cases public acquisition as open space may be appropriate while in others agricultural uses may be continued. No further construction of bayside homes on pilings,or fill is to be.allowed. Expansion of the Synanon complex at Marconi Cove would be permitted providing that new construction is hidden from public view and natural resource con- straints are respected. The village of Point Reyes.Station is the appropriate locus for moderate commercial visitor facilities related to the Golden Gate National Recreation Area (GGNRA). However, the expansion boundaries for the village set in the Marin Countywide Plan seem excessive -and do.not respect the "visual boundaries" of the settlement. The Regional Commission is currently considering alternate expansion boundaries. Also, the need for a sewage treatment-facility to serve the town is evident; further development should be predicated-on the correction of present problems. Inverness and Inverness Park should be allowed to gradually increase in pop- ulation, but there should be an immediate moratorium on development on lots of less than one,acre or on steeply sloping lots (above 301% slope) where septic tank failures might be anticipated. The cumulative effectof continued re- :.liance on septic tank systems in this area should be evaluated by the Regional, Water Quality Control,Board. Development on up to 350 additional lots would be permitted along with limited expansion of visitor-serving facilities inside the tracted area. Very little further lot splitting or subdivision of lands is appropriate. The management of-Tomales Bay State Park should be integrated: with the GGNRA., and some campsite development would be appropriate at the bayside park units. SUBREGION 4'.'POINT REYES NATIONAL SEASHORE TOTH E GOLDEN GATE Surrounding the.small villages of Ole-ma., Bolinas,.Stinson Beach, and Muir Beach are over 6030.00,acres of Federal, State, and.County-parklands.. The 55 miles_@ of Marin,County.shor,eline [email protected],and sandspits., windswept headlands of coastal sage redwood. groves in sheltered,canyons (including famed-Muir..Wood,s), _339- evergreen forests along the ridgelines, and coastal oak and grasses within the valleys. The ever-present San Andreas Fault has left its impression on the land, forming the Olema Valley and Bolinas Lagoon before disapperaing into the sea. A fierce surf pounds on the exposed western beaches of Point Reyes, but at Drakds Estero and at Limantour Spit the sea is gentle and the sand inviting. Grazing and dairy operations continue under lon&-term agreements with the National Park Service. Access is limited to the southern shoreline of the sea- shore to those who are hardy enough to hike or horseback in from the trailhead at Bear Valley (4-4 miles). The tidepools of Duxbury Reef are an are a of special interest, all too acces- sible to abuse by over-enthusiastic students of intertidal life. At Bolinas' the beach is intensively used by surfers, fishermen, and equstrians as well as by clothed and unclothed sunbathers. Bolinas Lagoon, now a county park, is a rich wetland area, a feeding ground for migratory,water fowl and shorebirds, and a sanctuary for a luxuriant collection of burrowing clams protected from human predation by the pollution of the lagoon with Bolinas and Stinson Beach sewages The Stinson Beach and Bolinas area has the sunniest, most fog-froe climate of any spot in the North Central Region (apart from the Olema valley). The beaches have provided refuge to generations of Bay Area residents in search of warm sun,and surf-a non-too-common combination in northern California. The Marin headlands approaching the Golden Gate are dotted with the re mnants of fortifications constructed over the years to defend San Francisco Bay. One of the very few advantages of the perfection of the intercontinental missile was the elimination of any need to further maintain this fortified coastline. The old fortifications and bunkers have now become the nucleus of the Golden Gate National Recreation Area (GGNRA),and nature is slowly recapturing the land scarred by years of military occupation. The major problem in West Marin is how to accommodate (or discourage) visitors attracted to the-massive parklands. Residents of the tiny islands of privately owned land left in the sea of parklands are worried that they will be overwhelmed by a tide of visitors and tacky commercial development. Even now, tourist traffic clogs local streets and parked cars spill into any available space bn holiday weekends. Some feel that the Golden Gate National Recreation Area should be a place of wilderness and solitude and oppose any concept that would involve "development" within.park boundaries. On the other hand, it is apparent that this vast recreation area has a high use potential. Existing public recreational facilities and campgrounds in nearby parks are heavily us.ed-to the point of abuse. The question is one -of balance; how to provide for the needs of visitorswi.thout destroying either the value of the GGNRA or the character of coastal,villages.'-The National Park Serviceg assisted by an official GGNRA Citizens Advisory Committee as well as other government agencies and citizens' organizations, is beginning work on a master plan for the use and development of the Point Reyes National Sea- shore and the Golden Gate National Recreation Area. Unfortunately, this master plan will not be completed within the coming year. Therefore, the Coastal Plan proposals should be seen as illustrative of the application of coastal policies to these federal parklands, subject to review upon the com- pletion of the more detailed, comprehensive master plan. -340- The Coastal Plan suggests a strategy of balance for visitor facili ty develop- ment in West Marin. Lucas Valley Road should be developed and promoted as the prime access way to the northern portion of the park complex. Relatively high use visitor areas would continue to be focused at Limantour Spit, Drakes Beach, and the Olema Valley. Several hundred campsites and tent cabins should be developed in visually unobtrusive settings in the Olema Valley. Proposed areas of limited access or restr icted use include areas around Tennes- see Cove, Slide Ranch,-Double Point, and Tomales Point. Compatible agriculture within the park should be*continued. A southern entrance to the park should be minimally improved at Palomarin; a supplementary trailhead should be es- tablished in the vicinity of the Five Brooks area. At Bolinas, village expansion should be limited to the area identified in the community's plan and the growth rate regulated to around six residential units a year. This same rate should be applied to Stinson Beach-which would result in an additional 100 homes in each community by 1990. Direct application of growth management measures would be required to maintain this low rate of growth. Modestly scaled visitor serving facilities should be added to each community keeping pace with the increase in private residences. Preference in allocating development rights should be given to structures available for public use. The pollution of Bolinas Lagoon should be corrected6 Plans to correct the situation need to be implemented and it is apparent that some intervention may be required to break the present stalemate at Stinson Beach, which tolerates the pollution as a means of local growth control. Any treatment facility constructed, however, should be scaled in accord with growth management ob- jectives. While tidepool misuse is a problem at Duxbury Reef, it appears that the best strategy of protection is to post informational signs and do nothing-to attract further visitors to the site. The Bolinas beaches are narrow, capable of little additional use, and should remain similarly unadvertised. Beach erosion and the encroachment of protective works to protect threatened homes is an issue that needs special investigation. The usable area of Stinson Beach should be increased through purchase of dry sand areas and undeveloped dune parcels from the present state park boundary to the tip of the Seadrift Sandspit. Additional restrooms and parking areas Should be constructed to'better distribute visitors along the beach. Although no campsite development should take place at the expense of day-use facilities, some modest development might be appropriate at Stinson Beach State Park. A southern entrance to the park should be a long-range management objective. The present State parklands at Stinson Beach, Mount Tamalpais, Muir Beach, and the Marin Headlands should be transferred to the Golden Gate:National Recrea- tion Area. Only Stinson Beach appears to have additional use potential. At Muir Beach there is potential for only the most modest expansion and a need to better locate existing facilities. (The buildout of the remaining 50 resi- be permitted). dential lots at Muir Beach and Seascape would While Tennessee.Coveis a highly attractive spot, a dangerous surf, the fragile natural envirom .ent, and the uncluttered natural setting recommend it as a moderate-to low-U'se area. No private vehicle access or parking should be pro- vided at the cove. The Fort Cronkhite area adjacent to Rodeo Lagoon could -341- tolerate relatively high levels of use and some of the existing military bar- racks and.structures would be suitable for visitor-serving facilities and hotels. The existing campground at Kirby Cove should remain at about its pre- sent size. There is an immediate need to provide trail connections between the existing trails systems on Mount Tamalpais to those within the Point Reyes National Seashore. Connections should also be established across the Marin Headlands to the Golden Gate Bridge. Given the moderate-to low-use potential of much of the shoreline of the Marin Headlands, these trails would provide the only oceanside access between activity centers at Fort Cronkhite, Muir Beach, Stinson Beach/Bolinas, and the Point Reyes beaches. Transportation to West Marin is a problem since narrow, winding and often con- gested Highway 1 serves as the subregion's only north-south connecting link. Parking upon arrival at the coast is a further problem. Some relief of current congestion might be achieved by improvement and advertisement of the more northerly Lucas Valley Road lateral. Great reliance is also placed on the use of public transportation as a means of increasing access while holding private auto use down. Proposals for an internal transit system within the GGNRA offer the best means of establishing a transit alternative. Only minimal roadway improvements needed for safety or to accomodate buses and bike trails would be permitted on Highway 1 or on Panoramic Highway. SUBREGION 5: SAN FRANCISCO The open, wild coast seen in Marin and Sonoma has not existed in San Frar- cisco for 80 years. Even then, the topography of these lands just south of the Golden Gate was strikingly different from the craggy, steepbluffed, rock- strewn coast of the rest of Northern California. Western San Francisco was mostly sand dunes. But the dunes are now completely developed covered over with pavement, row houses, and apartments. The only vestige of sand-dunes that remains is at Fort Funston, in the far southwest corner of the city. The 8-,r,-miles of San Francisco shoreline from the Golden Gate to the southern limits of the city at Fort Funston is to become a part of the Golden Gate National Recreation Area. Even though there is little natural landscape to protect from predatory bull- -dozers, the changes which are occurring in San Francisco's coastalneighborhoods are alte ring the city's social and physical pattern. The problem is the loss of moderate-income family housing. An analysis of 1960 and 1970 census data, as well as building permit statistics, led SPEAK, a Sunset District community organization, to conclude: "Families are growing up and moving out of the area. Home ownership is dropping, rentals are in- creasing and the character of neighborhoods is changingfrom single-family homes to box-like apartments. Key districts within our community are being transferred from stable, low-density family-oriented neighborhoods into imper- sonal, transient, high-density areas". As a preliminary proposal pending the outcome of the city's comprehensive Residential Zoning Study, the Coastal Plan proposes than no redevelopment to increased height or density be permitted in those blocks where fewer,than one- third of the lots have been redeveloped to higher levels than the established community character. Downzoning is indicated for many coastside blocks in order to protect and retain the family housing character of the outer Richmond and outer Sunset neighborhoods. It is necessary to end the dreary repetion of maximum area/minimum design apartments in the coastal neighborhoods. San Francisco must establish a skill- ful design review process (including consultations with area residents) and a thoughtful revision of zoning standards that aims for excellence rather than enforces mediocrity. Within the military portions of the GGNRA, non-essential military uses-should be relocated to other military lands (such as nearby Hamilton AFB). The head- quarters command at the Presidio and Letterman Hospital, of course, should remain permanently. Military structures such as those at Fort Winfield Scott- should be used for urban recreational programs. At Fort Miley, the present expansion program of the Veterans Administration Hospital should mark the ultimate limits of development at this facility; the remainder.of the fort's bunkers and headlands should be opened to public access. A trail and internal park transit route should be reestablished on the bluff below the fort. At Seal Rock and Land's End, commercial development should be limited to the historic restaurant/hotel use at the Cliff House. Both because of the danger as well as to avoid distrubing the seals and sea lions which use Seal Rocks, public access to these nearshore rocks should be prohibited and access to cliff areas, some of which shelter fragile and rare plant communities, should be controlled. Ocean Beach has been abused and ill-maintained for decades. While its poten- tial is great (particularly on good days) it is presently a dirty, disagreeable place. Three things are essential to restore the high urban-beach potential of San Francisco's Pacific shore; better maintenance, better super-Vision7and the implementation of the city's Great Highway Improvement Plan to transform the existing freeway-like expanse of pavement into a four-lane, gently curving recreation road. The old Playland-at-the-Beach site, located on the outer edge of the.Richmond District, provides the only location in the North Central Region appropriate for intense, urban, commercial recreational development. Once largely surrounded by Water Department lands and golf coursesp.much of the open land around Lake Merced has, in recent years, been converted to development. Additional structural-facilities should.not be located.on open landslaround Lake Merced. Development should 'be limited to non-structural, water-oriented picnicking, fishing, boating, or trail uses. Facilities that exclude the general public (such as the police facilities 'and the target-range) should be phased out or relocated. San,Franqiscols.existing sewage facilities,are archaic. On.rainy days, the bulk of San-Francisco's sewage bypasses the treatment plants and is discharged,' untreatedt into the bay and the ocean. Several of these overflow outfalls are located along Ocean Beach. San Franciscors,.Waste Water MasterPlan.calls for the ultimate construction of a one-bill .ion-gallon-per-day sewag e treat ment plant at the,north.west corner of Lake Merced. Clearlyf the.situatio.n is in need of improvementand a properly c9nstructed'deep--@ocean outfall is.preferable to a bay.outfall. Howeve .r, if such a facility islt6lbe.located near Lake Merced,,, extensive demonstration will berequired toassure-that no other location is, as suitable, that its effect upon,the quality,of ocean waters will be neutral, that its structural design is adequate for this seismicarea, that the plant provides mazimum opportunity for reclamation, and that open space recreation uses will be emphasized in its siting and design. It is recommended that the Legislature modify the coastal zone boundary in San Francisco to follow Highway 1 through the city. The original boundary traverses, Twin Peaks, in the center of the City, and includes many districts and neighborhoods which are distant or invisible from the coastline or which have very little access or relationship to "coastal" neighborhoods. The Farallon Islands, located 28 miles west of the Golden Gate, are small, rugged, and barren. The present wildlife refuge status of the islands should be retained with no facilities to be constructed and no visitor program to be provided (other than the limited research efforts of the Point Reyes Bird Observatory). Central Coast The Central Coast Region extends 209 miles south of the densely populated hills of San Francisco to the rugged back-country of Big Sur. The fertile Salinas and Pajaro Valleys form the region's heartland, and their produce helps to make agriculture the basis of the regional economy. Tourismq centering on the cities of Santa Cruz and the Monterey Peninsula but relying on the region's wide beaches and spectacular natural beauty for support, also plays a major role. Attractions such as Point Lobos, Carmel Mission, Pebble Beach, Cannery Row, the Santa Cruz Boardwalk, and Steamer Lane are known far beyond the region's borders. From the rugged coast of northern San Mateo County, the region passes south through the fertile Half Moon Bay coastal plain to the rolling hills and terraces of the Ano Nuevo Coast. The terrace widens at Santa Cruz, and the Santa Cruz Mountains form a backdrop for the Pajaro Valley and Watsonville.. As the Santa Cruz Mountains march southeast to become the Gabilan Range, the broad Salinas Valley dominates the coast* Between the Pajaro and Salinas, an extensive slough system drains toward Monterey Bay, with Moss Landing at its head. Then high dunes protect the shoreline for many miles, before giving way to the plains of Monterey. Dominated by the Santa Lucia Mountains, the Monterey Peninsula juts -out into the Bay, Carmel perches on the hillside just south overlooking Carmel Bay, South of Point Lobos the coast is again rugged, until the signs read "San Luis Obispo County." SUBREGION 1: SAN FRANCISCO COUNTY LINE TO POINT SAN PEDRO This coastal subregion, dominated by the suburban cities of Daly City and Pacifica, combines high accessibility to population with severe development hazards and important recreation opportunities. Daly City, straddling the San Andreas Fault and rolling terrain which drops off 400 feet at the edge of the coastal bluff, is almost totally developed. Pacifica, which strings together several communities nestled in the coastal valleys, anticipates a 50 per cent increase in population (to 90,000) by 1990. Much of the remaining open land in this subregion is on brush-covered hillsides; this feature has been identified by the Coastal Plan as a significant scenic resource. Both Daly City and Pacifica contain major coastal recreation attractions. Thornt on Beach State Park provides,the-only public access point to the wide beaches below Daly City's cliffs., The beach is the major attractionv but re- mains of the old Coast Highway, 150 feet above the beach, offer a spectacular hiking experience. If this route is safe, it would be an ideal location for the coastal trail recommended in the Plan. Additional access to the beach should be sought, since heavy use clusters.near the Thornton Beach narking.lot; two possibilities are Avalon Canyon (where a park is-proposed@ .and the San Andreas Fault trace (now a solid waste disposal site). Pacifica's beaches and new fishing pier are also heavily used;, the need for more convenient access, parking facilities and,aesthetic improvement of the beachfront (all recognized by local and Coastal plans) may conflict with maintenance of special coastal neighborhoods (West Sharp Park) or with the development of coastal commercial facilities . (Rockaway peach). Development of the Pacifica hillsides will be a major subregio nal plan issue. Local planned-development zoning and proposals for incre@ased access promise to.' restrict buildable areas to lesser slopesv but have not yet successfully overcome concerns expressed by local residents,and the Coastal Plan for potential erosion, public hazards, loss of significant open space, and impact of-population. Coastal Plan policies should be translated into operable hillside development standards to meet these concerns, SUBREGION 2: POINT SAN PEDRO TO TUNITAS BEACH The Midcoast side of San Mateo County lies-in the shadow of the Coast'Range,'tied to San Francisco by the precipitous Devi2s Slide highway' and to the.populous Bayside by the winding Highway 92. Much of the fertile coastal terrace was sub- divided after@tlie 1906 earthquake2 but little developed. The historic agricul- tural.center of Half Moon Bay, now.a city of 5,500P projects growth to 'at least 28,000. Encouraged by a new sewage treatment plant, the large number of existing lots and an aggressive developer, the city has overseen the conversion of agricul- tural land into residential subdivisions. Four unincorporated communities (Miramar, Princeton-@El Granada, Moss Beach, Montara), separated by agricultural lands, contain,7,000 people, and are building up,rapidly on existing lots... The Half Moon Bay.area supports,a strong floriculture industryt both field- and greenhouse-based, some vegetables, and seasonal specialty corps. State beaches at Montara and Half Moon Bay, a harbor at Pillar Point, and th e tide pools of Moss Beach (Fitzgerald Marine Reserve) attract many day-visitors. Planned State and county purchases would.make the public shoreline virtually. continuous. Development of expanded beach facilities and a coastal trail called for by Plan policies will thus require little acquisition. Protection of agri- culture, on the other hand, may call for policy refinements to deal with green!-. house practices'l some.redevelopment of subdivided but undeveloped agricultural lands, and policy refinements to deal with the existing.checkerboard development..: pattern. Special Study Area-Half Moon Bay: Transportation,. sewer. and water. services, and the basic community infrastructure are the keys to development in Half Moon Bay. Further study will focus on these public services, establishing.key decision. points, levels of develop Imen.t, and 'alternative development [email protected] are -345- consistent with and implement the Coastal Plan. City, county, harbor district, sanitary districtl and Westinghous6/Half Moon Bay.properties participation will be crucial to this effort. SUBREGION 3: TUNITAS BEACH TO MAJORS CREEK The rural coastline from Half Moon Bay to the northern fringe of Santa Cruz at Majors Creek contains'a scenic stretch of Highway 1 gently rollin g gra.zing lands,' productive agricultural benchlands, commercial timber resources, several well-, used beaches, and a major wetland at Pescadero. The settlements of Davenport and Peseadero are small but historic, and are designated as special coastal communities by the Plan. Allo Nuevo Island, at roughly the center of the subregion, is a valuable wildlife habitat and forms a small part of the vast Big Basin- AAo Nuevo State Park. The maintenance of open space and commercial agriculture and provision of addi- tional recreational beach access compatible with-natural habitats are important Coastal Plan policies for this subregion. .The beaches in this subregion vary greatly in size and potential. Most beaches in San Mateo County are part of the State Park system although no permanent parking, restroom or'ca,mping facilities have been.developed*. Miramontes Point, Franklin Point (magnificent beach-dunes area), and Pigeon Point/Boisa Point area beaches are the major beaches remaining in private ownership. Most northern Santa Cruz beaches are privately owned with no facilities. Where public use exists, access often crosses agricultural lands, and vandalism is common. The subregional plan will attempt to provide increased levels of access and greater protection for agriculture. Because the coastline of this subregion is irregular, with many small beaches, steep cliffs.,and a hazardous tidal area, application of the policies establishing a coastal trail and.a continuous band of public shore- line vM require special attention. Both Davenport and Pescadero would be affected by application of policies which would concentrate development.in'existing' towns. Neither has "excess public service capacity" but might provide the least-impact locations for new visitor- serving facilities. A proposed nuclear power plant north of Davenport might be incompatible with increased development. Major changes in the limited land- related economic bases of the towns would have significant impacts on use of surrounding areas. SUBREGION 4: MAJORS, CREEKTO LA SELVA BEACH The urban area of northern Monterey Bay occupies terraces and valleys between the Santa Cruz Mountains and eroding coastal bluffs. This subregion contains three cities (Santa Cruz, Capitola, Scotts Valley) and several unincorporated suburbs. Settled originally as agricultural and timber-processing centers and summer-home comm*unities, the Santa Cruz area communities now serve as a major recreational and retirement location for inland residents, Special Study Area-North Coast: Northwest of Santa Cruzthe coastal benchlailds and creek valleys produce about 90 per cent'of the nation's brussels sprouts, as well as artichokes and other crops. The uplands support grazirW, and commercial timber, The area southeast of Majors Creek has been designated by the City of Santa Cruz for urban expansion, but recent and proposed State acquisitions. (Wilder Ranchy Terrace' Pointl Natural Bridges additions) preempt urban develop-@' ment over much of the area. State Park and'University of California plans include campgrounds, beach accessv and a marine research station. The level of access needed, environmental safeguards for development, and protective measures for valuable coastal agriculturev archaeological resources, and impacted urban neighborhoods will'be'..investigated by a special study., The urbanized area between Natural Bridges and New Brighton Beach State Parks contains the bulk of recreational facilities in the subregion as well as several significant Icoastal open spaces (e*go, Lighthouse Field, Yacht Harbor)uplands) , and special coastal neighborhoods (e.g,,, Beach Hill, Capitola Village designations in the Coastal.P.1an. The last amusement park on the California coast, safe - beache4 a 'nd.two fishing wharves draw millions of visitors each summer. South of Capitolla suburban development predominates, and State. Beaches are interspersed with exclusive homes and beach cottages below the coastal bluffs.. Important wet-' land habitats remain des e urbanization: the San Lor (an important pit enzo River anadromous fish stream), Younger,'Schwan, Corcoran, and Moran Lagoons (bird habitats), and ponds near La Selva Beach (a home of the endangered Santa Cruz salamander). Preserving these areas and restoring, where pos,sible, degraded areas (such as Neary Lagoon,, Soquel Creek, Arana. Gulch) is an important Coastal Plan policy, and will be subject to subregional investigation, To encourage recreational use with minimum adverse impact, application'of policies encouraging coastal trail development, continous public beach manage- ment, intown parking and transit to the beaches will be the focus of the subregional plan.. Policies encouraging orderly development, coastal-dependent uses and protection of agricultural lands will also be important in view of projected area growth. Special Study Area-Santa Cruz Harbor: In the Harbor area, for Sedbright Avenue in Santa Cruz to 17th Avenue in Live Oak,''and south of Capitola Road, are focused issues of protecting rds 'ide@ntial neighborhoods, maximizing access to coastal recreation, prot ecting remaining open land's and wildlife habitats' and concentrating urban growth. With the assistance of local residents, citty, county, and port district, this study will'at-tempt to improve regional use of the harbor facility, as well as to determing appropriate land uses, access patterns, and recreational./cbmmercial balance of harbor use. SUBREGION 5: LA SELVA BEACH TO SALINAS RIVER This predominantly rural subregion stretches from the edge of the Santa Cruz urbanized area to the Salinas River in Montery County. It contains the Pajaro River Valley and watershed, and the four 51ougb.'drainages that make up'the Elkhorn Slough,System,, The Pajaro'Valley, covering 120 square miles, is one of the richest agricultural regions in California. The moderate coastal climate'. fertile soils, intensive- ness of cultivation, improved fertilizers and technology, and the adoption of multiple cropping.methods support a wide variety-of food crops and return a high income per acre. 10 The urban center of the-PaJaro Valley.is'Watsonville (pop. 17,000,). Its economy %J is based on food production and processing; average family income is $8f900. -341- Two unincorporated communites extend north and south of Watsonville: Freedom in Santa. Cruz County and Pajaro in MontereyCounty. Continuation of these communi- ties' rapid growth would involve the loss of valuable agricultural lands designated for protection under county and Coastal Plans. Elkhorn Slough, one of the largest and most important estuaries and wetland habitats in California lies between the Pajaro and Salinas valleys, It is threatened by locally planned expansion of existing industrial andharbor deve- lopments,'and by residential development of the critical watershed. Location of the largest fossil fuel power plant in California at the mouth of Elkhorn Slough, the potential of a deepwater tanker terminal offshore, and a proposed .freeway extension from the Pajaro River to Castroville have raised major issues of oil spillage, air quality protection', and wetland preservation. Much of the coastline is in public ownershipv but inadequate public access and a shortage of support facilities hamper recreational use. Second-home development of existing parcels on the oceanfront south of La Selva Beach and the recent comple- tion of the Highway 1 freeway from northern Santa Cruz County to the Pajaro Valley could accelerate development pressures on agricultural and potential recreational lands. Plan policies call for concentrating development in existing urban areas, such as Watsonville, Pajaro, Castroville, and Moss Landing rather than allowing con- tinued conversion of agricultural land. The agricultural lands of the Pajaro Valley should be preserved; agricultural zoning and tax program changes could help greatly. Expansion of Moss Landing industrial and harbor facilities to meet new or existing demands, and new recreational and residential concentration will depend primarily on protection of the wetland and agricultural resources and pro- vision of sewage treatment facilities. Special Study Area-Elkhorn Slough System: Although the major part of Elkho rn Slough is in public ownership, neither the critical watershed nor the-wetland resource itselfis adequately protected. This study will assess the effects of continued residential development*in the critical watershed of the entire slough system,.and priorities for type and intensity of development in areas affecting the sloughs will be established.. Watershed management and acquisition programs must be developed to properly manage Elkhorn Slough as an estuarine sanctuary and wildlife.refuge, as recommended in the Coastal Plan. Monterey County, the Department of Fish and Game, and the Moss Landing Harbor District, as well as local residents and industries, will participate in identifying other areas of concern, including wetland restoration and recreational facilities. SUBREGION 6: SALINAS RIVER TO MALPASO CREEK Centered on Monterey and Carmel Bays, this subregion contains six cities and a growing military presence and tourist industry. It has resident population of about 100,000. From the Victorian homes of Pacific Grove to the Ventana Wilder- ness in the Carmel River watershedv the Peninsula offers a wide variety of scenic and recreational attractions. Some of the Peninsula.'s attractions are natural features that would be pro- tected under Coastal Plan policies: Po-*mt Lobos State Reserve, the pines and cypresses of Del Monte Forest, the white sand beaches of Carmel and Asilomar, the high dunes from the Salinas River to Monterey. Agricultural and grazing -348- lands.of.the Salinas and Carmel Valleys.are recommended for preservation al- though both areas are close to expanding population centers. Indian occupation sites, Spanish and Mexican-era adobes, and representative buildings from American historical periods can be found in close proximity here, and should be integrated into the Monterey State Historic Park, The.subregional plan will also identify opportunities to restore and enhance natural,and manmade resources: dune habitats (Asilomar and Marina), wetlands (Canyon Del Rey) plant communities (17 Mile Drive),and historic sites (Royal Presidio of Monterey@. Growth potential, from an influx of personnel to Fort Ord, expanding conventional and tourist-commercial facilities, and new subdivisions in Del Monte Forest must be balanced against the limited water supply and protection of remaining natural areas and special urban communities. Salinas and Carmel Valley-aquifers have been degraded by overuse, and restoration of water quality underground and water flow in the channels could have many benefits. A management plan for the Carmel Valley watershed will be one major concern of the subregional plan. Implementation of Coastal Plan policies establishing continuous public manage- ment of the shoreline and a coastal trail system will require special attention in the Fort Ord-Sand City area, Pebble Beach, and south of Pt. Lobos* State acquisition of oceanfront meadows is underway, and will preserve a beautiful landscape from Carmel Point to Pt. Lobos. Another important recreation policy will seek to improve access to excellent diving areas such as Cannery Row and Carmel Bay in a manner consistent with resource protection. Special Study Area--Marina Dunes: This study-area is literally made of sand. Cattle, begonias, rare dune plants, vernal ponds, commercial sand mines, Army rifle ranges, three sewage treatment plarylust a hotel, a freeway, and residential developments share the sandy environment. Appropriate levels of residential and commercial development, public access and recreational usevand wastewater treat- ment will be sought. The study will involve residents, local jurisdictions, and the U,S. Army in joint efforts to plan for the housing needs of Fort Ord, orderly community growth and concentration of development, effective management of water resources, avoidance of geologic hazards and protection of the massive dunes and other natural features in the study area. Recommendations for protection of the scenic bay frontage,@and for potential restoration of bay views from the freeway will be made. S_UBREGION 7: MALPASO CREEK TO SAN WIS OBISPO COUNTY LINE The scenic Big Sur area is world-famous for its rugged beauty. Highway I from Camel to San Simeon is a recreational area@of national significance, with an estimated annual visitation of over a million persons. Existing conventional and wilderness camping facilities are used to capacity, and thousands of visitors are turned away every year. Grazing remains an important land use, and is a -primary factor in the mainte- Inance of vast scenic landscapes. Access to the shoreline is limited to a very few locations; there is no publicly owned access north of the Big Sur River. Thus, the-most popular attraction is the recreational motoring experience,'en- hanced by.brief stops at se'enic,vistas, r'estaurantsand craft,galleries along the highway. The U.S. Forest Service manages much of the back country, part of which is pro- tected as the Ventana Wilderness. Between the ocean and Los Padres National -349- I Forest, the prime scenic corridor and day-use area of Highway 1, development conflicts are most acute. Although the existing Monterey County Coast Master Plan calls for the maintenance of scenic quality through "low-density" residen- tial zoning, its 213- to 10-acre minimums could permit as many as,10,000 01 residences to be built within a 100-square mile coastal watershed area. The major constraint on future development is the capacity of Highway 1. Expan- sion of the road would be very costly and cause severe environmental impacts* Peak weekend traffic is already congested, causing competition between residen- tial and recreational'userso Because of inadequate public facilities, the.lack of a public information center, and no management agency with the ability to control visitor impact, the recreational promise of the Big Sur coast is iinful- filled; problems of trespass, litter, vandalism, and overuse often go unchecked. Disastrous forest fires and mud slides in 1970 and 1972 underline the need for improved, unified resource protection. Nevertheless, because of outstanding scenic qualities, unspoiled beaches, old-growth redwood forests, and central location within a few hours drive of both the State's major population centerst the Big Sur coast represents one of the nation!s best remaining preservation opportunities. Special Study Area-Carmel River to Cambria: A closed system, the 90-mile stretch of Highway 1 along the Big Sur Coast must, by tradition, use, and policy of the Coastal Plariserve several major purposes. A capacity budget for recrea- tional and residential use and preservation measures for the scenic landscape will be important parts of the study. Coordination between the U.S. Forest Ser- vice, Monterey and San Luis. Obispo Countiest the State of California, and Big Sur property owners will be essential. The study will consider the application of Plan policies that could W improve service facilities within existing-communities such as Big Sur Village, Lucia, Gorda, Ragged Point, and San Simeon Acres; (2) create alternative development patterns, particularly the clustering of permitted uses outside the viewshed; (3) reduce ultimate residential buildup through substantial acquisitions of land (or development rights) by State or Federal agencies; (4) initiate management actions, such as parking restrictions, to improve the quality of the recreational experience while protecting sensitive areas from overuse; (5) provide Yosemite- style public transportation, the use of which could be encouraged through a modest toll on private recreational vehicles; and (6) convert the existing high- way to a Big Sur State Parkway in order to provide a practical means.of controlling automobile access, providing visitor information, improving fire protection, and fund acquisitions and improvements. SUBREGION 8: STATE TIDELANDS OF CENTRAL COAST REGION The Central Coast Region encompasses approximately 600 square miles of offshore waters under State jurisdiction. The narrow continental shelf is penetrated by several submarine.canyons, including the mile-deep Monterey Canyon off Moss Landing. She ltered waters are rare outside the 25.@mile-wide Monterey Bay; of four harbors in the region, two were dredged from wetlands and two are protected by large breakwaters. Elkhorn Slough, whose mouth forms Moss Landing Harbor, is a highly productive marine habitat and home of two endangered bird species. Many important marine biological communities thrive here: the California sea otter, once nearly extinct, now ranges north of its official refuge well into Monterey Bay; the northern seal breeds on AEo Nuevo Island within a State reserve; regulations protect the numerous offshore rocks-for sea lions'-and seals that "haul out" and birds that breed there. Valu@ble kelp beds support fishy inver-' tebrates, and otters. Rich tide PoOls-ar'e-located along much of the rocky shore- line; outstanding examples at Point Lobos and Moss Beach are preserved and provide recreational and educational opportunities. Commercial use of marine resources is an important component of the regional economy and includes kelp harvesting, mariculture, commercial fishing, and sea-, water magnesium extraction. The Coastal Plan supports coastal-dependent activities such as these, and requires locations and levels of extraction that have minimal.impact on biologic systems,@scenic and-recreational resources* Popular recreational uses of the-coastal waters include diting in Carmel Bay, surfing.at Steamer Lane, and sailing on Monterey Bay.,,.Swimming (in warm waters at Santa Cruz), surfing and diving.at many other locationsi, and fishing off piers, breakwater� and boats are also attractive features of this subregion.' Encouragement of recreational use whichidoes not harm the environment is an im- portant policy of the Plan; locating areas,for recreational boating expansion and access and onshore facilities (restrooms) for surfers and divers will be important concerns of the-subregional.planning effort. Protection and improvement of wat er quality are vital to all uses of coastal waters, and Coastal Plan policies deal with agricultural, toxic, thermal, sewage, and other discharges. Ne.arshore and poorly treated sewage discharges (as at Pillar Point, Soquel Point, and Point Pinos) pose severe aesthetic and biologic problems, and must be phased out. Scientific research in'marine biology and oceanography, as conducted by Hopkins Marine Station, U.C.-Santa Cruz, Moss Landing Marine Labs, U.S, Navy Postgraduate School, and the -California Department of Fish and Game at Granite Canyoni is strongly supported by the Plan. The data.provided by these studies will be especially valuable for the establishment of effective resource management strategies. Special'Study Area-Monterey Bay: The bay's currents, marine invertebrates, sand-supply systems and mineral resources are the subject of much study* Encouraging the development of information, this special study will attempt to set policy guidelines for particular problem areas: open-water sewage di scharg6s from local or regional sources, expansion or restriction of the sea otter habitat, assessment of harbor expansion needs on a baywide basis,, development of new port facilities for PG&E. increasing recreational access to special iinder- water areas', and establishment of scenic protection measures for the highly visiblebay shoreline. South Central Coast The South Central Coast Region extends som'e 250 miles from San Luis Obispo County to Ventura County. The Region's diversity is seen in.a dramatically changing landscape of alternating stoeply-61oping mountain rang .es to broad alluvial plains and rollih. g foothills. In'some part's of the1egion it -is sti:ll possible to see an uninterrupted-view of oceanlrbeach, bluff, grassy t.erracd')and hillside from one plate, or-to move through such landscape for'many .miles. Attractive coastal communities enhance the,experience of the natural landcape ofthis Region by' providing necessary:se'rvalces and rich 6ultutal-value6. But these natural and -351- manmade coastal resources are in danger, as elsewhere in the coastal zonev of being lost to development. The continued existence of clean water and air, of areas rich in marine life and wildlife, offshore reefs and nesting sites, unusual plant communities, rocky and sandy beaches, and sand dunes that have not been altered by development is an asset to the entire State as well as the three counties of San Luis Obispo, Santa Barbara, and Ventura. SUBREGION 1: SAN SIMEON-CAMBRIA This is the physical transition between Big Sur and the oak woodland hillsides, terraces, and bluffs typical of San Luis Obispo County. From Ragged Point South, the coastal terrace widensy the bluffs become lower, and the hills are softer, covered with grass and oaks instead of brush. Travelers who have been on 45 miles of winding road are greeted by the flashing 50-foot signs of San Simeon Acres, motels, restaurantsy and gas stations. South of San Simeon the coastal highway goes through Cambria, the remnants of the Cambria Pine forest, and continues south behind the first row of hills, past grassy hillsides punctuated by clumps of trees and a few weathered barns. At the southern edge of the subregion the highway emerges again at the mouth of a small creek and runs east and south along .the inland edge of an open terrace, from which it is possible to see the entire community of Cayucos lying ahead across the water, and on a clear day, Morro Rock. The open character of this section of coastline is recognized by the Coastal Plan and in county zoning and open space plans, but not in adopted general plans-which would allow a community of 70POOO on the Hearst Ranch. Current agricultural uses fit into the aesthetic character of the region. Public comments from citizens of Cambria refer to the streams and hillsides; they worry about the continued existence of the pine forestq and about loss of views from homes, as increasingly large houses are built on the shoreline. Local realtors have several hundl-ed letters from owners of 25-foot lots (Cwnbria was subdivided in the 1920s, but only a third of the lots have been built) saying they have dreamed of buildingfor years but can- not afford adjacent lots. Certain lots on steep hillsides that now form the wooded back drop of the town, in stream bdds, or would be unbuildable if trees are to be saved; others are on the bluffs and, in the long run, will require retaining walls and riprap on the beaches. Small anadromous fish streams and numerous tiny marshes, canyons rich in biological abundance, and small but frequent and varied habitats for land species are common and important natural resources. This subregion provides grazing for beef cattle with early calves. Offshore are habitats for abalone, lobsters, and other delicate nearshore species and their predators, including the sea otter. Offshore kelp beds sustain fisheries and reflect the relatively undisturbed and delicate marine environment of the subregion as well as the absence of outfalls. Public comment in the subregion has strongly supported urban limit lines, preservation of agri- cultural uses, protection of the existing high water quality of the ocean and streams, restrictions on gravel mining, and prohibition of electrical generating plants. San Simeon State Park attracted 1.2 million visitors during 1974, 7,600 of whom stayed overnight at the State Beach. The beaches of the subregion are cold and rocky and used for walking, photography, and fishing. Highway turnouts and State Parks currently provide over 300 day-use spaces, which are used to capacity during the warmer months. Some bluff-front lots in Cambria are State-owned, providing small parks with wild flowers and natural bluffs. South of Cambria the only coastal -352- access and view of an.untouched coastal terrace are provided by the Air Force. Base parking lot. Second homes and retirement homes provide limited access but they do not conflict with beach walks. SUBREGION.2- ESTEROMORRO BAY From Point Estero to Point Buchon the central California coastline curves inland to meet two stream valleys that join in Morro Bay,, one of the largest estuaries .on the coast. South of the Bay, high sand dunes.were.trapped in Pleistocene times by the natural groin at Point Buchon and are known now as the Baywood Park-Los Osos area. The Irish Hills form a barrier between the northern county coast and the subregions to the south. Three distinct coastal communities are found along the shore. Cayucos, formerly an agricultural v il lage, is still small enoughto encom- pass'entirely on foot, or to see from a distance.. Morro Bay is a tourist town that was built up around fishing. Los Osos-Baywood Park, originally an 1890s-' subdivisionsold to midwesterners by magazine.advertisements in the 1920s, has- experienced a recent building boom. Highway 1 goes southeast from Point Estero along open agricultural coastal- terraces, bends around Cayucos, and,then runs parallel to Atascadero Beach.. At Morro Bay.it turns inland and follows the line of the Morros through agricultural and institutional land to the'City of San Luis Obispo. To stay on the coastlinet a traveler drives through the City of Morro Bay, along the edge of Morro Bay through the State Park, and follows suburban roads through Baywood-Los Osos. Montana de Oro State Park occupies 7,000 acres at the end of public coastal roads south of Los Osos near Point Buchon. The most obvious natural resource is the full, rich, and complex system of@uplarid streams and valleys, marshv bay and nearshore' reefs that provide nesting and,feeding for thousands of fish and migratory birds and marine mammals. PE@lagic birds fish i n Estero Bay and migratory geese land and herons nest in Morro Bay'. Shore birdsp. hawkst and falcons nest near'the Bay and prey on rodents and other birds. The richness of birdlife is an indication of the quantity of food available in the marshes and offshore in Estero Bay.. People take advantage of the clams and oysters in the Bay mud and of the variety and number of fish in Morro and Estero Bays that feed offshore on plankton orother fish. Over 300 fishing boats of various sizes operate out of Morro Bay. Landings of fish caught in nearshore areas in Morro Bay in 1973 were worth $1.2 million. Other natural resources include agricultural landq excellent quality groundwater, rare dune plants, and unique combinations of scrub and chaparral that shelter the rem * *_ng population of the local endan ain3 _gered species@ the kangaroo rat. Existing coastal'communities provide.among other things,relatiVely smog-free re- tirement spots with small populations and distinct boundaries. Such communities are small enough to have what respondents to a Re ional Commission questionnaire 91 called a.1'small town'atmos-oherell-'.a slow pace and enough information about small events to make it a safe place to be sick and old''(in a way Los,Angeles is not) and an economical place.. in. which to :retire. . In'these communities a fewifeet of height 6n'a house, a particular tree.9 aview of a small promontory, or other unmappable features of the physical environment matter to a great many people. At the same time community residents expec ,t government to be close, informal, and f lexible', and not to unne'c'es 6arily regulate what . a. person may - do with. privately- owned land. -353- In recent years abalone has ceased to be a viable commercial fishery in the sub- region; in addition, the increasing siltation of the estuary and the inexplicable deaths of oysters have increased concern for the vulnerability of this subregion's natural resource system. Within the next year major decisions will be made on converting existing small oil terminals to (1) amajor supertanker facility to handle immediately 520,000 bbls/day, with an eventual capacity of 1 million bbls;- and (2) a major fuel oil terminal for the power plant. The industrialization of the shoreline and the ocean in the area could result in major changes in ambient air quality, water pollution levels, and nwnbers and,kinds of species found. SUBREGION-3: SAN LUIS BAY/PISMO DUNES From Port San Luis southward extends a string of small towns--@-Avila Beach, Pismo Beachp Grover City and Oceano--that have distinct social and geographic indentities. Highway 101 emerges from San Luis Obispo valley at Pismo Beach only to leave the coastline south of town. The presence of this access and sandy beaches,has made Avila and Pismo Beach "the beach" for San Luis Obispo County and for communities as far east as Fresno, as well as northern Santa Barbara County. San Luis Obispo Creek has had its estuary periodically blocked and dredged, but south of Pismo Beach a pattern of agricultural plains, small creeks, wetlands, and sand dunes begins that continues through the Nipomo dunes and into Santa Barbara County. The Pismo clam-is a valuable and increasingly scarce food re- source. At Pirates Cove and Pismo Beach, there are 40- to 80-foot bluffs. Avila is a 'small commercial fishing village, All the coastal communities provide inexpensive homes and overnight accommodations. Pismo Beach retains some of the original home-and-small town feeling. Pismo Beach, Oceano, and Grover City provide together the only widely used vehicular beach in the State. At-Pirates Cove beach, one drives out a county road, parks-on the bluff top, and scrambles down precipitous narrow paths to the beach. In parts of Shell Beach, tiny paths cross subdivided lots along the brink of the bluffs. The Dinosaur Caves are surrounded by foot paths. Automobilesq dune buggies, and campers drive south from Grover City to enter the dunes. In all cases, access is uncontrolled, primitive, great fun, unsafe, and possibly damaging to the land, vegetation, and animals. Construction of houses and motels, the conversion of the dunes portion of Pismo State Park, and more wear and tear*caused by the increase in the numbers of visitors will*restrict the form and perhaps the amount of access over the next few years. A lightly used harbor at Port San Luis -little motels, small houses, an amusement park, and,the State Park-provide the physical basis for access by people of a wide range of incomes. Between Pismo and Nipomo Dunes are 15 miles of sandy beach and dune coastline essentially dedicated to recreatiofi.and limited industrial use. The tall and dramatic dunes are singled out in'many reports for their statewide and even national interest and unique vegetation. Historically, the beach south of Pismo has been used for camping and clamming. The advent of off-road vehicles and the increase in the popularity of recreational vehicles ovdr the last 10 years heightened con- flicts.between preservation and recreational use. State ownership of some of the dunes has brought use fees and restrictions on camping, reducing the numbers of sites available. -354- Behind the dunes, sources,of,freshwater marshes.remain relatively untouched, "While they are listed..for preservation in every official conservation document, proposals under discussion for this area include increased vehicular access.to.the Dune, Lakes and increased development around them. Other resources of the subregion include prime agricultural land, stabilized dunes planted with eucalyptus trees, and grazing land. In this.subregion, Highway 1 is winding and rural on Nipomo Mesa; -plans to straighten it. are under consideration. SUBREGION 4: NORTH SANTA BARBARA COUNTY The northern part of Santa Barbara County is physiographically part of San Luis Obispo County. DuneLcomplexes continue south to the natural groin,at Point Arguello. Rolling hills and a coastal terrace and bluffs continue east of Point Conception to the Santa Barbara area. Public access is available at only three points (Point Sal and Surf and Jalama Beaches) between Guadalupe,and,Gavioltal.. a distance of about 60 miles. Presently, the use of the Guadalupe Dunes, Vandenburg, and Bixby and.Hollister Ranch properties is low intensity, resulting in the presence of a.large variety of plant and animal species. Kelp beds off the coast just east of Point Conception provide good fishing for Santa Barbara's commercial fishing fleet. Fishing is restricted off Vandenberg. Surfing at Hollister Ranch is internationally known. Three large properties pro- vide the longes -t stretch of undeveloped coastline in Central.California and an unprecedented opportunity for preservation with controlled access and a single coastal trail. There has been some discussion of an LNG facilityat Cojq Bay, on, land where Southern California Edison once planned a. nuclear power plant. The Regional Commission:has voted-to keep the open,quality of thi *s area, declaring that if a large facility must unavoidably be located where it will,mar the view, money to acquire the same amount of land of equivalent view quality in the same county should be provided. Commission policy also@is to clust ,er industrial facili- ties-and require local government approval-of.any privately owned.coastal7dependent facility. SUBREGION 5: SOUTH SANTA BARBARA COUNTY/GAVIOTA-RINCON Geographically, this subregion contains many urbanized areas, starting in Ellwood on the west and stretching through Carpinteria to Rincon Creek on the east. High- way- 101 is the major and only transportation corridor and serves local, cas_well as intra-st 'ate traffic, I Win' ere the "Coastal plain widens. in. Goleta, development has. spread, out over. agricultural.. lahd.,. leaving scattered parc .els.. The Santa Barbara' metropolitan Area extends, east to.l..Rinc.on Mountain,, enco mpas6in'g,Goletai, Santa Barbar@ and Carpinteria, an d north up,to,th6 foothills. of the' Santa Ynez. m ouh-tains... There ar'e:[email protected]@[email protected] the Santa Barbara coast .that support fish. Small coastal streams support'-some st- eelhead trout.* At the mo'uth 'of each. little stream is a small lagoony some large enough to support a pair of white-tailed kites,-some not.. The foothills are.,covered with abundant chaparral. The.larger estuariesare in the. all'i populated v pys,and these.hAye suffered from siltation and -355-, I pollution from storm drain runoff, conversion of uplands to tree crops, and removal of vegetation cover. The Goleta Slough has an airport in itp what was once the Santa Barbara estuary has warehouses and sewage treatment plants, and El Estero of Carpinteria is kept biologically alive by periodic dredging. In spite of their 01 endangered stateg these estuaries supply habitat to a surprising number of birds. The subregion's water supply is from local aquifers and reservoirs in the nearby Santa Ynez Mountains. Development is presently very near or over the safe yield level of local aquifers, and plans under discussion include groundwater mining and importation from the State Water Project. Local agricultural land has been in lemons and avocados as long as 50 years. As flatland-orchards agep they are replaced by flowersq greenhouses, or housingy while new tree crops are being planted on hillsides denuded for the purpose. The air, until possible construction of refineries, will remain relatively clean. SUBREGION 6: RINCON Petroleum processing, surfingt and beach cottages have been the traditional uses on the narrow terraces at the foot of Rincon Mountain in Ventura County. The subregion functions as a transportation corridor between Los Angeles and Santa Barbara. Several clusters of cottages are found where the terrace widens. Oil processing takes place alongside the highway and out of sight on adjacent terraces. Pressures exist to intensify use; plans are being discussed to build a dump in a coastal canyon and to convert agricultural land to condominiums. The surfing beaches of the subregion are well known. Currently the brush on the hilltops is being cleared for avocados, resulting in some increased erosion. There are several small parcels of agricultural land that afford a textural con- trast with the chaparral. Highway construction on the limited beach and into the water has caused loss of sand from some beaches. The current oil separation plants serve onshore and offshore o-11 production facilities. The old coast highway provides access, sports for weekend campers, and a possible site for a coastal trail. The beach cottages are slowly being replaced by large housesq but the clustering that now exists minimizes their im- pact. SUBREGION 7: VENTURA-OXNARD The Ventura and Santa Clara Rivers have cut wide floodplains through the coastal mountains. These plains provide a statewide agricultural resource, as well as relatively cheap building sites. On the Oxnard Plain there is an immediate and difficult conflict between the Coastal Plan policy of preserving prime agricultural soils and local plans for development, which include the expansion of neighborhoods with self-contained schools and parks. Subregional stLudy on a parcel-by-parcel basis will be necessary to carry out agricultural preservation policies in this subregion. The Ventura and Santa Clara River estuaries, Mugu Lagoon, and McGrath Lake are jeopardized by effluent, fertilizers, and siltation. This area is no longer self- 01 sufficient in terms of water; the Calleguas District imports water from the Los Angeles 'area. Air pollution levels are the highest in the Region. The most important statewide resource is the prime soil on the Oxnard Plain. Loss of sand from rivers and interruption of littoral drift has contributed to the loss of beachrront houses on Oxnard'Shores. Even with sand loss and,previous bull- dozing of.dunesq there 'remains a pattern of.broad sandy beaches, low dunes, and freshwater lagoons. The subregion's economic base-agriculturev oil, and the military-is reflected in the design of the cities. -They do not focus, except for parts of Venturat. their city and its activities on the coastline. Five different and distinct beach neighborhoods are identified in the South Central Region's Intensity of Development Element. The relation of each to the. coastline is different but they are the only neighborhoods that relate directly to the ocean. Three major intensive uses of the coastline are presently under discussion: Port Hueneme beachfront redevelopment, the Ventura Marina, and an LNG terminal. In all of them desire for continued public use of the coastline will be a major issue. Access to beaches in the subregion is good, but support facilities and parking are lacking. Access to the marinas, canals, and ports of the.subregion is incon- sistent. The proximity to Los Angeles and Thousand Oaks and the large population of Oxnard itself will make it necessary to plan for fairly heavy use of the beaches. SUBREGION 8: POINT MUGU SOUTH South'of Point Mugui the Santa Monica Mountains come down to the edge of the ocean, leaving an occasional beach at the mouth of a canyon. This 'subregion functions as a transportation corridor and as the outermost beach area for'Los Angeles. Point,Mugu State Park provides both camping and day use in an area relativ'ely unchanged. Highway turnouts are heavily used by fishermen and over-nighters. There are some beach dwellings, but the steep hillsides and the narrowness of the coastal shelf, most of which is occupied by the highway, prevent much development. The area is designated as open space in the Coastal Plan. The'Regioin@al-Water Quality'Contr'ol Board has designated the offshore water a.s@an-., Area of Special Biological Significance.' Tho-hill .s areIsteep,' often unbuildable, and provide open space and wildlife habitat. Landslides often occur whenever the chaparral is removed by fire or grading. Camping on turnouts is available free to people of a wide range'of income.: The sub;- region is a natural place to intensify day-use opportunities; possibilities include buses to Mugu, hostels, fishing piers, and trails in the Santa Monica Mountains. SU BREG ION 9: CHAN N EL AN D CHAN N EL ISLAN DS The Sant'a Barbara Channel-stretches@from,Point Conception to Point Mugu, from the South Santa Barbara coast,tothe Channel Islands.@ Th6 wide stretch,of sea-within, the channel is relatively calm.and easily crossed by small boats,.encouraging -357- intensive use by pleasure boats and fishermen. Numerous reefs and points provide habitat for shallow water species. Conflict among fishermen, recreatiohists, and the oil industry over the use' of the channel and the islands has be.en going on for years and has recently intensified. Abalone and sea bass are found near the shore'in rocky crevices in the sea bottom. Barracuda and other migratory fish inhabit the'kelp beds east of Point Conception. Where outfalls and storm water runoff have not polluted the nearshore areas, marine life is particularly abundant. The Channel Islands provide s ome of the remaining native California plant habitats, and some of the remaining openg uncultivated land in California that is closely related to the sea. Marine birds and animals raise their young on the islands; unique and ancient species of_plants have persisted there. 'Abalone grow in the tide pools. The bluffs and relatively barren slopes provide a sequence of linear forms visible from the sea. Miles of open shoreline offer a sense of isolation that is not available elsewhere on the California coast. From the mainland, the islands appear or fade as the weather changes, making a view of the ocean a potential view of the islands as well. Access to the channel and the islands is by boat. During the summer months small boats cruise the channel and anchor in island coves, and sportfishing boats offer day trips. Only Anacapa National Monument permits onshore use. The number of visitors may increase with the expansion of marinas on the mainland but at the same time, should be fairly easy to control at the three marinas. The Regional Commiss ion has adopted policies to preserve the islands, allowing development only for low-intensity recreational use. Limiting the number of visitors in the future may be necessary to preserve the islands, like the Sierras, as a private experience. The amount of oil installations permitted in the channel and the number and kind of outfalls will affect the area of the channel usable for recreational boating or fishing, and the number of productive fishing grounds. At the moment fishing grounds in the channel are on the Ventura flats immediately offshore west of Goleta, and around the islands--where there is little onshore development of ary kind. Marine structures, even underwater completions, interfere with commercial fishing operations for a considerable distance near them, depending on tidal currents. The Santa Barbara oil spill of,1969 killed animals at the sea lion rookery and many pelagic birds, Conflict surrounding present oil drilling reflects community antici- pation of.the effects of more spills and.public dislike of oil on the beaches. South Coast The South Coast Region-Los Angeles and Orange Counties-is essentially urbanized, but a few key areas still remain in a natural or nearly natural state. These remaining cliffs, hills, mountains, estuaries,and wetlands create dramatic con- trasts to the Region's urban character.' Traveling along the coast by land, air, or sea, one is vividly aware of waterfront urban areas, punctuated by natural preserves. This considerable variation in topography and character of physical development is matched-by substantial variations in social structure, economic and financial well-being., land ownership patterns, and jurisdictional control. SUBREGION 1: MALIBU This subregion extends some 25-miles from the Ventura County line to Sunset Boulevard and includesunincorporated Los Angeles County territory and a small section of the City of Los Angeles. The rugged Santa Monica Mountain backdrop is cut by deep narrow canyons perpendicular to the coast. -The Malibu Creek watershed is the largest watershed in the subregion, draining some 67,000 acres. It terminates at the Malibu estuarine lagoon. This lagoon and many of the canyons are prime habitat for,birds and,other wildlife. Fire,. floods,and land- slides periodically threaten development in these areas. The marine environment of this subregion from Malibu Point westward to the Ventura-Los Angeles'County line is essentially in a natural state. Kelp beds extend intermittently in this area, providing habitat for many species of sea life. The marine environment from Malibu Point eastward to Topanga Canyon has suffered some biological impairment. Kelp beds have disapeared, but reef and rocky zones still provide habitat for many fish species. Broad sandy beaches at Leo Carrillo, Zuma, Westward,and-Surfrider beaches provide excellent sun bathing and swimming opportunities for the public. Access to these beaches and the entire Malibu Coast is provided by Pacific Coast Highway. Its road capacity is exceeded regularly on summer weekends as recrea'- tionists attempt to reach the beach or enjoy a scenic drive.@ Newly opened Dume-Kanan Road, Malibu Canyon Road,@Encinal Canyon Road, and Topanga Canyon Road link the San Fernando Valley with the beaches. The Civic Center area, located at the mouth of Malibu Canyon, is the major urban node. Canyon residential development occurs most notably in Topanga, Tuna, and Malibu Canyons. Both commercial and residential strip development flank Paci- fic Coast Highway from Point Dume to Sunset Boulevard. Residential development seaward of Pacific Coast Highway has blocked.access along some 13 miles. of the Malibu Coast. Some of thepolicies gpplying.specifically to the.area or especially appropriate for implementation here include the creation of a marine park and reserve from the Ventura-Los Angeles County line to Malibu Point. Planning for. such a park should be coordinated,with the.Santa Monica Mountain Park,pl .ans. Canyon recreation trails to co nnect upland parks with beach areas should be supported. These trails could serve as spurs.off an upland coastal trail,,and should be included in a State coastal trails.system. A coastal scenic.rou@e should be established with special directional signs,vista p9ints.,.and rest stops... To increase beach access, a State agency should be given the authority to bring suit on behalf. of the public to enforce existing access rights, and.,additional.. easements for both physical and visual access,should be acquired. Natural areas.of..regional or,statewid.e,significance should.al6o be protected..' Ad'equate. acreages should be.set aside to..sustain the genetic.-health.of the flora and fauna. SUBREGION 2: SANTA MONICA This subregion is bounded by Sunset Boulevard and-the Ballona Creek-Cha,nnel and includes the City of Santa.Mon.ica and its neighborhood-.of Ocean Park, the City of-Los Angeles, including the communiti.es,of Pacific Palisades,.Venice, and Palms-Mar Vista, Culver City, and the unincorporated community of Marina del Rey. Development in this subregion varies from single family residences on the unstable hills of Pacific Palisades to concentrations of high-density and high-rise residential and commerical uses along the bluffs in Santa Monica and in the vicinity of Marina del Rey.. Generally, residential densities are high in the strip of land directly abutting the coast. The marine environment for the entire Santa Monica Bay has suffered signifi- cant biological impairment. Both domestic and industrial wastes have adversely affected water quality throughout the bay. The Ballona. Creek Tidal System, once an extensive wetland, has been artificially modified to accommodate the canal community of Venice and the more recent development of Marina del Rey. Nevertheless, the marina, good surf, wide beaches, and fishing piers provide outstanding ocean-oriented recreation of regional significance. Inland access is provided by the Santa Monica Freeway. South Santa Monica and North Venice seek to regain and restore the character they once knew as pleasant resort villages beside the sea. The high level of recent urba n development has made parking and access to the shoreline difficult. Old oil derricks, utility lines, fences, and walls of structures that block views of the ocean and marina detract from the scenic qualities of the subregion. The old Venice area, including the Canal and south beach areas of Santa Monica, should be protected and preserved. Preservation and, where necessary, restora- tion of remaining older structures characteristic of Venice and Ocean Park beach front should be encouraged. Additionally, an interagency study should be carried out to determine the potential for wetland restoration in the Ballona Creek tidal system. To increase coastal recreation and viewing opportunities, the bicycle trail alongthe beach should be completed. Wintertime use plans should be prepared to efficiently utilize beach resources. SUBREGION 3: LAX-EL SEGUNDO This subregion extends from the Ballona Creek Channel to the southerly boundary of El Segundo. It includes the City of El Segundo, portions of the City of Los Angeles, including the communities of Playa del Rey and Westchester, I Inglewood, Hawthorne, and unincorporated Los Angeles County territory. It is characterized by intensive commercial and industrial activities. Los Angeles International Airport, the Hyperion Sewage Treatment Plant, the Scattergood Power Plant, the Southern California Edison Power Plant, and the Standard Oil Refinery dominate the El Segundo nearshore. The marine environment has suffered significant biological impairment resulting primarily from the discharge of waste water and sludge from the Hyperion Plant. The subregion is heavily urbanized and includes high rise hotels, offices, and intense commercial development in the vicinity of the Los Angeles Airport. However, major undeveloped open space remains adjacent to Ballona Creek with potential for wetland restoration. Wide sandy beaches are heavily used by inland public. Dockweiler Beach is especially popular with minorities. The Airport Sand Dunes, the major surviving dune formation in the South Coast Region, lies between the airport proper and Dockweiler Beach. The expansion and modification of industrial and commercial facilities is being planned. Pressures also exist for offshore oil development. The neigh- boring communities are facing the problems of open space preservation, traffic congestion, noise, smoke,and odors due to the intensification of"land use. _360- Some policies applying specifically to thi's area or appropriate for application here include maintenance of adequate buffers between incompatible uses and the provision:of recreational uses in these buffer areas; protection and restora- tion of the Airport Dunes for habitat, educational purposest and compatible recreational uses. The recycling of non-coastal-related industries as they become 'obsolete t@omore coastal-dependent land uses shall be considered,. No new non .. ;coastal-related. industry shall be permitted in the nearshore area. To prevent erosion and to increase -public visualactess, the acquisition of bluffs is recommended as a long-range@objective. SUBREGION 4: SOUTH BAY This subregion extends from the northern limit of El Porto to the southerly limit of Torrance. It includes the unincorporated community of El Porto, the Cities of Manhattan Beach, Hermosa Beach, Redondo Beach, Torrance, Lawndale, and portions of Hawthorne and Gardena. The sea and the widesandy beaches are the only remaining natural elements in this area. Coastal-related. com- mercial activities attract intensive public use. El Porto, Manhattan Beach, and Hermosa Beach are 'old beach communities with typical small lot subdivision. Along the Redondo Beach shoreline, straight-lined medium rise apartments are characteristic.. Along the shoreline, King Harbour, the'commercial pier, and the power generating plant are visually dominant. Strip commercial develop- ment flanks the north-south arterials and includes several "downtown" commercial districts. Inadequate public parking results in traffic and parking problems during summer months. High-rise development is occurring in the subregion. Single-family development is recycling to higher densities. More tourist commercial development and redevelopment is proposed for the King Harbour area. Development pressures in Torrance may adversely affect Madrona Marsh, an important,freshwater habitat. Some of the policies applying specifically to this area or 4ppropriate for application here call1for encouragement-of private groups and property owners to participate and contribute to the beautification and enhancement of the. visual character of these coastal communities; replacing non-coastal-related industries, as they become obsolete, with more coabtal-dependent land use; and support of the 'City of Torrance proposal for pre serving Madrona Marsh. SUBREGION 5: RALOS VERDES, This subregion includes the City of Palos.Verdes Estates, Rancho Palos Verdes, Rolling Hills Estates, Rolling Hills,and portions oflunincorporated Los Angeles County territory. The Palos Verdes Peninsula, with its hills, cliffs, and rocky shorelinelhas significant open space, some agricultural uses,. coastal sage scrub.and chaparral habitat.intertwin,ed with development,.which has re- sulted in very pleasant residential communities. Harmony without monotony has been a goal of these communities. The marine environment, however, has suffered significant biological impairment; minor kelp beds in poor health.-, remain. High-value@-land is creating pres@sure@for increased urbanization and-high-. density uses.. There is a.demand for public@access:@to the bluffs at the-edge-of the water and for preservation of scenic resources including the rocky shore. Some of the policies applying specifically to this area or appropriate for application here include protection of bluffs, rocky beaches, and important areas of-wildlife habitat including coastal sage scrub, chaparral,and grass-@ 00 lands; preservation of prime agricultural land and the minimization of conver- sion of other agricultural lands. Acquisition-of an easement-along the bluffs at the edge of the water and on federal land to increase the public's access to the coastal scenic experience,-and for hiking trails, equestrian trails and bicycle paths, is also recommended. ' Public owned lands not needed for originally planned uses should be used for.pu .blic open space and recreation, for the preservation of natural habitats, or leased for agricultural purposes. Ridge and canyon development should be discouraged. SUBREGION 6: HARBOR AREA This subregion includes the communities.of San Pedro, Wilmington, Harbor City, in the City of Los Angeles, the cities of Lomita and Carson, the Ports of Los Angeles and Long Beach, and unincorporated Los Angeles County territory. Housing development of all types covers the hills of San Pedro and.along with undistinguished commercial areas overlooks a major urban renewal project, in- tensive harbor activities, oil extraction sites,. a freeway, heavy industries, and major public utility plants (sewer and power). Military reservations provide magnificent veiws and open space adjacent to the ocean in the focus of highly urbanized and industrialized areas. A breakwater approximately eight miles long protects the twin harbor activities. Dredging and filling of the harbor area has had significant environmental impacts on-the area's marine environment. Planned harbor development includes major filling and dredging to accommo date increased shipping traffic and related development, and.the construction of small-craft marina facilities at Cabrillo Beach and Fish Harbor. In the resi- 'dential areas there is a trend to recycle from low-and medium-income housing to costlier multiple-family developments, resulting in the relocation of a portion of the resident population. Some policies applying specifically or,appropriate for' application-here include providing increased public access,to the shoreline and harbor area by connecting significant vista.points, scenic areas, interesting harbor activities, and. Alamitos Bay by bike routes and walkways for recreational and educational purposes; providing landscaping to allow visual relief within the harbor area and adequate buffer between residential and industrial structures; enhancing and protecting the unique characteristics of the San Pedro.area byprohibiting development on natural ridges and in canyons and by retaining slopes of over 35 per cent as open space; assuring that the locations-of structures do not eliminate or reduce views from the remaining vista points; preserving and possibly restoring remaining natural areas; accommodating only essential port development through improvement to existing port complexes; requiring coordi- nated general plans to guide future development with emphasis on environmental protection; encouraging rail service; and accommodating maritime military activities. SUBREGION 7: LONG BEACH This subregion is bounded by the port of Long Beach and the Los Angeles River on the west and the Los Angeles/Orange County line on the east and in- -362- cludes the Cities of Long Beach and Signal,Hill, and sections of Lakewood, Hawaiian Gardens, and unincorporated Los Angeles County territory. The Long. 16 Beach city profile varies from single-family to high-rise development. A great diversity in lifestyle exists in this city. Downtown structures are high rise,,medium rise',and massive--.:-a mixture of old.and new. Gradual rede- velopment is changing the city's character as old buildings are replaced by new office, residential, and civic structures. The eastern part of Long Beach to Alamitos Bay is generally stable and well maintained.. However, unique single-family development along the shore,is-being-replaced by multistoried@ high-density development. The Queen Mary, the arena, Belmont Pier, and the Long Beach,Marina attract recreationists from inland and surrounding cities. The City of Long Beach is plan ning redevelopment projects for the downtown area', coastal areas,and industrial areas. Pressures exist for a majormarina at Pier J, tourist commercial complexes, highrises in the vicinit .y of the central business district, and major development on vacant land in the vicinity of Alamitos Bay. Some policies applying to this subregion or especially appropriate"for imple- mentation here include restoration and enhancement of historical character as a beach community, and the enhancement of view points and view corridors by appropriate acquisition. Medium-and high-rise.buildings on view.site.s should be designed to maintain ground-level view access between'or through the:- structures and public access should be provided to appropriate vantage points in upper levels. Development in the Naples and Belmont Shores.areas should be regulat ed in order to enhance coastal views, public acd*ess to the beach and the general lifestyle and character.of'these areas. Impr ovement of the' mass transit system is also recommended. The Pier J Marina proposal appears to have the least potential for adverse environmental impact of all proposals for new marinas in the South Coast Region. SUBREGION.& ISLANDS The offshore islands of San Clemente and Santa-Catalina make-up this subregion. San Clemente,the more remote of the two islands, is currently.restricted to. military use. Unique natural habitats flourish on San Clemente,Island, and the marine life offshore is in a healthy state. The nearshore island of Santa Catalina 'remains almost entirely open and un@ developed except@forthe City of.Avalon.and a small developed.enclave..at the Isthmus. As a result of a recently signed agreement between the Santa Cata- lina Island Company,.and the County of Los Angeles,!. 41,000 acres of company property.vill be maintained for conservation,',soil reclamation, and recreation and education uses. ;Additionally,-a-soon-to-be-completed agreement,between.., Santa Catalina.Island.Company and the,Santa Catalina Conservancy-wil1:provide for'.transfer of open spac,e easement lands,.Whitels'Landingi, and.Parson's.; Landing@ to the Conservancy. Once the,agreement is effected,.these.lands,-will be conserved in perpetuity At present, camping*and picnicking are permitted at many of the coves which indent the shoreline.and at designated locations in the interior., @Skin and SCUBA.diving are,popular underwater@recreation activities@most-frequently carried out from charter boats,,,moored offshore. -363-. The City of Avalon is the major entrance point and destination of visitors crossing from the mainland, either by boat or airplane. It is also the major residential and commercial area providing a variety of tourist commercial, 01 cultural, and recreational facilities. Residential development is proceeding slowly and will be contained by the extent of the open space easement, and the capacity to expand existing utilities and water supply. Some policies applying either specifically to this area or appropriate for application here include the prohibition of medium-and high-rise development. Wherever construction does occur, it should be designed to be compatible with the existing character of Avalon and other settlements on the island, should allow the visual form of the islands to dominate (hence ridgetop development should not be permitted), and should not exceed the limit that can be supported by the local natural resources such as water on Santa Catalina. The natural productivity of the intertidal and nearshore environment along Caltalina and San Clemente shall be maintained and kelp beds and reefs should be designated as natural reserves. All islets shall be protected as sanctuaries for sea birds and marine mammals. Research and educational opportunities shall be encouraged and access to currently restricted areas should be permitted for such uses. SUBREGION 9: NORTH COAST The north coast of Orange County extending some 12.5 miles from the San Gabriel River Channel to the Santa Ana River Channel forms this region. It includes Seal Beach, Huntington Beach, portions of Los Alamitos, Cypress, Garden Grove, Westminster, Fountain Valley, and unincorporated area including the community of Sunset Beach. Until early in this century much of the near- shore was part of a vast tidal and alluvial wetland system,- with freshwater inflow from the San Gabriel and Santa Ana Rivers. While wetland remnants remain, the subregion is now also characterized by residential, recreational, and offshore and onshore oil,field development- Coastal Seal Beach has an identifiable village character partly because it is wedged between the San Gabriel River and the Seal Beach National Wildlife Refuge. The two beach colonies of Surfside and Sunset Beach meld together just south of the Refuge. Huntington Harbour, located east of the beach communities and created by dredging and filling Sunset Bay, is a boating-oriented, high-income development within the City of Huntington Beach. Boating activity in the Harbour is primarily private. The County maintains a boating facility at Sunset Aquatic Regional Park. Otherwise public access to Harbour waters is extremely limited. During the past twenty-five years, Huntington Beach, the largest city in the subregion, has grown from a truck-farming community of 5,200 to a city of 150,000. Almost all the rich agricultural soil of the Santa Ana River flood- plain now within the city limits has been converted to residential and commercial use. All remaining agricultural lands are designated by the city for eventual conversion to residential and industrial use. Oil production lands within the city and in other sections of the subregion are recycling to residential and commercial use. This subregion possesses outstanding recreational resources. The wide, sandy beaches are almost entirely in public ownership. Besides swimming and bathing opportunities, the beaches of the subregion support some of the best surfing in the world. The Seal Beach and Huntington Beach piers support fishing and 01 coastal viewing activities, The automobile is the major means of recreational access. On weekends, parked cars line the seaward side of Pacific Coast Highway, blocking ocean views and adding to traffic congestion. Some policies applying either spicifically to this area or appropriate for application here include those calling for restoration of Bolsa Chica Bay and the Santa Ana rivermouth wetlands. Access to beaches and bicycle and pedestrian paths in closed communties should be provided. Oil pumping, drilling, and storage facilities should be removed once the resource becomes depleted. Street parking seaward of the coast and should be prohibited with inland parking and transit investigated as alternatives. Commercial visitor facilities should be increased within Huntington Harbour, and at the private beach colony of Surfside. The San Gabriel and Santa Ana River trails should be extended to reach the beach. Non-coastal-related industries, as they be- come obsolete, shall be considered for recycling to more coastal-dependent uses. SUBREGION 10: NEWSPORT/MESA The Newport Beach/Costa Mesa subregion extends some 6.5 miles from the Santa Ana River mouth South to the southerly limits of Newport Beach. The City of Newport Beach, Costa Mesa, and protions of Santa Ana, Tustin, Itvine, and un- incorporated Orange County territory are within the subregion. Important natural areas include Upper and Lower Newport Bay and the San Joaquin, fresh- water mash. Lower Newport Bay serves as a major marina resource with a public and private berthing capacity of some 7,OOO boats. The lower bay is the focus of a water- oriented lifestyle for those who reside on the small isles within the bay and on the Balboa Pennsula. Visitors can enjoy ocean and bay vistas from the beach walk or two city piers, or from restaurants which line the perimeter of the Bay. Swimming and bathing opportunities are available along six miles of public owned beaches. Traffic congestion and lack of parking, however, are major barriers to beach access. Wildlife observation opportunities are available in Upper Newport Bay and the San Joaquin Marsh. The Upper Bay to the 10-foot contour was recently purchased by the State. Current plans call for an interpretive center and bike path along the bay edge. Opportunities still exist to acquire blufftops above the bay for viewing and wildlife observation. Although the Upper Bay has been purchased by the State, significant runoff and siltation problems remain. Major employment centers are located at Newport Center, a recently developed. regional shopping and office complex, and inland at the Irvine Industrial complex adjoining the Orange County Airport. The University of California at Irvine also provides a significant employment and cultural resource. Policies applying specifically to the subregion or especially appropriate for implementation here include the preparation of a surface runoff and silt control plan for the San Diego Creek watershed to minimize man-made siltation and curtail pollutants in Upper Newport Bay. To preserve vestiges of historic, Newportl the character of the area surrounding the Balboa Pavilion, as well as the building itself, shall be preserved. New structures should retain the character and density of the surrounding environment. Easements should be acquired to establish hiking paths and bikeways along the edge of the water to increase public access to the coastal scenic experience. -365- SUBREGION 11: IRVINE This little developed subregion, extending some 3.5 miles between the city limits of Newport Beach-and Laguna Beach, is in the single ownership of the Irvine Company. The offshore is characterized by sand and mud bottoms,.sub-, merged rocks and reefs. Kelp beds provide habitat for many marine species. The landforms are relatively unaltered physically, with coastal bluffs and marine terraces backing sandy beaches and rocky tidepools. The back shore is characterized by ridge and canyon topography, with coastal sagebrush, grassland, and riparian vegetation. Grazing activity is presently supported on these uplands. Although there are no incorporated cites, residential development exists at Irvine Cove, Crystal Cove, and the El Moro trailer park development, located on the beach just north of.Abalone Point. An equestrian center exists on the marine terrace seaward of Pacific Coast Highway. This subregion is almost entirely undeveloped and remains the major opportunity for open space preservation along the Orange County coast. Policies applying specifically to the subregion or especially appropriate for implementation here include an underwater park and reserve system from Cameo Shores to Abalone Point with management closely coordinated with adjacent land uses* Both visual and physical access to the coastline shall be maximized by acquiring continuous pedestrian easements along the top of the bluff and, easements to the beach, except for those areas of the beach that are considered ecologically fragile. Los Trancos, Moro, Emerald, Boat, Shady, and Willow Canyons should be preserved as natural areas. SUBREGION 12: LAGUNAS The Laguna/South Laguna subregion extends along some 10 miles of shoreline from the northern limits of Laguna Beach to the southern boundary of the planned community of Laguna Niguel. The subregion includes the City of Laguna Beach and the unincorporated community of South Laguna. Rising behind these developed areas, the rugged hillsides are largely covered with coastal scrub and chaparral, enhancing the setting of these coastal communities. Major canyons leading to the coast include Laguna, Aliso, and Salt Creek. Aliso Creek and watershed provide riparian woodland, coastal sage scrub, chaparral and grasbland habitat. Many water associated bird species frequent the lower creek. A private golf course is situated at the mouth of the canyon. Other prime habitat areas include the Laguna Lakes in Laguna Canyon and Niguel Lake, now part of Laguna Niguel Regional Park. . I The offshore marine habitat of the subregion is extremely sensitive. Signi- ficant offshore areas.are now protected as part of the Laguna, South Laguna, and Niguel Marine Life Refuges, although increased public education programs should be established at these sites. Access to the coast from the inland areas is limited to Laguna Canyon Road and Crown Valley Parkway. Pacific Coast.Highway is highly congested. Such congestion is likely to increase with development pressures currently being experienced, especially in Laguna Niguel, in the hillsides above Laguna and South Laguna, and in other sections of southern Orange County. Local citizens are advocating a greenbelt concept to control hillside development and protect habitat.. Access to the beach in areas such as Emerald Bay and Three Arch Bay is blocked by private development. -366- Policies applying specifically to the subregion or especially appropriate for implementation here include the provision of public transit to take people from inland parking areas to the beach. To increase visual access and enjoy- ment of marine resources, an observation center should be established at Crescent Bay Point, and the marine life on Seal Rock should be protected from human disturbance. A trail system in the hills above Laguna and South Laguna would provide magnificent vistas for hikers and equestrians. Such a system, if established, should be considered for inclusion in a statewide coastal trails system. To increase beach access, the State should be given authority to bring suit on behalf of the public to enforce existing access rights. Trailers should be removed from the beach either through acquisition and/or enforcement of existing public access rights, SUBREGION 13: SOUTH COAST This subregion extends along approximately 9.5 miles of southern Orange County shoreline from the southern boundary of Laguna Niguel to the San Diego County line. It includes the City of San Clemente, the unincorporated communities of Dana Point and Capistrano Beach2 and the inland City of San Juan Capistrano. The offshore area is characterized by submerged reefs, rocks, and kelp beds, some of which are protected within the Doheny aftd-Dana Point Marine Life Refuges. A major marina serving southern Orange County is located below the bluffs at Dana Point. Associated with the marina development are tourist commercial recreation facilities as well as a picnic and temporary camping area. South of the marina, Doheny and San Clemente City and State Beachesprovide swimming, bathing, and camping. Betwe,en Doheny and San @Clemente City Beach, a strip of private single-family dwellings and trailers are located directly on the beach. Access to the subregion is provided by,the San Diego Freeway which cuts through. the Capistrano Valley to parallel the coast about one mile inland. The A.T. & S.F. Railroad also passes through.the valley an d proceeds for seven miles on beach sand. T 'he railway represents a major opportunity to provide mass transit, service to the beach from major'urban areas in Los Angeles and Orange Counties. Its present alignment, however, acts as a barrier Ito beach accessi Intensive residential development is taking place in the subregion. The Capistrano Valley is rapidly developing with tract housing., Planned residential develop- just north of Dana Point, if appro Ive.d, will eliminat'e,one of the few remaining opportunities to,provide recr.eation,,oppor Itunities.where.access is relatively good. Policies applying specifically to the Subr'egi6n,,or,especially appropriate for implementation'here include the*limitation that grading be allowed only- to provide a pad for a structure and access to it and that structures not eliminate or.reduce coastal.views from lateral,,roads or;remaining vista points. Son Dig%rlo Coast The Sat, Diego coastline, is 76 miles. long. it includes areas. of eight.cities, the@uninco'@p6rat'ed county State-owned'landst,and. substantial Federal. holdings,,,- -3 67-' The San Diego Coast Region is varied in its physical and manmade character and natural resources. It ranges from the scenic bluffs and beaches of Camp Pendleton to the urban San Diego Bayfront and the Port of San Diegop to the silvery sands of the Coronado Silver Strand and the rich Tia Juana estuary on the border with Mexico. The San Diego coastline includes pleasant and scenic communities and places for a broad cross-section of the population to live. Enhanced by its climate, the San Diego coast is a national recreational resource offering a wide range of recreational opportunities. Tourism isan important industry in San Diego. Although some are eroding, San Diego's beaches are important regional and statewide resources. The San Diego coastline is endowed with eight coastal lagoons and other wetland areast many of which are in dire need of protection, enh ancement, and consistent management. Coastal agriculture and floriculture in San Diego, particularly in the North County is an important statewide and even a national resource. SUBREGION 1: PENDLETON COAST Camp Pendleton is a largely undeveloped U.S. Marine-Corps base. It serves as a buffer between the developed coasts of Orange-Los Angeles and San Diego Counties, and includes some 17 miles of coastline. Most of the coastal viewshed in Camp Pendleton is undeveloped. With the exception of 24,000 feet of beach frontage that is under a 50-year lease to the State Deparment of Parks and Recreation and oIpen to public use, the entire shoreline is controlled by the military. On the immediate shoreline in northern Camp Pendleton is the San Onofre nuclear power plant site; unit 1 has been built and the second and third of the projected units are under construction, At the Camp's southern end are agricultural lands under lease to private growers. The open scenery of Camp Pendleton contrasts with Southern California's urbanization, The chaparral which covers its hillsides east of 1-5 is a rich. wildlife habitat. The most prominent physical features of the Camp Pendleton shor6line are the uniquely scenic coastal Torrey Sandstone and Del Mar bluffs and barrancas, shaped partially by natural and man-induced drainage patterns. Some of the sand on the beaches below is supplied by the eroding bluffs and transported along the coast by wave action (littoral drift). The Marine Corps manages Camp Pendleton's three wetlands. The San Mateo and Las Flores marshes are non-tidal* Santa Margarita Marsh, the largest, is sub- ject to tidal action. As late as 1958, steelhead trout were observed near the mouth of the Santa Margarita River. The Marine Corps has instituted a nationally acclaimed natural resource and wildlife preservation and conser- vation program. The State Department of Parks and Recreation has expressed.interest in obtaining more of the Camp Pendleton shoreline for public use. With the exception of San Onofre State Beach, which has been designated as an intensive use zonel the 01 Regional Commission has tentatively designated the Pendleton beaches for remote or very low-intensity day and/or overnight use. Additionally, several classic surfing areas-Trestles,Church, and San 0nofre-should be reserved for this coastal-dependent activity. The greatest existing pressures for development within Camp Pendleton are around Basilone Road and east of 1-5, where a recently constructed shopping complex servesilitary families residing to the east. To comply with the Plans adopted development policies, any further development in the area should conform to existing landforms, be designed to enhance the scenic ualities of the area, and should be located inland (east of I-5) when alternative sites exist. As the Coastal Plan is certified by the Federal government under the Coastal Zone Management Act of 1972, all goverment construction not related directly to military operations or national security will be governed by the Plan. Until then, State-Federal cooperation should continue. Any coastal areas of Camp Pendleton declared to be surplus land should be re- tained in public ownership with first priority given to public recreation with careful control and management stressed. Additional shoreline that is open to the public should be reserved for low-intensity recreation. The wetlands should be preserved with only minimal alterations as necessary to carry out a coastal agency-approved watershed management plan. Restoration of the mouth of the Santa Margarita River as spawning habitat should be explored. Any altera- tions to existing landforms and habitat should include specific provision for rehabilitation of cuts and restoration of vegetation. The Camp Pendleton are should continue to serve as a non-urbanized buffer between Orange-LosAngeles and San Diego Counties. SUBREGION 2: OCEANSIDE The Oceanside/San Luis Rey subregion extends from Camp Pendleton to Oceanside's southern boundary, but does not include Buena Vista Lagoon. The inland bound- ary encompasses the coastal-related agricultural and potential agricultural lands of the San Luis Rey River Valley, which extend inland approximately 10 miles. Most of the area west of 1"5 is already developed with mixed residential and commercial uses. East of 1-5, development is less intense while further inland are extensive undeveloped lands in (or suitable for) agricultural uses. A major resource of the subregion is a 4,000-acre, relatively undeveloped, floodplain, mainly used for strawberry and tomato production. The important wildlife areas of the San Luis Rey River are the river mouth and Narrows (east of I-5). Another wetland area is the Loma Alta Slough. The ocean shoreline and sandy beach areas of Oceanside are also significant regional and statewide resources. Construction of the Del Mar Boat Basin and 0ceanside Small Craft Harbor has disrupted longshore sand transport in the Oceanside littoral cell. The harbor has become a sand trap for an estimated 2.5 million cubic yards of sand which must be dredged out periodically and deposited on the beaches to the south. The winter tides have washed away a beach once 200-300 feet wide and have created the need for shoreline structures to protect the South Pacific Street beachfront homes. Replenishment of the lost, beach sand and the institution of a program for sand mainitenance and, bypass around the harbor entrance is of high regional priority. -369- Pacific Street, which runs along a coastal bluff pa rallel to the beach is a scenic roadway. Another important vista designated for protection by.the San Diego Comprehensive Planning Organization is the view of the ocean and San Luis Luis Rey River from 1-5 at the point where the freeway crosses the river. Although suffering from erosion in the south, the beaches of Oceanside are of good quality and can support intense recreational use. With additional access facilities, and non-auto transportation systems, the Oceanside beaches could easily accommodate more use, so the Regional Commission has designated Ocean- side as an intensive recreational use o3neo To eliminate or mitigate adverse effects upon the River Valley, its floodplain and agricultural areas, the following development proposals should be carefully evaluated: the proposed relocation of a freeway (new Route 252) through part of the valley and its agricultural areas; a major flood-control channel improve- ment project,proposed by the Corps of Engineers; and continued scattered residental development in the floodplain resulting in the conversion of coastal agricultural areas and the inducement of a costly flood control projedt. The Harbor/strand area felt considerable development pressure prior to the passage of Proposition 20, resulting in a 17-stor-Y condominium near the harbor, a 500-unit apartment project on the beach, and a proposed nine-story hotel, also in the harbor area. Continuing pressures have resulted in some fragmented development along the Strand area. The two most significant development proposals are expansion of the Small Craft Harbor to a proposed 2,000 slips by the Army Corps of Engineers, and the rede- velopment of the Harbo@/Strand area. Both can and should have a positive influence on the immediate area and the region. Expansion of Oceanside Harbror will relieve the pressure for new marinas elsewhere (e.g., Agua Hedionda Lagoon), and can make a significant contribution to correcting the sand bypass/ beach erosion problem. The proposed redevelopment project would revitalize a deteriorating beach area. Along with the harbor expansion, it is an opportu@ nity to create a beach-oriented tourist.commercial resort area.., Both projects should be undertaken only with careful attention to enhancing public access to and enjoyment of the shoreline, and protecting and preserving the habitat areas in the San Luis Rey rivermouth. In basic conformance with CPO's Initial Coast- line Study and Plan, the San Luis Rey rivermouth and narrows are recommended for priority acquisitio n as a wildlife reserve, Special studies on the San Luis Rey rivermouth and Loma Alta Slough should develop a comprehensive plan for their future management. Special study of the Harbor/straind'area should address the issues 6f resource preservation and en- hancement, appropriate land use and intensity of use, development standardst landscaping and design themes, transportation alternatives to the automobile (eegil Amtrak stopp trams), and the potential of the Strand as a pedestrian mall in developing a specific area development plan. SUBREGION 3: CARLSBAD This subregion extends from the north shore of Buena Vista Lagoon south to the Carlsbad city limit along the shore of Bati4ultOs Lagoon. From the shoreline, the boundary extends generally five miles inland to the proposed coastal zone boundary. The coastal area of Carlsbad between Buena Vista Lagoon and Agua Hedionda Lagoon is largely developed. In contrast, the area to the south consisting largely of areas annexed over the past several years and areas that Carlsbad is in the process of annexing.is mainly undeveloped, the major exception being the San Diego Gas & Electric Company Plant and some residen- tial development adjacent to and near the shoreline south of Agua Hedionda Lagoon. The southern and inland portionj of the subregion support considerable considerable agricultural use. The prime natural resource and habitat areas of the subregion are the two lagoons. Buena Vista Lagoon is a coastal freshwater body which because of its biological significance, has been acquired a State wildlife preserve. Agua Hedionda Lagoon is subject to tidal action, with the tidal prism maintained by SDG&E. The lagoon supports recreational uses such as boating and water skiing. The subregion includes many acres of prime and potentially prime agricultural. lands? intensively cultivated for nursery and truck crops and flower and bulb, producti on. Carlsbad floriculture production enhanced by a coastal location, is of statewide and national importance. The oceanshoreline itself is also a significant resource. 0 The Carlsbad area contributes much to the visual qualities of the:San Diego Coastal Region. The two lagoons create visual corridors from 1-5 to the ocean and to inland areas. The lagoons and surrounding open spaces provide visual relief in contrast with nearby urban areas. Perhaps the most prominent visual features of the subregion are the flower and bulb fields. When in bloom, they provide the passerby with a veritable symphony of color. Other distinct architectural and historical landmarks,in Carlsbad are the Twin Inns and Royal Palms. Carlsbad possesses some of thefinest beach frontage in the entire region, but there are problems of public access long several segmentsof the shoreline. That area extending southward from Buena Vista-Lagoon to Carlsbad State Beach does have parking, but it is insufficient. to meet the overall demand and some of the parking is located on the sandy beach.. Additionally, therecent rapid transition from single-to multi family along the major access routes to the State Beach could have adverse impacts upon public beach access. Farther south, the private beach owned by the San Diego Gas & Eleictric Company is reserved for the use of its employees. The other State-owned park, South Carlsbad,State Beach, presents another type of access problem while its pri- mary function is to meetthe ever growing and legitimate demand for shoreline camping facilities 6nly.minimal facilities have been provided for day use, Of all the areas in the San Diego Region, Carlsbad is experiencing the most severe,pressures A,CPO report anticipated that the present population of, 17,500 could- grow to from 46-60,000 by 1985. Of the greatest concern to the Com- mission,and supported by the CPO-report is that, most of the new development would.occur on new lands lands now in or suitable for agricultural use and vacant lands that serve as buffers to the lagoons and. agricultural, lands Current property tax assessment practices accelerate' the conversion of agri- cultural lands. Many parcels,too small to qualify under theWilliamson Act are,especially suitable for coastal dependent floriculture and agriculture. Carlsbad's,new Land Use Element of the general recognizies the undesirable impacts of uncontrolled growth and proposes several strategies to manage future growth and preserve open space and resources. Such strategies include a growth monitoring. plan, an urban reserve program, and the designation of special -371- treatment areas. Another issue critical to the future of Carlsbad is the redevelopment of its central business districto now in its initial stages. This district has been designated as a Special.Study Area to promote the preparation of a redevelopment plan that would revitalize the downtown area while simultane- ously relieving development pressi4res on resource areas. The downtown area should also be designated as a manmade resource because of its opportunities for low-and moderate-income housing and pedestrian access, and its small scale Through redevelopment, these positive characteristics can be further enhan;ed, and other factors improved to'create a truly distinctive coastal business district. Protection of the lagoons and surrounding areas, protection of floriculture and agriculture,' and maximum public access to beaches are prime concerns in the Carlsbad subregion. Accordingly, the lagoons and their buffer areas have been designated as.special @tudy areas, as have the productive and potentially pro- ductive agricultural lands. Four sites for priority acquisition of title or public use rights have been'identified. Acquisition surrounding Buena Vista Lagoon would promote preservation and allow passive recreation. More intensive recreational use should be accommodated in an acquisition surrounding Agua Hedionda Lagoony and lateral access should be provided along the shoreline. Acquisition of the Encina Power Plant beachfront and extension of South Carlsbad State Beach to the north and south would provide much needed public beach front- age for the region's fastest growing area. SUBREGION 4: SAN DIEGUITO: LEUCADIA, ENCINITAS, CARDIFF, SOLANA BEACH The San Dieguito subregion includes the unincorporated communities of Leucadial Encinitas, Cardiff, and Solana Beach. The boundaries extend from (and include Batiquitos Lagoon on the north to the Del Mar City line in the south. The in- land boundary follows the location of prime and potential prime agricultural lands, with five miles beingthe average inland extent. Most of the.land is al- ready develop6d, although at a very low density, consisting primarily of single- family residences and duplexes. The most critical and valuable resource areas include Batiquitos and San Elijo Lagoons, and the ocean shoreline and adjacent coastal bluffs. Some kelp har- vesting takes place off Leucadia -and Encinitas. The San Dieguito communities also contain substantial lands being used for agricultural and floricultural production. Batiquitos Lagoon, rarely open to tidal action.in recent years, has been'pol- luted by sewage and runoff from San Marc6s.Creek. Selective and careful dredging and restoration of tidal flushing could revitalize the lagoon as a valuable coastal resource for habitat and some recreational activities. The county has designated it'as a regional park. San Elijo Lagoon has been recognizedby the local, State and Federal governments as an outstanding coastal resource. However, it has been threatened by develop- ment in and around it. The 1973 completion of Escondido land outfall terminated the daily flow of some 2.5 million gallons of treated sewage-effluent into the lagoon from Escondido Creek. This caused substantial drying up of the inner lagoonv which in 1974 lasted into the migratory shorebird nesting season. This also aggravated problems of water stagnation'and closing up of the lagoon mouth. The County of San Diego is preparing a management plan for the lagoon whichl when combined with its pending,public acquisition, could enhance and protect it. There is also a need to protect the remaining natural hillsides from excessive grading. I The bluffs of the SanDieguito-area are extremely fragile, and are subject to severe erosion and sloughing. In some areas, excessive and ill-designed blufftop developmentswithout adequate.public beach access have agravated bluff erosion and failure induced by water and foot traffic. Based primarily upon their low-density, semi-rural character, the communities of Leucadia and Encinitas and much of Solana Beach have been designated as manmade resources. Additional reasons for these designations are opportunities for ped- estrian and bicycle access to the beach, a physical scale consistent with and complementary to coastal landforms, and a physical coherence which adds to the visual attractiveness of the coast. Because of the opportunities for low- and moderate-income housing, Eden Gardens has also been identified as a manmade resourcee The beaches of the San Dieguito subregion offer substantial recreation potential. Anticipated use may be of low or moderate intensity due to the physical barrier created,by the coastal bluffs. Because of the desirability of the San Dieguito beaches, the increased population in the North County, and the lack of improved public beach access.facilities, the public has carved out foot paths on some of the bluffs, resulting in accelerated erosion, In response to this incre .asing problem, the Board of Supervisors directed preparation of a comprehensive beach access-plan, now completed with approval and implie@mentation pending. The Regional Commission, hoping to improve access to the San Dieguito Beaches, has designated them for moderate use with intensive nodes located throughout. Two "classic" surfing breaks in this subregion are Sea Cliff County Park and Cardiff Reef. Before Proposition 20 the San Dieguito area experienced extensive condominium development of its bluff areas.' Unfortunately, some of this was not consistent with the @established character of the San Dieguito communitiies. It destroyed the previous sense of openness along the coastal bluffs, and failed to provide phased public access to the adjacent beaches. A case in point is the solid wall of condominium developments along the South Sierra Avenue bluffs in Solana Beach erected over the past seven years. Other areas under pressure are the lagoon areas and the agricultural lands. To date, the valuableand irreplaceable lagoons have been preserved, although resi- dential marina projects have been proposed. As in other coastal subregions conversion of agric@ltural lands to urban uses-is a continuing and growing problem. The San Dieguito community plan@ recently adopted after several years of work and debate, makes strong policy statements aboutthe preservation of open space, acquisition and development of parkland, and the protection of resource areas- especially Batiquit6s,and San Elijo Lagoon. The plan also.-encourages preserva- tion of the existing pattern of distinct, identifiable communities, separated by lagoons and open spaces. A potential issue of conflict between the Coastal Plan and the San Dieguito community@plan'is the importance.attached to the preservation of,agricultural lands. This is a central concern of the-Coastal Plan, and although the San -373- Dieguito plan discusses the importance 'of preserving agricultural lands, the plan recommendations and land use map designations do not reflect this same commitment. The county?s recently adopted initial growth policy also calls for the preservation of agricultural lands. @Batiquitos and San Elijo Lagoon, the Leucadia/Encinitas buBi-ness districtsp'the blufftop areas of the San Dieguito communities, the Cardiff duplex t'ransition area, and the Solana Beach business district have been designated as'Special Study Areas. The intent in so designating the lagoons is to coordinate County and State efforts to develop a management program that.will guide their long- term protection. Areas in both San 'Elijo and Batiquitos Lagoons are recommended for priority acquisition. Designation of the blufftop areas of San Dieguito will primarily promote the beach access study prepared by the county engineerp and include it in a beach access plan. The other special study area designations are- to ensure the preparation of specific area development plans for these areas of special manmade and natural qualities. Two other designated priority acquisition sites would create extensions of existing State Beach units. SUBREGION 5: DEL MAR The Del Mar subregion includes the City of Del Mar and the Torrey Pines com- munity.planning area of the City of San Diego, which is made up of Del Mar Heights and Del Mar Terraces. The boundaries extend from Via De La Valle on the north to Carmel Valley on the south. Its inland boundary extends to 1-5. The area is characterized by low-density, mostly single-family development. The largest par- cels of vacant land include San Dieguito Lagoon and Crest Canyon. San Dieguito Lagoonp Crest Canyon, and the ocean shoreline and adjacent coastal bluffs are the prime natural habitat and scenic resource areas. From 1-51 San Dieguito Lagoon and the lands immediately surrounding it are especially scenic. The State-owned Torrey Pines Reserve Extension also reaches into the southern portion of the subregion. The coastal bluffs of South Del Mar are geologically unstable and susceptible to erosion and landsliding. The City of Del Mar, 3/4 square miles in area, is already substantially developed and is one of the most scenic communities in the San Diego Region. Its special mixture of natural and manmade features creates a truly unique -visual environment . Development in Del Mar is generally low-profile and small-scale and is located and designed to blend with and complement natural landforms, Because of the low- density character of both its residential neighborhoods and commercial districts and because of the opportunities for pedestrian and bicycle access to the beach, Del Mar has been designated as a special coastal community. The City of Del.Mar, has taken steps to ensure that its existing character is retained. A design review board controls all development other than single-family residences and a general plan revision being considered contains ambitious recommendations for open space acquisition. The City of Del Mar has already purchased land for two blufftop parks, one of which has been.improved, and in conjunction with the City of San Diegop is planning the purchase of Crest Canyon. The Del Mar Racetrackp based upon its historic and cultural contributions to the community and the region, has also been designated as a manmade resource. The Del Mar beachesq between San Dieguito Lagoon and 15th Street, are wide and sandy and are suitable for intense recreational use. The beach areas south of 15th Street are more suitable for moderate use because of unstable bluffs over which there is no convenient access. Because of the relatively scarce public parking, the Del Mar beaches are used predominantly by Del Mar residents. Addi- tionally, signs reading "This Beach for Use by Del Mar Residents" erected by the Del Mar Civic Association have further discouraged the general public's use of Del Mar beaches. Prior to the passage of Proposition 20, the Torrey Pines community planning area experienced considerable development pressures, with the most obvious result of several large condominium projects on the hills north of Los Penasquitos Lagoon, Currently, the major development activity in Del Mar Heights and Del Mar Terraces is, with the exception of commercial development on Carmel Valley Road, single- family residential. However, several issues of concern have emerged. Most critical has been the encroachment of development on the Torrey Pines Reserve Extension and Crest Canyon* View blockage is also a concern, The commercial development along Carmel Valley Road has raised issues of appropriate land use, building design, landscaping, and impact on the aesthetic and natural character of Los Penasquitos Lagoon. The Torrey Pines community precise plan, encompassing the areas of Del Mar Heights and Del Mar Terraces, is now in the hearing process. Its foundation is the reten- tion of-the residential character of the community and preservation of open space areas. The plan recommends the acquisition of Crest Canyon and additional areas to be made part of.the Torrey Pines Reserve Extension. San Dieguito Lagoon has been designated as a special study area and a prime acqui- sition site in order to protect and enhance its resource and habitat values. A lagoon management plan should emerge from the special study. The work of the recently established.Diel 'Mar Task Force to prepare a lagoon management plan for the San Dieguito Lagoon might well provide the basis for this work. Carmel Valley Road has been designated as a special study area, so that a specific area develop- ment plan can be prepared that will take advantage of the positive development potential of this area and to assure that the visual and natural character of Los Penasquitos Lagoon is complemented. The site of the old Del Mar Hotel and the lands below it to the beach have also be designated as a special study area to ensure that the special amenities of this valuable building site are used in the best interest of the region as a whole. The coastal bluffs which parallel Del Mar present an opportunity to create a linear park with a coastal trail as a main feature. To investigate this possi- bility, the Del Mar Bluffs have been designated as a special study area. SUBREGION 6: TORREY P'INES/LA JOLLA The northern boundary of this subregion includes the Los Penasquitos Lagoon and extends to Carmel Valley Road. The southern.boundary approximates the line be'- tween La Jolla and Pacific Beach. The inland boundary.is 1-5. The northern portion of the subregion (Los Penasquitos Lagoon,, Torrey PinesReserve) is unde- veloped, while the southern portion (La Jolla) is developed very intensively. The prime natural resource and habitat areas are Los Penasquitos Lagoon, Torrey Pines State Reserve, the ocean shoreline, coastal bluffs, numerous tide pools, two marine ecological .reserves and.kelp.beds. Los Penasquitos Lagoon has been identified as possessing exceptional coastal lagoon qualities, already documented -375-.; in several studies and as having unique educational and research values. Other studies have investigated methods of enhancing the lagoon's tidal prism, thus improving tidal flushing and habitat quality. The Torrey Pines State Reserve protects the very rare Torrey Pine and also includes portions of Los Penasquitos Lagoon. The ocean shoreline includes some of the most beautiful and varied in the San Diego Region: from the wide, sandy beaches of La Jolla Shores to the rocky headlands and pocket beaches of La Jolla, and the high and precipitous bluffs and narrow beaches of Black's Beach. The La Jolla area also possesses many excellent tide pools, such as the Bird Rock area. 1 1 La Jolla must also be considered a manmade resource. The distinct manmade qual- ities of its commercial districts and residential neighborhoods combine to create a coastal community of variety and charm. These attributes attract visitors from San Diego and beyond during all seasons. A major ingredient of La Jolla's charm is its scenic setting. With hills set back from the shore, many natural promontories exist where the visual amenities of this unique community can be enjoyed. Prime vista areas include Los Penas- quitos Lagoon and the ocean from 1-5 and old Highway 101. The view of the ocean and downtown area from La Jolla Shores Drive above Scripps Institute, and of course the top of Mt. Soledad, offer unforgetable panoramas* An additional attraction of the subregion is recreation. La Jolla Shores, along with Mission and Ocean Beaches, consistently has the highest annual attendance figures of the San Diego Region. Wide, sandy beaches, warm and clear water, good surf, and public parking all contribute to the high attendance figures. The pocket beaches of La Jolla offer less intense recreation experiences. Until recentlyt Black's Beach was sparsely used due to the barrier presented by the high bluffs. Used only by surfers and nude bathers, it offered a relatively remote recreational experience--a truly unique situation considering the proxi- mity to the La Jolla urban complex. However as a result of the publicity given the "free" beach movement, Black's Beach now experiences intense use during summer weekends. Based upon the variety of use levels the Regional Commission has identified intense, moderatet and low intensity recreational use zones. Several "classic" surfing spots have been designated by the Western Surfing Association. Black's Beach, Wind In Sea, and Big Rock are best known. Blufftop areas above Black's Beach and adjacent to the Salk Institute offer coastal wind currents, and here hang-gliders, soarers, and model airplane enthusiasts compete for the airways. A recently begun planning effort will address major issues for the proposed Torrey Pines City Park on the bluffs above Black's Beach, including improved emergency access to Black's Beach, resolution of use conflicts between hang-gliderst soarers, and model-airplanes, and long-term parking solutions. Like other coastal communities, La Jolla suffers from critical traffic con- gestion and parking problems. Exacerbating these are pressures to intensify commercial districts and residential neighborhoods. Although most neighbor- hoods are stable, a still-existing enclave of older low-income housing is being slowly replaced by higher cost developments. Downtown La Jolla has been undergoing a transition that threatens the charm of the community itself, with small specialty shops and restaurants, which contribute so much to La Jolla's character, being replaced by corporate and financial headquarters. The adopted La Jolla/La Jolla Shores community plan provides the basis upon which to solve many of La Jolla's problems. Included within the document are well-conceived proposals for residentialand commercial design circulation (shuttle service) and improved public access to beach areas, Special study areas designated are Los Penasquitos Lagoon (where a nuclear power plant is projected by San Diego Gas and Electric Company), Torrey Pines City.Park (proposed), and the1a. Jolla community planning area. A management plan is needed to guide future management and preservation of Los Penasquitos Lagoon. Because of its high resource valuev it is recommended that the State Department of Parks and Recreation complete the acquisition of the lagoon for inclusion in the Torrey Pines Reserve. For the proposed park and La Jolla, the intent of the special study area designations is to coordinate the planning of the City of San Diego, La Jollans Inc., other community planning.groups, the Regional Commission and successor agency* SUBREGION 7: PACIFIC BEACH, MISSION BEACH, OCEAN BEACH, MISSION BAY The land within this subregion is intensively urbanized with predominantly resi- dential and commercial uses. Of the three beach communities, Mission Beach has the highest average density, 33 dwelling units per acre, which is the highest in the City of San Diego* Although certain districts of Ocean Beach and Pacific Beach have equivalent residential densities, other districts are predominantly single-family and bring the average density figures down. Of all the beach communities in the San Diego Region, these three would rank highest in terms of the socio-economic balance of their residents. Mission Bay Park is-a multipurpose recreationa+" resource of regional and state- wide significance, and contains the one major undeveloped parcel of land in the subregion, Fiesta Island. Valuable natural resource areas of the subregion in- clude the ocean beaches and the'beaches of Mission Bay. Also of importance are the San Diego rivermouth and floodplainv the Kendall-Frost Preserve in Mission Bay, the very fragile Sunset Cliffs and tidepools, and the Famosa Street Slough, Manmade resources include Mission Beach and Ocean Beac h.because-of their unique physicalv social,and economic character and because they provide-pedestrian and bicycle access to,the.shoreline. As a man-altered,environment with substantial recreational valuey Mission Bay is also a manmade resource. Belmont Park, a unique regional recreational resource, and Ocean Beach Pier@ Vacation Island, and Sea Worl 'd are also identified as manmade resources to be protected because of their.unique functions. MissioXi Bay Park is a prime visual@resource_because of the many vantage points around its Derimeter, especially;the.vistas provided from-I-50 Certain sections of Mission.Beachv Ocean Beach, and Pacific Beach possess visual amenities, as evidenced by Ocean Front Walk and Bay Front Walk in Mission Beach. The under- grounding of overhead power lines and improvements along Mission Boulevard will do much to improve the visual qualities of Mission Beach.' The three beach communites of this subregion (along with La Jolla Shores in subregion. 6), receive-, the,:.he.aviest beach use ofAhe Region,,' The wide, sandy beaches,are@of high,quality,,.and could.,well accommodate more use without signifi; cantly lowering the quality of the recreational 'experience. The factor controlling -377 the level of use of the beaches is the availability of parking or an * alternative means of access. Parking has always been insufficient during peak summer week- ends, although the new city parking lot across from Belmont Park should help.. One possible solution to the access problem'. mentioned in the Mission Beach precise plan, would be the initiation of a beach shuttle service from inland parking areas. The Regional Commission, recognizing the existing and potential use levels of the subregion, has designated the beach areas to the Ocean Beach Pier as intensive use zones. Because of their extremely fragile nature, the Sunset Cliffs of Ocean Beach have been designated as a moderate use zone from Ocean Beach pier to Ladera Street, and as a light use zone south of Ladera Street to the Navy Property. The Western Surfing Association has identified 24 "classic" surfing breaks in the Pacific, Mission, Ocean Beach subregiont with the majority in the Sunset Cliffs area. Mission Bay use varies widely, from intensely used areas such as Crown Point, to the moderate use areas of Fiesta Island. Tourist/commercial recreation is an integral part of the Mission Bay concept. In previous years, commercial develop- ment was allowed to restrict lateral public use (access along the beach); however, the City of San Diego has now adopted a policy that would prohibit such development. The City will also reevaluate and revise the Mission Bay Park Plan to ensure maintenance of resource preservation,, public access, and recreational quality. Pacific Beach, Mission Beach, and Ocean Beach share common problems. Development pressures, which are a function of both rising demand for beach-oriented property and property tax increases, are threatening to destroy the physical, social and economic character of the beach communities. Also, as each vacant lot, single- family home, or low-density unit is converted to a multiple-unit complexv already critical density-related problems of traffic and parking congestion will worsen. This, in turn, may further-restrict access to the bay and ocean beaches, as graphically demonstrated by the condominium development between Mission Bay and Riviera Beach Drive* The development standards proposed in the Mission Beach precise plan, already adopted and the Ocean Beach precise plan, still in the hearing process, could go far in preserving the desired characteristics of these communities. However, such standards deal with only the physical aspects of development and can do little about such threats to the desired character of the communities-as market pressures are increasing property taxes. The Mission Beach precise plan suggests several alternatives to the present taxation system; however, the implementation, of such alternaties goes far beyond the scope of a community,precise plan. Mission Beach, Ocean Beach, Pacific Beach and Mission Bay have been desig nated as special study areas by the Regional Commission with the intent being to coordinate and complement the planning efforts of the City of San Diego, commu- nity planning groups, the Regional Commission and successor agency. The San Diego rivermouth and Famosa Street'Slough have also been designated a special study area. The end product of these special studies would be a management plan to guide the long-term utilization and protection of these resource areas* SUBREGION 8: POINT LOMA/NORTH ISLAND This subregion includes the militax-j and other Federal goverment holdings located on the southern portion of Point Loma (south of Kellogg Street and Point Loma College), and North Island* The entire subregion consists of Federal lands. Although there are no large parcels of vacant land remaining on North Island, there are significant undeveloped natural areas on Point Loma. On Point Loma the major resource are*a6 are the Cabrillo National Monumentl'the entire beach and shoreline area-including tide pools, the last large undisturbed vegetation habitat lands, and a high quality intertidal area off southern Point Loma, Most of the bay frontage of North Island has been.reinforcedp while the ocean frontage is a wide, sandy beach well suited for intense recreational use. Other than the hi storic Point Loma Lighthouse and Cabrillo National Monument area, there are no manmade structures or environments that would meet the criteria for manmade resources. Military installations and the Metro Treatment Plant (with a rated capacity to reach 110 million gallons per day and a 230 MGD ocean outfall, serving,most of.metropolitan San Diego) are noteworthy manmade features. The fine.st scenic vista of the San Diego Coast Region is from 'Cabrillo Monument at the southernmost promontory of Point Loma; it affords an unrivaled panorama of the entire region. Additionally, the point itself must be considered the prominent visual feature and landmark of the Region. The subregion,' if further opened to the public, would have a very high recrea- tional potential, South of Point Loma College, access is restricted by the topo- graphy to the extent that the beach can be reached only by boat.- Also, military restrictions prohibit public use of this section of shoreline.. These barriers have preserved this as one of the few remote stretches of ocean shoreline in Southern California, matched only by portions of Camp Pendleton in the San Diego Region. Sensitive to their immeasurable value as a remote shoreline area, the Regional Commission has designated the Point Loma military lands as a remote recreational use zone. the intent is to encourage the relaxation of military restrictions on public access, which would allow legal access by boat, while still preserving the remote character, North Island too has a value as a recreational resource# but for 'entirely differ- ent reasons. The North Island ocean beaches are really an extension of the . beaches of Coronado. They are wide and sandy, and would be suitable for more recreational use beyond that of military personnel. The Regional Commission, cognizant of North Island's value for public use, has designated its beach areas .as intensive use zones. The military lands.of this subregion are not-subject.,to the same development pressures as,other areas. North Island@is mostly developed, and any expansions, exi-'luding sandy beach areas,.lwould probably,not harm-coastal resources. Military expansions on Point.Loma, however., may very well encroach upon sensitive and valuable lands still in a.natural state'. When.the,.Coastal Plan is certified by the Fede.ral.government.under..the Coastal Zone:,Management.,Act of 1972, most development not directly related.,to national 'security will be.sul5ject to.Coastal Plan ...policies. Until,then-cooperation.between the State and-Federalgovernments should continue to ensure that,unique,and irr.eDlacea-ble,.resource-qualities@are not diminished. Point Loma and North Island.are,both identified, as contingency.areas on the Preliminary Plan Map. This meansthat any military-land declared surplus should be retained in public ownership,.@ _A special study,by the,coastal agency should ascertain.proper uses and level of use for, with first priority assigned to coast-9riented public u es, s -379@_` SUBREGION 9.: SAN DIEGO CITY BAYFRONT Boundaries of this urban-oriented subregion are the San Diego River Flood Con- trol Channel to the north, the eastern boundary of the railroad right-of-way including the Santa Fe Depot to the east, San Diego Naval Station to the south, and Coronado City limits to the west. The area is extensively developed, with tourist/commercial use on Harbor and Shelter Islands, aviation-related industries around Lindbergh Fieldmarine-oriented industrial uses, including National Steel and Shipbuilding, located generally around the Coronado Bridge, and office/ commercial uses in the downtown area. The subregion also includes the Marine Corps Recruit Depot, the Naval Train@,.ng Center, and the Navy Athletic Field. San Diego Bay and its bayfront are principal natural and manmade resource areas, The Barrio Logan community planning area, because of its opportunities for low- and moderate-income housing, and because of its cultural and historical heritage as a Chicano community, has been designated as a manmade resource. Based upon recreational value, and opportunities for public access to shore areas, Harbor Island, Shelter Island, Spanish Landing, Broadway Pier, the Dnbarcadero, and Fish Market have been identified as manmade resources. Also, the Santa Fe Depot, the Star,-of India, and the Berkeley would be considered manmade resources because of their culturalp historic, and architectural value. Of special visual significance are Harbor Island, Shelter Islandv Spanish Landingg the 1hbarcadero, and Broadway Pier. This subregion offers recreational opportunities unique to most of the Region* Kellogg Beach is one of few opportunities for water-contact activities such as swimming, but substantial boating facilities exist, The grassy areas of Shelter Island and Spanish Landing provide passive recreational activities such as pic- nicking and strollingp and fishing is popular. San Diego Bay's full potential as a recreational resource has not yet been reached, the city and Regional Commission agree. Areas of particularly high potential for public recreation are Navy Field and the site of the old San Diego- Coronado Ferr7. These are the last significant open spaces in the immediate area, and should be retained. Plans being prepared for the lhbarcadero area by the port and city should enhance public access and enjoyment of this unique area, Because most land is already developed, the major issue is redevelopment. The City of San Diego is in the early stages of implementing its center city plan. The objectives of this ambitious project are to revitalize and intensify the central business distriett and strengthen its role as the commercialo financial, and transportation center of the region. An integral part of the plan is the bayfront, for which the city and port are jointly planning tourist/commercial facilities* Other major center city plan proposals include a marina opposite Navy Fieldy relocation of naval and non-military facilities such as City Police Headquarters, major bay-related residential developments in the downtown area, and pedestrian transport alternatives to the automobile. Low- and moderate- income housing needs are not addressed in the plan. The San Diego Unified Port District has already divided the bayfront into study areas? identified here as special study areas-to facilitate the preparation of specific area plans for the bayfront that will conform with the port master plan and the Coastal Plan. Preparation of the Barrio Logan community plan is now beginning. The Chicano community is committed to the preser@ation and improvement of the Barrio. A -380- principal concern that must be addressed is industrial encroachment into resi- dental areas, since almost the entire community is zoned for industrial and manufacturing uses. Another critical matter is that of bayfront access histori- cally enjoyed by the community but long since eliminated by industrial development. The Barrio has been identified as a special study area so that the city and State can coordinate planning and promote community interests.. Any military lands declared surplus should be retained in public ownership* A special study by the coastal agency should determine the appropriate use and level of use for the lands with highest priority assigned to public recreational use. This same approach should be followed if and when Lindbergh Fibld is phased out as an airfield, with the Port and Coastal Commission jointly undertaking the study. SUBREGION 10: CORONADO/SILVER STRAND The boundaries of this subregion extend to, but do not.include, the North Island Naval Air Station'to the north, and Imperial Beach City Limits to the south. The,, eastern boundary runs down the middle of San Diego Bay, The northern portion of the subregion includes the heart of the City of Coronado, already substantially developed, Most of the Silver Strand, including the Naval Amphibious Base, Radio Stationg and Silver Strand State Park is in public ownership, Principal resource areas of this subregion are the San Diego . Bay. shoreline and tidal mudflats, and the entire ocean beach and shoreline area. Of most concern in this area is the fact that the beaches are losing sand at a rate of appro xi- mately one million cubic yards per year, and a,natural reversal of the trend is not expected. The southern sections of the beach have suffered the greatest loss, while the beaches north of the Hotel del,Coronado have been more stable. The core area of the City of Coronado, not extending beyond the Hotel del Coronadol, has been designated as a special coastal community because of its.physical scale, which is consistent with and complementary to coastal landforms; its physical coherence, which adds to the visual attractiveness of the coast for residents and. visitors; and its distinctive low'-density character, The 'Hotel del Coronado and the Coronado Bridge have both been identified as manmade resources* In terms of visual qualitiesq excellent vistas are offered people traveling across the Coronado Bridgel and driving along Silver Strand on scenic Highway 75. In spite of the erosion, the beaches here are excellent but underused because they are hard to reach. The roundtrip toll for the Coronado Bridge is $1.20. Day-use attendance figures at Silver Strand State Beach show it far below capacitye Reinstituting the ferry service and allowing bicycles on the Coronado Bridge could improve beach access.. The Regional Commission has designated the.beach areas for intensive recreational use in an attempt to promote more intensive long-term use* This designation includes the Naval Amphibious Base and.the Radio Station, should they be declared surplus.or be opened for public usee, The City of Coronado is,considering converting an abandoned railroad right-of-way down the middle of Highway 75 into a multipurpose recreational trail, and is promoting a major bayfront park on tidelands property for which the Port of San Diego has proposed-a,research park. For the most part, development patte rns, in the City of Coronado are stabilized -381- .and new development is carefully guided by the adopted general plan and by aCity Design Review Board. The current population is 16,000, with a projection of 37,000 for the horizon year of 1990, including completion of the Coronado Shores and Coronado Cays developments. The City of Coronado is making a concerted effort to meet the adoption deadlines for the State-mandated elements of the general plan. Adoption in 1973 of the Environmental resource mnagement element established the community resource base, and recommended as follows on three major issues:(l) On beach erosionp a joint- powers agreement approach to remedial actions and more detailed studies should be used.(2) A proposed second opening to San Diego Bay should be delayed for completion of a'detailed environmental impact report. (3) Bay landfill should be allowed only to create open space recreational uses. Adopted Coastal Plan policies could translate into the following major proposals: (1) Preservation of Coronado as a manmade resource, primarily characterized as a pleasant, low-density residential community-W I@crease accessibility of beach areas including military beach frontage and provide facilities to encourage more use, (3) Devise and implement a long-term beach sand maintenance program, to provide a permanent solution to beach erosion problems. SUBREGION 11: SOUTH SAN DIEGO BAY The boundaries of the South San Diego Bay subregion extend from, and include, the San Diego Naval Station on the north to Palm Avenue on the south. Interstate 5 is the inland boundary, and the midpoint of San Diego Bay is the western boundary. Most of the northern portion is developed, including the San Diego Naval Station and extensive industrial development in National City. The Chula Vista bayfront also has industrial developmentp including the Rohr Corporation and South Bay Power Plant. A significant portion, primarily the Sweetwater Marsh, is undeve- loped and approximately 200 acres are in field tomato and vegetable greenhouse production. Further to the south salt evaporator ponds form the termination of the Otay Valley drainage basin* The most valuable natural resource area is the Sweetwater Marsh Complex, which includes Paradise Creek. Recognizing the habitat and nesting value of Sweetwater Marsh, the State Department.of Fish and Game recommended that it, along with the South Bay salt ponds, be designated a wildlife refuge or ecological reserve. The agricultural lands of the Chula Vista bayfront are valuable as the last remaining agricultural lands in coastal-related production in the immediate area, and do constitute significant open space as well as a partial buffer for the marsh areas, The South Bay area has a largely untapped potential for serving regional and statewide recreational-demands, Two recently built boat launching rampsq one in National City and one in Chula Vista, are not heavily used. The Port District has built short fishing piers and grassy areas for picnics and other passive activities. Some beach areason the Chula Vista bayfront are suitable for swimming. Several small craft facilities have been proposed. Because of its concern for protecting the remaining marsh habitat areas in the South Bay, especially in the Sweetwater Marsh complex, the California Department of Fish and Game has thus far opposed the marina proposed by National City for the Paradise Creek, This pro- posal also appears to be in conflict with Coastal Plan policies. The City of Chula Vista has altered its original proposalv and has considered relocating the _382- marina from the Sweetwater Marsh area to the existing fill surrounding the boat launching ramp. Because the fill already exists, and is shaped to accommodate a marina, this site may be appropriate for a future facility, A more important issue is the provision of more public access to the bayfront. The Port District's plans for a bicycle path around the bay and Chula Vistats plans for providing and improving public bayfront areas would help meet this end* However, further public commitment-is needed to pursue this objective. Other than the marina proposals, several development projects could adversely impact the wetland habitat and nesting areas in the Sweetwater flood plain and marsh complex. The Corps of Engineers and the Department of Transportation have proposed a joint Sweetwater Freeway (Route 54) and Flood Control.Channell now being revised as a result of public response to the EIS to preserve more wetland areas, National City-, in promoting the industrial use of its holdings west of 1-5, has adopted an industrial use policy that gives priority to marine-related and marine-dependent industries and sets forth standards for design and landscaping. The National City 2@edevelopment project is located inland of 1-5 and so outside the subregion as presently defined. The Chula Vista bayfront plan stresses creation of a water-related tourist/ commercial resort area, Additional consideration has been given to public open space and recreational areas, and multiple family residential uses. Potential conflicts with the Coastal Plan could evolve over the conversion of lands now in agricultural uses. Also, adopted coastal policies would give residential uses a lower priority than water dependent or tourist/commercial/recreational uses. Should any land under the jurisdiction of the San Diego Naval Station be declared surplus, it should be retained in public ownership, with use priority going to public recreation. The Sweetwater Marsh complex 'has been designa-l@ed as a priority ac .qusition site to create a wildlife refuge that would preserve natural habitat and nesting values, Also, a special study on Sweetwater Marsh and the South Bay salt ponds should prepare comprehensive wetland plans to guide future management of theseresource areas* SUBREGION 12: IMPERIAL BEACH/TIA JUANA RIVER VALLEY imperial Beach'and the Tia'Juana River Valley are the southernmost land and water areas of the San Diego Coastal, Zone.- Imperial Beach,is mostly developed with@ mixed residential and commercial uses with some areas of the immediate shoreline in varying degrees of disrepair, The Tia Juana River Valley, except for agr'i- cultural and related uses, is undeveloped, containing one of the State's most valuable coastal estuaries-, The Tia Juana Estuary complex serves as an open space buffer between Tijuana'and San Diego. This subregion includes the City.of.irLI-perial Beach, the San Diego communities of Nestor and San Ysidto, the U.S. Navy,.which h,as jurisdiction over approximately lv204_acres at.Ream Field,,and the Ptat e, which manages .655 acres at Border Field State'Park. The current population of Imperial Beach is over 21yOO0t projected to 27,500 by 1990. The urban complex of Imperial Beach, Nestor, San Ysidro, and Tijuana (in Mexico) will reach 1.2.million by 1990. -383- The Tia Juana Estuary complex, including Oneonta Lagoon, and the land immediately surroundi-ng it is the most valuable natural resource of the subregion. The estu- ary serves as a habitat for a wide variety of bird and animal species, and has been identified by local, State and Federal agencies as a coastal resource of statewide significance worthy of preservation. An additional resource of signi- ficance is the 5,700-acre floodplain, which supports 2,200'acres of agriculture. However, increased land values, taxes, and labor,costs have forced most of the farmers to sell their land; today, all but 200 acres are farmed by tenants. The ocean shoreline, although subject to severe erosion problems, must also be con- sidered a primary resource of the subregion. The Corps of Engineers bay dredging project is anticipated to provide 5,,million cubic yards of dredge material to replenish Imperial Beach's shore areas. The planned expansion of Border Field State Park to 2,000 acres will probably necessitate the acquisition of additional Navy property in the event that Ream Field is phased out. In such case, the surplus lands, in accordance with adopted policies of the Coastal Plan, should remain in public ownership with publicre- creational uses receiving highest priority. Except for a few peak summer Sundays, the area is not heavily used for coastal recreation. In view of the fragile resource areas adjacent to Border Field, such use levels are appropriate, and the Regional Commission has designated the area as a moderate-use recreational zone. However, the shore areas of Imperial Beach have a higher-use tolerance and have been designated for intensive use with the intent of promoting increased recreational use. The main development pressure within Imperial Beach is for multiple-family deve- opment, which would be of concern if provisions are not made to protect and preserve the public access to the beach areas. Imperial Beach redevelopment, the most ambitious development proposal/planning project, calls for the redeve- lopment and restoration of much of the'eity's coastal area into beach-related tourist/commercial resort area, with the prime goals being the revitalization of a deteriorated beachfront and the if@provement of the local tax base, aestheticsv and public access and use. The proposed .highrise development (100 feet) and building locations could achieve compliance with the Coastal Plan. The redeve- lopment project is auto-dependent and does not consider the provision of alter- native modes of transit. With the possibility of relocation of the regional airport to Brown Field, such considerations would be meaningful. Two other development proposals which would impact Imperial Beach, but would have more direct.effects.on the river valley and estuary, are for a 500-acre marina and flood control facilities. The marina proposal would entail exten- sive dredging and filling of Tia Juana Estuary, and would very conceivably be contradictory to preservation policies of the Coastal Plan. The issue of. flood control revolves around the extent to which such facilities are neededt and their impact on significant resource and agricultural areas and floodplain management. In the long term, the San Diego Gas & Electric Company has projected a power plant site on its land east of Border Field. The issues of adverse environmental impact, need for additional generating capacity, and the availability of alter- native sites are among those which must be satisfactorily.adressed. Additional development pressures and activities within the River Valley that could conceivably be at odds with Coastal policies would be conversion of agricultural lands to urban uses, and sand and mining activities that would remove material that would naturally replenish the subregion's sand-starved beaches. Based upon the natural resource valu e of Tia Juana Estuary, it is recommended that it be designated as a special study area and a priority acquisition site. Preparation of a management plan would guide future use in accordance with estuarine preservation, and acquisition would aid in the' ultimate preservation and protection of the natural and aesthetic character of the estuary and its buffer area. The redevelopment project, and the development of that area extending south along First, Street toward the estuary, would benefit from preparation of a specific area plan addressing the issues of appropriate densities, public access, urban design, and alternatives to the automobile. -385- NORTH COAST RESOURCE MAP SUPPLEMENTAL NOTES DEL NORTE AND NORTHERN HUMBOLDT COUNTY Significant Coastal Wetlands and Estuaries* 1. Smith River Flood Plain 2. Yontocket Slough; ponds in Sections 4, 5, 8, and 9 of T17N, R1W; Tryon Creek 3. Talawa Slough; Lake Talawa and creeks that drain into it; Lake Earl and creeks that drain into it; McLaughlin Pond; logging ponds in Sections 8 and 9 of T16N, R1W 4. Dead Lake and Adjacent ponds 5. Wetlands in Sections 24, 34, and 35 of T16N, R1W; wetlands in Sections 2 and 11 of T15N, R1W (Cushing Creek and north along coast) 6. Wilson Creek 7. Mill pond 8. Klamath River mouth and flood plain 9. Marsh in Section 9, T11N, R1W, W2-, NW4-- Coastal Streams with Good Riparian Habitat* 1. Gilbert Creek 2. Lopez Creek 3. Mill Creek (empties into Smith River Section 8, T17N, R12W) 4. Johnson Creek 5. Ossagon Creek 6. Butler Creek 7. Boat Creek 8. Home Creek 9. Squashan Creek 10. Pond and stream at Gold Bluff 11. Major Creek Wetlands, estuaries and coastal streams are numbered consecutively from north to south. More precise locations of these resources are identified on maps at a scale of 1:62,500 in the North Coast Regional office and in the Statewide office of the Coastal Commission. NORTH COAST PLAN MAP SUPPLEMENTAL NOTES DEL NORTE COUNTY COASTAL BEACH PARKS AND ACCESS County Parks and Access Clifford Kamph Memorial Park Mouth of Smith River Access Pala Park Kelloze Road Beach Access Point St. Geor-ae Beach Access Pebble Beach Access Crescent City Parks and Access North Beach Pebble Beach South Beach and numerous smaller access facilities State Parks and Beaches Pelicah State Beach Del Norte Coast Redwoods State Park Federal Areas Redwoods National Park Offshore Rocks Hunter Rock Prince Island Castle-Island False Klamath Rock Redding Rock Ll NORTH COA ST RESOURCE MAP SUPPLEMENTAL NOTES HUMBOLDT COUNTY Significant Coastal Wetlands and Estuaries* 1. Redwood Creek flood plain 15. Marsh and oxidation pond in Sections 2. FreshwaterLagoon 31 and 32, T6N, RlE, and Sections 3. Stone Lagoon 5 and 8, T5N, RlE 4. Dry Lagoon 16. Gunther Island, Woodley Island, 5. Big Lagoon and associated marshes Daby Island and marsh in Sections 6. Little River flood plain 23 and 2-4, T5N, R1W 7. Clam Beach ponds 17. Marsh and ponds in Sections 29 8. Wetland at mouth of Widow White and 32, T5N, R1W Creek, Section 51 T7N, R1W 18. Marsh, Section 28, T5N, RIW 9. Wetlarld in T7N, RIW, Section 36 19. Elk River and adjacent marsh, and Sectlon T6N, R1W; Mad River Sections 4 and 5, T5N, R1W flood plain- 20. Marsh, Sections 7, 8 and 17, T4N, 10. Essex Pond and adjacent marsh R1W 11. Marsh in Section 16, T6N, RlE 21. Marsh, Section 26, T4N, R1W and 12. Humboldt Bay, Hookton Slough flood plain 13. Mad River Slough 22. Eel River flood plain west of 14. Marsh-and ponds in Sections 3 and Centerville Road 10 of T5N, R1W 23. Bear River 24. Mattole River Coastal Streams with Good Riparian Habitat:* 1. Skunk Cabbage Creek 23, Mill Creek 2. Johnson Creek 24. McConnahas Creek 3. Redwood Creek 25. Dead Man's Creek 4. Prairie Creek and tributary 26. Luffenholtz Creek 5. No Name Creek, T11N, to southeast 27. Eighteen Creek of Redwood Creek 28. Little River and South Fork 6. Freshwater Lagoon and streams Little River leading into it 29. Coon Creek 7. Stone Lagoon 30. Bullwinkle Creek 8. McArthur Creek 31. Ponds along highway by Clam 9. Elan Creek Beach 10. Dry Lagoon 32. Grassy Creek 11. McDonald Creek 33. Patrick Creek 12. Tom Creek 34. Strawberry Creek 13. Diamond Creek 35. West White Creek. 14. Big Lagoon 36. Mill Creek 15. Gray Creek 37. Mad River Slough 16. Maple Creek and north fork 38. Liscom Slough Maple Creek 39. Jacoby Creek 17. Pitcher Creek 40. Washington Gulch Creek 18. Perm Creek 41. Fay Slough 19. Beach Creek 42. Freshwater Slough and Greek 20. Burris Creek 43. Ryan Creek Slough 21. Savage Creek 44. Singley Creek 22. McNeil Creek 45. MeNut Gulch Wetlands, estuaries and coastal streams are numbered consecutively from north to south. More precise locations of these resources are identified on maps at a scale of 1:62,500 in the North Coast Regional office and in the Statewide office of the Coastal Commission. NORTH COAST PLAN MAP SUPPLEMENTAL NOTES H=QLDT COUNTY COASTAL EEACH PARKS AND ACCESS County Parks and Access Redwood Creek Big Lagoon Luffenholtz Clam Beach Park Mad River Park Samoa Boat Ramp Fields Landing Boat Ramp Ta@le Bluff Pedrazzini County Park Centerville Beach City-of Eureka Parks and Access Somoa Airpark Recreational Area Bay Access (adjacent to Samoa Boat Ramp) State Parks and Beaches rairie Creek Redwood State Park Dry Lagoon* State Park P Patricks Point State Park Trinidad State Beach Little River State Beach Federal Areas Redwoods National Park King Range National Conservation Area Offshore Rocks White Rock Green Rock Flatiron Rock Pilot Rock Little-River Rock False Cape Rock Sugarloaf Rock Steamboat Rock NORTH COAST RESOURCE SUPPLEMENTAL NOTES MENDOCINO COUNTY Significant Coastal Wetlands and Estuaries* T. Usal Creek 14. Big River 2. Cottoneva Creek 15. Little River 3. Hardy Creek 16. Albion River 4. Juan Cre-ek 17. Little and Big Salmon Creek 5. Howard Creek mouth 18. Navarro River 6. DeHaven Creek mouth; Wages Creek 19. Greenwood Creek 7. Ten Mile River 20. Elk Creek 8. Inglemok Creek and Fen 21. Alder Creek 9. Sandhill Lake Section, 17, T19W, 22. Wetlands in middle of Section R17W 13, T13N, R17W 10. Lake Cleone 23. Brush Creek 11. Pudding Creek 24. Hunter's Lagoon 12. Noyo River 25. Garcia River; Hathaway Creek 13. Caspar Creek 26. Gualala River Coastal Streams with Good Riparian Habitat* 1. Cottoneva Creek 14. Salmon and Little River 2. Hardy Creek; Juan and Little Juan 15. Navarro River Creeks 16. Greenwood Creek 3. DeHaven Creek; Wages Creek 17. Elk Creek 4. Ten Mile River 18. Mallo Pass Creek 5. Pudding Creek 19. Irish Creek 6. Hare Creek 20. Alder Creek 7. Jughandle Creek 21. Brush Creek 8. Caspar Creek 22. Point Arena Creek 9. Russian Gulch 23. Mote Creek 10. Jack Peters Creek 24. Schooner Gulch 11. Big River 25. Big Gulch 12. Little River 26. North Fork Gualala River 13. Buckhorn Creek 27. Gualala River *Wetlands, estuaries and coastal streams are numbered consecutively from north to south. More precise locations of these resources are identified on maps at a scale of 1:62,500 in the North Coast Regional office and in the Statewide office of the Coastal Commission. NORTH COAST PLAN MAP SUPPLEMENTAL NOTES MENDOCINO COUNTY COASTAL BEACH PARKS AND ACCESS, 7V County Parks and Access :-". South Kibesillah Gulch Access Seaside Beach Acces@q Heeser Drive Beach Access Navarro Beach Access City of Fort Bras@g none at the present time) State Parks and Beaches Westport Union Landing State Beach Mac Kerricher State Park Casper Headlands State Park Russian Gulch State Park Mendocino Headlands State Park Van Damme Beach State Park Manchester Beach State Park Federal Areas (none at the present time) Offshore Rocks Cape Vizcanio Goat Island Devils Basin Rock White Rock Fish Rock Point Arena Rock NORTH CENTRAL COAST RESOURCE MAP SUPPLEMENTAL NOTES SUPPLEMENTAL MAP NOTES 1. Designated timberlands are approximate and do not differentiate between commercial and non-commercial timberlands. 2. Landslide and slope stability information is not yet available for: (a) Sea Ranch subdivision; (b) Jenner Bay subdivision; (c) Bodega Harbour subdivision; (d ) all state Parks in Sonoma County; (e) area on the east side of Tomales Bay from Marin County Line south to Pt. Reyes Station; (f) area between Stinson Beach and the Golden Gate. PRINCIPAL RESOURCE MAP INFORMATION SOURCES Asso. of Bay Area.Governments: Ocean Coastline Study Department of Navigation and Ocean Development: California Comprehensive Ocean Area Plan; Appendices 3,4,5,7, & 9 California Division of Forestry: Soil-Vegetation Maps U.S. Geological Survey: (a) Atlas of Urban & Regional Change (EROS program); (b) Flood Prone Areas-Water Resources Investigation 3773; (c) Tsunami Imundation, MF-480; (d) various geologic reports & papers U.S. Soil Conservation Service: County soil surveys California Department of Parks,& Recreation: California Coastline Preservation and Recreation Plan California Department of Fish & Game: Fish & game reference material California natural areas coordinating council: A Selected Listing of Natural Areas of California, 1974 County of Marin : (a) The Marin County Wide Plan; (b) Agriculture Preserve Map County of Sonoma: (a) Environmental Resources Management, Volume 1&2; (b) Geology for Planning on the Sonoma Coast, Preliminary Reports 16 & 20 NORTH CENTRAL PLAN MAP SUPPLEMENTAL NOTES 1. Preclude further subdivision and purchase or consolidate lots as necessary at Sea Ranch to reduce planned level of growth consistent with capacity budgets for Highway 1 and Skaggs Springs Road. Encourage home rental program. Acquire several undeveloped subdivision units (e.g., Units 34 and 8) for view protection and day6- use facilities. Utilize environmental deposit fund to accomplish established overall conditions. 2. Establish population holding.capacity for Bodega Bay at 700 persons to retain scale and character of coastal fishing vi-Ilage. Develop additional campsites and commercial visitor accommodations to approximately double current facilities. Provide additional berthing facilities for commercial fishing fleet only, but special area plan should establish ultimate number of vessels to be berthed in Bodega Harbor. U.C. Marine Lab to remain a modest sized research facility rather than a classroom campus. Development at the Bodega Harbour subdivision should be limited to a maximum of 500 units, with preference in additional development given to lodge facilities. 3. Increase design speed, capacity and signing of Lucas Valley.-Point Reyes Station Road to provide main access to campgrounds and trails in Golden Gate National Recreation Area and Point Reyes National Seashore and also to relieve current heavy demands on Sir Francis Drake Boulevard, Panoramic and Highway 1. Improvements to Panoramic Highway should emphasize transit access over expanded auto facilities, but would provide a major access route to ridgetop trailheads in the GGNRA. Mini- mal improvements to Highway 1 should be limited to correction of safety problems. '4. Acquire sandy beach along entire length of the Seadrift spit from dunes to public dunes to public tidelands, as well as beach and dune area along Mira Vista Avenue in Stinson Beach, for addition to the adjacent Golden Gate National Recreation Area. Develop parking facilities and rest rooms to serve north end of beach. 5. Limit further residential development at Bolinas, Stinson Beach and Muir Beach to presently subdivided lots and historic growth rate. Establish several additional modest-sized visitor facilities in the two larger villages. In Muir Beach, visitor facilities must be quite small to maintain scale with existing structures. Continue construction moratorium at Stinson Beach until construction of community sewerage solution. Commercial recreation should be provided (but severely restricted)at the Cliff House site; commercial recreation facilities of an intense, urban nature should be developed on the southerly two blocks of the Playland site. The northerly block should be acquired for addition to GGNRA. 7. Limit further development of all open lands around Lake Merced to non-structural recreational facilities open to the general public. The existing police facilities and shooting range should be phased out. Protect fragile areas of Fort Funston from overuse, with no development of (najor facilities. CENTRAL COAST RESOURCE MAP SUPPLEMENTAL NOTES Those wetlands an estuaries within the Central Coast Region are as follows: San Mateo Countv i. Laguna Salada 5. San Gregorio Creek Mouth 2. Princeton Marshes 6. Cascade Creek Marshes 3. Pilarcitos Creek Lagoon 7. Green Oaks Marsh 4. Turitas Creek Mouth 8. Pescadero Marsh Santa Cruz County 1. Waddell Creek Mouth 13. White's Lagoon 2. Scott Creek Marsh 14. Buzzard Lagoon 3. Laguna Creek Marsh 15. Valencia Lagoon 4. Baldwin Creek Marsh 16. Ellicott Station Pond 5. Wilder Creek Lagoon 17. Corralitos Lagoon 6. Younger Lagoon (Terrace Point 18. Pinto Lake Research Site) 19. Watsonville Slough 7. Moore Creek Lagoon 20. Kelly Lake 8. Neary's Lagoon 21. Drew Lake 9. Upper Wood's Lagoon 22. Lake Tynan 10. Schwan Lake 23. Bonita Lagoon 11. Corcoran Lagoon 24. Harkins Slough 12. Moran Lake 25. Black Point Lagaoon Monterey County 1. Elkhorn Slough System (including Bennett Slough, Moro Cojo Slough,Tembladero Slough, and McClusky Slouch) 2. San Miguel Pond 3. Espinosa Lake 4. Salinas River Mouth,Estuary (including Ponds and Old Salinas River) 5. Marina vernal Ponds (#1 through #6 and #9 through #11 as defined in Marina Freeway Environmental Report of November, 1973) 6. Lagoona Del Rey (including "Robert's Lake") 7. Del Monte Lake 8.. El Estero 9. Crespi Pond 10. Lake Majella 11. Carmel River Estuary 12. Little Sur Lagoon 13. Point Sur vernal ponds 14. Big Sur River Mouth Source Of Map INFORMATION I Generalized Vegetation Cover (California Region).Compiled from USGS Californi State Map 1:500,000 2. Composite Seismic Hazards of the Central Coast Region. Compiled by USGS for Central Coast Commission Central California 1:200,000 3. A Selected List of the Natural Area of California. Compiled by the California Natural Areas Coordnating Council, October, 1974 (In Cooperation with State of California Office of Planning and Research) At the Crossroads (A Report on California's Endangered and Rare Fish and wildlife, 1972-74 5. California Coastline Preservation and Recreation Plan. The Resources Agency Department of Parks and Recreation, 1971 CENTRAL COAST PLAN MAP SUPPIMENTAL NOTES Outstanding Land:7n.-ks, Natual Areas, Historic H&h Priorit-Y Public Management Areas (I) Areas, and Promi-nent Landforms @Not currently under scenic protection) (A) Daly City bluffs Pacifica beaches and headlands Mori Point Fitzgerald Marine Reserve undeveloped uplands Nussel Rock San Mateo Midcoast Beaches San Pedro Rock Pescadero Marsh Montara Light Station Davenport Landing pillar Point Scott Creek Pigeon Point and Lighthouse Natural Bridges Park Ano Nuevo Lighthouse Lighthouse Field Sand Hill Bluff San Lorenzo River Mouth Point Santa Cruz and eastern part of Santa Cruz Harbor (adjacent lands) Idghtbouse Field Pajaro Coast Beaches Arena Gulch Elkhorn Slough (adjacent lands) Elkhorn Slough Dunes and Beaches west of Highway I Point Pinos and Lighthouse (Marine to Monterey) San Jose Creek canyon Big Sur beaches,, upland support areas, Bixby and Rocky Creek bridges highway viewshed Little Sur River gorge Los Padres National Forest Pico Blanco Point Sur and Lighthous@ '@Qecial Coastal Neighborhoods (I)* Victorian era houses: Santa Cruz, Watsonville, Pacific Grove Skyline area (Daly City) Historle railroad depots, Ocean Shore and West Pacific Manor Southern Pacific RRs West Sharp Park Pacifica Rockaway Beach Pedro Point/Shelter Cove Princeton Scenic Road Corridors (A) Miramar Peseadero HiZhwaY 35 and 1 (continuous) Davenport Pescadero Road Lighthouse Point Bean Hollow Road State Road Beach Hill Swanton Road - Davenport Landing Road East Side Santa Cruz West Cliff Drive, Santa Cruz Capitola Village Riverside Drive (State 129) Moss Landing Pajaro Coast Scenic Drive West Marina San Andreas Road Fisherman's Wharf McGowan Road Cannery Row Monterey Trafton Road Pacific Grove Bluff Road Pebble Beach Jensen Road Carmel Elkhorn Road - Castroville Blvd. Monterey Peninsula Scenic Drive Lighthouse Avenue Cannery Row Areas of Outsta-idiry, Scenic 'Qualit (A) Oceanview Blvd. (Historic District-, and Landscape Preservation Sunset Drive Projects) Seventeen Mile Drive Scenic Road Pescadero Carmel Valley Road Ano Nuevo CELd Coast Road Natural Bridges (Bixby Canyon - Bir Sur River) Monterey Bay Dunes Sycamore Canyon Road Asilomar Pt. Lobos. Big Sur Monterey Historic District �Recial. Marine and Wetland EmAronments Mission San Carlos Borromeo (Preclude development with adverse 17acts - K) Mission Santa Cruz James V. Fitzgerald Marine Reserve Sweeney Ridge Pescadero Creek and Marsh Ano Nuevo Marine Reserve and Creek Terrace Point and Moore Creek Lagoon Elkhorn Slough System Hopkins and Pacific Grove Marine Refuges K - Marine Environment R - Recreation Carmel Bey L - Coastal Land Environment E - Energy Point Lobos State Reserve G - Geology T - Transportation California Sea Ctter Game Refuge A - Appearance and Design I - Intensity of Develorpmet, CENTRAL COAST --DESO-(IRCE MAP SUPPLEMENTAL NOTES Those wetlands and estuaries within the Central Coast Region are as follows: San Mateo County 1. Laguna Salada 5. San Gregorio Creek Mouth 2. Princeton Marshes 6. Cascade Creek Marshes 3. Pilarcitos Creek Lagoon 7. Green Oaks Marsh 4. Tunitas Creek Mouth 8. Pescadero Marsh Santa Cruz County 1. Waddell Creek Mouth 13. White's Lagoon 2. Scott Creek Marsh 14. Buzzard Lagoon 3. Laguna Creek Marsh 15. Valencia Lagoon 4. Baldwin Creek Marsh 16. Ellicott Station Pond 5. Wilder Creek Lagoon 17. Corralitos Lagoon 6. Younger Lagoon (Terrace Point 18. Pinto Lake Research Site) 19. Watsonville Slough 7. Moore Creek Lagoon 20. Kelly Lake 8. Neary's Lagoon 21. Drew Lake 9. Upper Wood's Lagoon 22. Lake Tynan 10. Schwan Lake 23. Bonita Lagoon 11. Corcoran Lagoon 24. Harkins Slough 12. Moran Lake 25. Black Point Lagoon Monterey County 1. Elkhorn Slough System (including Bennett Slough, Moro Cojo Slough,Tembladero Slough, and McClusky Slough) 2. San Miguel Pond 3. Espinosa Lake 4. Salinas River Mouth Estuary (including Ponds and Old Salinas River) 5. Marina vernal ponds (#1 through #6 and #9 through #11 as defined in Marina Freeway Environmental Report of November, 1973) 6. Laguna Del Rey (including "Robert's Lake") 7. Del Monte Lake 8. El Estero 9. Crespi Pond 10. Lake Majella 11. Carmel River Estuary 12. Little Sur Lagoon 13. Point Sur vernal ponds 14. Big Sur River Mouth SOURCE OF MAP INFORMATION 1. Generalized Vegetation Cover (California Region).Compiled from USGS California State Map 1:500,000 2. Composite Seismic Hazards of the Central Coast Region. Compiled by USGS for Central Coast Commission Central California 1:200,000 3. A Selected Listing of the Natural Areas of California. C ompiled by the California Natural Areas Coordinating Council, October, 1974 (In Cooperation with State of California Office of Planningand Research) 4. At the Crossroads (A Report on California's Endangered and Rare Fish and Wildlif e, 1972-74) 5. California Coastline Preservation and Recreation Plan. The Resources Agency, Department of Parks and Recreation, 1971 CENTRAL COAST PLAN MAP SUPPLMENTAL NOTES Outstanding Landmarks, Natural Areas, Historic High Priority Public Management Areas (I) Areas, and Prominent Landforms Not currently under scenic protection) (A) Daly City bluffs Pacifica beaches and headlands Mori Point Fitzgerald Marine Reserve undeveloped uplands Mussel Rock San Mateo Midcoast Beaches San Pedro Rock Peseadero Marsh Montara Light Station Davenport Landing Pillar Point Scott Creek Pigeon Point and Lighthouse Natural Bridges Park Ano Nuevo Lighthouse Lighthouse Field Sand Hill Bluff San Lorenzo River Mouth Point Santa Cruz and eastern part of Santa Cruz Harbor (adjacent lands) Lighthouse Field Pajaro Coast Beaches Arana Gulch Elkhorn Slough (adjacent lands) Elkhorn Slough Dunes and Beaches west of Highway 1 Point Pinos and Lighthouse (marine to Monterey) San Jose Creek canyon Big Sur beaches, upland support areas Bixby and Rocky Creek bridges highway viewshed Little Sur River gorge Los Padres National Forest Pico Blanco Point Sur and Lighthouse Special Coastal Neighborhoods (I)* Victorian era houses: Santa Cruz, Watsonville, Pacific Grove Skyline area (Dale City) Historic railroad depots, Ocean Shore and West Pacific Manor Southern Pacific RRs West Sharp Park Pacifica Rockaway Beach Pedro Point/shelter Cove Princeton Scenic Road Corridors (A) Miramar Peseadero Highway 35 and 1 (continuous) Davenport Pescadero Road Lighthouse Point Bean Follow Road - State Road Beach Hill Swanton Road - Davenport Landing Road East Side Santa Cruz. West Cliff Drive, Santa Cruz Capitola Village Riverside Drive (State 129) Moss Landing Pajaro Coast Scenic Drive West Marina Sari Andreas Road Fisherman's Wharf McGowan Road Cannery Row Monterey Trafton Road Pacific Grove Bluff Road Pebble Beach Jensen Road Carmel Elkhorn Road - Castroville Blvd. Monterey Peninsula Scenic Drive Lighthouse Avenue Cannery Row Areas of Outstanding Scenic Quality (A) Oceanview Blvd. (Historic Districts and Landscape Preservation Sunset Drive Projects) Seventeen Mile Drive Scenic Road Pescadero Carmel Valley Road Ano Nuevo Old Coast Road Natural Bridges (Bixby Canyon - Bir Sur River) Monterey Bay Dunes Sycamore Canyon Road Asilomar Pt, Lobos Big Sur SpecialMarine and Wetland Environments Monterey Historic District Mission San Carlos-Borromeo (Preclude development with adverse impacts -M) Mission Santa Cruz James V. Fitzgerald Marine Reserve Sweeney Ridge Peseadero Creek and Marsh Ano Nuevo Marine Reserve and Creek Terrace Point and Moore Creek Lagoon Legend Elkhorn Slough System Hopkins and Pacific Grove Mairine Refuges M - Marine Environment R - Recreation Carmel Ray L - Coastal land Environment E - Energy Point Lobos State Peserve G - Geology T - Transportation California Sea Otter Game Refuge A - Appearance and Design I - Intensity of Development SOUTH CENTRAL COAST RESOURCE MAP SUPPLEMENTAL NOTES Additional Legend to Coastal Resources Map D Diving: Popular scuba areas 4 State Parks and Major Local Parks Wetlands San Carpoforco Creek Estuary Pico Creek Estuary San Simeon rreek Estuary Santa Rosa Creek Estuary Morro Bay Estuary San Luis Obispo Creek Estuary Arroyo Grande Estuary Santa Maria River Estuary Special Marine Habitats California Sea Otter Refuge: Continuing southward from Central Coast to Cambria Seal Rookeries: From Point San Luis Tide Pools: Cayucos araZLnL Grazing Areas were determined from air photos at a scale of 1:120,000 Anadramous Fish Streams San Carpoforco Creek Arroyo de la Cruz Little Pico Creek Pico Creek San Simeon Creek Santa Rosa Creek San Luis Obispo Creek Toro Creek Unavailable Inf ormation The 100-year flood plain and seismic risk areas for San Luis Obispo County coastline were not available at time of printing. SOUTH CENTRAL COAST RESOURCE MAP SUPPLEMENTAL NOTES Additional Lepend to Coastal Resources Map 3 Surfing: Classic Surfing areas D Diving: Popular scuba areas # State Parks and Major Local Parks Wetlands Santa Ynez River Estuary Campus Lagoon Goleta Lagoon DevereuK Slough El Estero Special Marine Habitats Coastal Bluff Intertidal Preserve: From Point Conception to Ellwood Naples Reef Coal Oil Point Natural Reserve Carpinteria Intertidal Zone Grazing, Grazing Areas were determined from air pnotos at a scale of 1:120,000 SOUTH CENTRAL COAST RESOURCE MAP SUPPLE24ENTAL NOTES Additional Legend to Coastal Resources_nap S Surfing: Classic Surfing areas D Diving: Popular scuba areas # State Parks and Major Local Parks Wetlands Ventura River Mouth Santa Clara River Mouth McGrath Lake Mugu Lagoon Special Marine Habitats Mugu Submarine Canyon Hueneme Submarine Canyon Area of Special Biological Significance: Point Mugu to Ventura County line Grazi Grazing Areas were determined from air photos at a scale of 1:120,000 Unavailable Information Hazard information was not available at time of printing for the Channel Islands. SOUTH COAST PLAN MAP SUPPLEMENTAL NOTES DEVELOP CANYON, RIDGELAND, COASTAL TRAILS Potential Trail Locations Subregion 1: Arroyo Sequit, Zuma Canyon, Escondido Canyon, Corral Canyon, Malibu Canyon, Winter Canyon, Carbon Canyon, Tuna Canyon, Topanga Canyon, and Coastal and Ridge trail segment to connect parks. 6: Harbor Trail. 11 and 12:' Trail development in the San Joaquin Hills, and hill areas above Laguna and South Laguna. Potential Flood Control Channel Trails Los Angeles River, San Gabriel River, Santa Ana River @iolqZicall-y Irrrportant Areas ESet aside adequate acreage at each site to assure genetic healTh of the flora and fauna (Plan map Subregion 1: Zuma Canyon and Watershed; Malibu Lagoon, Canyon and Watershed; Tuna Canyon and Watershed; Rustic and Sullivan Canyons; Santa Yhez; Temescal Canyons and Watershed 2: Ballona Creek. 3: Airport Dunes. 4: Madrona Marsh. 5:- Palos Verdes Coast, Portuguese Bend Landslide Area, Bent Spring Canyon, Malaga Canyon, Aqua Amarga Canyon, Rolling Hills Canyon. 6: Terminal Island Site, Harbor Park, and Bixby Slough. 7: San Gabriel River Mouth, North Bank. 8: San Clemente Island-Canyons, seal and sea lion breeding areas; Santa Catalina-Areas to include Cherry Valley, Blackjack Mountaing Middle and Bulrush Canyons, Seal Rocks, Bird Rock, Indian Rock and Salta Verde. 9: Anaheim Bay, Bolsa Bay and Golden West Ponds. 10: Newport Marina, Upper Newport Bay, Bluffs, and Big Canyon and San Joaquin Marsh. 11: Pelican Hill, San Joaquin Hills. 12: Laguna Lake and Watershed; Aliso-Creek and Water- shed; South Laguna Hills, Wood Canyon, Niguel Lake. 13: San Juan River Mouth. Fault Zones [recommended for study under the Alquist-Priolo Geologic Hazards Zone Actl Newport-Inglewood Santa Monica-Malibu Palos Verdes SOUTH COAST PLAN MAP SUPPLEMENTAL NOTES DEVELOP CANYON, RIDGELAND, COASTAL TRAILS Potential Trail Locations subregion 1: Arroyo Sequit, Zuma Canyon, Escondido Canyon, Corral Canyon, Malibu Canyon, Winter Canyon, Carbon Canyon, Tuna Canyon, Topanga Canyon, and Coastal and Ridge trail segment to connect parks. 6: Harbor Trail. 11 and 12: Trail development, in the San joaquin Hills, and hill areas above Laguna and South Laguna. Potential Flood Control Channel Trails Los Angeles River, San Gabriel River, Santa Ana River Biologically Important Areas [Set aside adequate acreage at each site to assure genetic health of the flora and fauna (Plan map Subregion 1: Zuma Canyon and Watershed; Malibu Lagoon, Canyon and Watershed; Tuna Canyon and Watershed; Rustic and Sullivan Canyons; Santa Ynez; Temescal Canyons and Watershed 2: Ballona Creek. 3: Airport Dunes. 4: Madrona Marsh. 5: Palos Verdes Coast, Portuguese Band Landslide Area, Bent Spring Canyon, Malaga Canyon, Aqua Amiarga Canyon, Rolling Hills Canyon. 6: Termial island Site, Harbor Park, and Bixby Slough. 7: San Gabriel River Mouth, North Bank. 8: San Clemente Island-Canyons, seal and sea lion breeding areas; Santa Catalina-Areas to include Cherry Valley, Blackjack Mountain, Middle and Bulrush Canyons, Seal Rocks, Bird Rock, Indian Rock and Salta Verde. 9: Anaheim Bay, Bolsa Bay and Golden West Ponds. 10: Newport Marina, Upper Newport Bay, Bluffs, and Big Canyon and San Joaquin Marsh. 11: Pelican Hill, San Joaquin Hills. 12: Laguna Lake and Watershed; Aliso Creek and Water- shed; South Laguna Hills, Wood Canyon Niguel Lake. 13: San Juan River Mouth. Fault Zones [recomended for study under the Alquist Priolo Geologic Hazards Zone Act Newport-Inglewood Santa Monica-Malibu Palos Verdes SAN DIEGO REGION RES0URCES MAP SUPPLEMENTAL NOTES COASTAL WETLANDS AND ESTUARIES HABITAT AREAS: Wetlands 1. Banks of the San Mateo Creek. Grassland San Mateo Marsh and riparian woodland 2,300 acres of the Los Flores Morsh valley have been leased from Camp Pendle- San Luis Rey River ton by the California Department of Parks Loma Alta Slough and Recreation for camping and wildlife Canyon de los Encinas Marsh reserve. 2. Banks of San Onofre Creek. Riparian Soledad Creek woodland. Mission Bay Marsh Reserve 3. San Onofre Bluffs and Camp Pendleton Famosa Street Slough Coast from Las Flores Marsh to Oceanside San Diego River Flood Control Channel Marsh West of 1-5. Grassland, Marshes & Mudflats of South San Diego Bay 4. Camp Pendleton Coast from Japanese Mesa Estuaries to Las Flores Marsh East Side of 1-5. Coastal sage. Santa Margarita Marsh 5. Mouth of Las Flores Creek. Coastal sage. Buena Vista Lagoon 6. Mouth of Santa Margarita Creek. Coastal Agua Hedionda Lagoon sage. Nesting site for two endangered Batiquitos Lagoon species, California least tern and Beld- San Elijo Lagoon ing's savannah sparrow. San Dieguito Lagoon 7. Mouth of San Luis Rey River. Grassland. Los Penasquitos Lagoon Existing wildlife has been substantially Deep water portions of Mission Bay decreased by urban development. Deep water portions of San Diego Bay 8. Land SurroundingBuena Vista Lagoon. A Tia Juana Estuary Complex (inc. Oneonda Lagoon) small riparian community upstream from NOTE: the lagoon and on the southeast perimeter, Lagoon systems designated to be retained in, or 9. Land Surrounding Agua Hedionda. Coastal restored to tidal action. (San Diego Coast Re- sage except on the north shore where gional Commission Marine Environment policy # 2; development has replaced vegetation. At State Commission Marine Environment policy 2- the extreme east end, there is a several regional amp.). acre marsh with riparian vegetation. 10. Land Surrounding BatiQuitos. Coastal sage south side, grassland north and east side, ADDITIONAL SIGNIFICANT AREAS (UNMAPPED) riparian southern perimeter. 11. Encinas Canyon. Riparian. Tidepool Areas: 12. Encinitas Boulevard Canyon. Coastal sage. 1. San Mateo Point Area 13. Cardiff Canyon Coastal sage. 2. Torrey Pines Area 14. Land Surrounding San Flijo. Coastal sage 3. Scripps Pier Area and grassland. 4. Point La Jolla Area 15. Lux Canyon. Riparian. 5. Windansea Beach Area 16. San Diego Valley. Coastal sage and 6. Bird Rock Area grassland. 7. False Point Area 17. Gonzales Canyon. Coastal sage. 8. Mariners Point Area 18. Carmel Vall Woodland on northeast side. 9. Ocean Beach Municipal Pier Area 19. Soledad Valley. Coastal sage woodland on 10. Sunset Cliffs Area south side. 11. Point Loma Area 20. Penasquitos. Coastal sage on east and Littoral Cells: north side. Coastal forest on south side, 1. Oceanside city owned property. 2. Mission/Ocean Beach 21. Crest Canyon. Chaparral. 3. Silver Strand 22, Del Mar Canyon. Chaparral. Pocket Beach Areas: 23. Torrey Pines-Reserve and Proposed Extension. 1. La Jolla Coastal forest. State Reserve with 280 acres 2. Point Loma of marshland proposed for acquisition with Unstable Bluff Areas: funds from 1974 Bond issue. 1. San Onofre 24. Mt. Soledad. Coastal sage. 2. Leucadia/Encinitas 25. Tecolote Canyon. Coastal sage. 3. Del Mar 26. Fort Roscrans. Coastal sage. 4. Torrey Pines Cabrillo National Monument. Coastal sage. 5. La Jolla Currently an 87 acre U.S. Department of 6. Sunset Cliffs - Point Loma Interior Reserve with 54.9 additional acres of Navy surplus land proposed for acquisition pending Congressional approval. MAP NOTES: 28. Kendall Frost Reserve (Mission Bay). Areas of potential hazard to public safety University of California Reserve. include floodplains only, due to inconsis- 29. U.S. Navy Radio Station (Silver Strand). tency in other hazard information at time Beach strand. of printing. 30. Sweetwater Riverbed. Riparian. Grazing lands have not been delineated within 31. Paradise Riparian. agricultural areas due to inconsistency in 32. Otay River. Riparian. 33. Border Field, Land Surrounding Tin Juana information at tine of printing. Esruary. Grassland. Currently being Due to the charateristcally small scale of examined by the U.S. Bureau of Sports coastal floriculture, seen important sites Fisheries for environmental impact of within urban areas have been excluded. proposed state park. MAJOR SOURCES San Diego Comprchensive Planning, Organization, Initial Coastline Plan, 1974, and Open Space Study, 1974. Conrock Corporation. San Diego County Agricultural Adviser's Office. Western Surfing Association. SAN DIEGO COAST PLAN MAP SUPPLEMENTAL NOTES COASTAL SITES OF REGIONAL SIGNIFICANCE SPECIAL STUDY AREAS A PRIORITY AC2UISITION SITES [of title or public use rightsJ (from north to south; ONatural Resource/Productive Resource Area does not reflect priority) 1. San Mateo Marsh In wetland areas, potential existence of 2. Las Flores Marsh public trust doctrine shall be investigated 3- Santa Margarita Marsh prior.to acquisition. 4- San Luis Rey River Mouth 1. San Luis Rey River Marsh 5. Loma Alta Slough - 2. Area surrounding Buena Vista Lagoon 6. Buena Vista Lagoon 3. Area surroundin-a Agua Hedionda Lagoon 7. Agua Hedionda Lagoon 4- Encina Power Plant Beach Front 8. Oceanside/Carlsbad 5- South Carlsbad State Beach (extension Agricultural Lands to north and south) 9. Batiquitos Lagoon 6. Batiquitos Lagoon and surrounding area 10. San Elijo Lagoon 7. Area between Sea Cliff County Park and 11. San Dieguito Lagoon San Elijo State Beach 12. Los Penasquitos Lagoon 8. San Elijo Lagoon and surrounding area 13- San Diego River Mouth 9. Area between San Elijo State Beach and 14. Famosa Street Slough Cardiff State Beach (State Park Bond 15. Sweetwater Marsh Complex proposed acquisition) 16. South Bay Salt Ponds 10. San Dieguito Lagoon and surrounding 17. Tia Juana Estuary area (excluding.race track) - OUrban Areas 11. Los Penasquitos Lagoon and surrounding 1. Oceanside Harbor/Strand area (portion proposed for State Park 2. Carlsbad CBD/Transition Area Bond acquisition) 3. Leucadia/Encinitas Business Districts 12. Sweetwater Marsh complex 4. San Dieguito Communities (Bluff Top 13. Tia Juana Estuary (portion roposed for Portions) State Park Bond acquisition.3 5. Cardiff Duplex Transition Area ElContingency Areas (public lands when de- 6. Solana Beach Business District clared surplusi- 7. Old Hotel Del Mar Site 1. Camp Pendleton 8. Carmel Valley Road adjacent hillsides 2. Naval Electronics Lab, Coast Guard, 9. La Jolla/La Jolla Shores Fort Rosecrans 10. Pacific Beach 11. Mission Beach 3. Lindbeigh Field, Marine Corps Recruit 12. Ocean Beach Depot, Naval Training Center 13- San Diego Bay Front (corresponds with 4. North Island Port District study areas) of Special 5- San Diego Naval Station Interest: 6. Ream Field - Navy Field SUBREGIONS - Embarcadero 1. Pendleton Coast - Glorietta Bay 2. Oceanside - Shelter/Harbor Island 3- Carlsbad 14. Barrio Lagoon 4- San Dieguito: Leucadia, Encinitas, 15- Imperial Beach Redevelopment Area Cardiff, Solana Beach Recreation Areas 5. Del Mar 1. Del Mar Muffs (potential for linear 6. Torrey Pines/La Jolla park) 7. Pacific Beach, Mission Beach, Ocean 2. Torrey Pines Clt@ Park (resolution Beach, Mission Bay 8. Point Loma/North Island of use conflict S 9. San Diego City Bayfront 3. Ladera Street Park (access) 10. Coronado/Silver Strand 4. Mission Bay 11. South San Diego Bay 12. Imperial Beach/Tia Juana River Waley 3 6668 00000 65",