[From the U.S. Government Printing Office, www.gpo.gov]
'a Ifornia Coasa Pan California Coastal Zone Conservation Commissions December 1975 The California Coastal Plan was prepared with financial assistance from the Office of Coastal ZoeManagement, National Oceanic and Atmospheric Administration, under the provisions of the Federal Coastal Zone Management Act of 1972. State Coastal Commission 1540 Market Street San Francisco, California 94102 (415) 557-1001 North Coast Regional Commission 1656 Union Street, Room 150 (P.O. Box 4946) Eureka, California 95501 (707) 443-1623 North Central Coast Regional Commission Holiday Plaza Office Building, Suite 130 1050 Northgate Drive San Rafael, California 94903 (415) 472-4321 Central Coast Regional Commission 701 Ocean Street, Room 300 Santa Cruz, California 95060 (408) 426-7390 South Central Coast Regional Commission 330 East Canon Perdido Santa Barbara, California 93101 (805) 965-6525 South Coast Regional Commission 666 East Ocean Boulevard, Suite 3107 (P. 0. Box 1450) Long Beach, California 90801 (213) 436-4201 San Diego Coast Regional Commission 6154 Mission Gorge Road, Suite 220 San Diego, California 92120 (714) 280-6992 Copies of the California Coastal Zone Conservation Plan may be purchased from: Documents and Publications Branch P. 0. Box 20191 Sacramento, California 95820 Price $4.50 STATE OF CALIFORNIA EDMUND G. BROWN JR., Governor CALIFORNIA COASTAL ZONE CONSERVATION COMMISSION .1540 MARKET STREET, 2nd FLOOR SAN FRANCISCO, CALIFORNIA 94102 PHONE: (415) 557-1001 December 11 1975 TO GOVERNOR EDMUN G. BROWN JR., THE MEMB3ERS OF THE CALIFORNIA LEGISLATURE, AND THE PEOPLE OF CALIFORNIA This report transmits to you the California Coastal Plan mandated by the Coastal Initiative (Proposition 20) in 1972. The Coastal Plan has evolved through countless hours of public hearings, public review of draft proposals, and informational meetings- public participation in resource planning on a scale unmatched in Caqlifornia. Because this Plan takes into account the wide range of often- conflicting -views expressed to us, because the Plan was written by 84 Commissioners on six Regional Commissions and one State Commission, and because we ourselves reflect a broad spectrum of ideas about the coast, the Plan does not speak with a single voice. All of us subscribe to some recommendations more strongly than to others, and aell of us share the frustrations inevitable in being not the sole author but the contributing authors of the Plan. Nonetheless, we submit to you a Plan that we believe speaks for the people of California, a Plan that can guide us in dealing with an uncertain future, a balanced Plan designed to meet two principle 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 in a manner that protects the irreplaceable resources of coastal lands and waters. The Coastal Plan is being delivered on time. We had an extremely limited time within which to prepare it, and a limited amount of money, considering the complexity of our assignment. We recognize that, because this is a long-range Plan, designed to serve California for many years, some of our recommendations cannot be put into effect immediately. And we recognize that there will inevitably be some conflicts among our policy recommendations; difficult choices will have to be made, for example, where a coastal area is ideally suited for recreation but can be degraded by overuse. Thus, we strongly emphasize the need for a continuing California coastal agency to make the sometimes-difficult decisions necessary to insure that the policies of the Plan are put into effect over the next several years. In addition to preparing the Plan, the Regional and State Coastal Commissions have acted on more than 16,000 permit applications since earlyr 1973. The permit procedure in the Coastal Initiative was designed to insure that improper development did not defeat the Plan before it could be completed. We have, however? approved a very high percentage of the permit applications; where necessary, we have required conditions to insure appropriate density of development? protection of ocean views, and, of great importance, increased public access to the oceanfront in appropriate areas. To meet the deadlines in the Coastal Initiative, the workload for us has been enormous. The Commissioners, all of whom serve part-time, have put in long hours of meeting and preparation time. Commission and staff members have worked nights, weekends, and holidays to meet deadlines. I know of few governmental agencies where so much work has been done for the taxpayer's dollar. Now? the future of the California coast is in your hands; under present law, the Coastal Commissions will go out of existence on December 31, 1976. We stand ready to help in any way we can as you consider the Coastal Plan, and its proposals for the conservation and wise use of the California coast. Sincerely, M. B. Lane Chairman CALIFORNIA COASTAL PLAN v * ~CONTENTS Letter of Transmittal iii Commissioners viii PART I: SUMMARY AND INTRODUCTION 1 The Coastal Initiative and the Future of the Coast 3 Major Findings and Policy Recommendations 5 Carrying Out the Plan 12 Applying Plan Policies 14 The Future Envisioned by the Plan 15 National Interest in the Coast 16 Public Interest in the Coastal Zone 18 Ecological Planning Principles 19 Rights of Property Owners 19 Economic Impact of the Plan 21 PART II: FINDINGS AND POLICIES 23 BASIC GOALS FOR COASTAL PLANNING (Policy 1) 25 MARINE ENVIRONMENT (Policies 2-20) 26 Ocean Resources Management 26 Coastal Water Quality 30 Waste Discharges 30 Heated and Cooled Discharges 32 Oil and Toxic Spills 34 Runoff 37 Coastal Waters, Estuaries, and Wetlands 38 Sand Movement and Shoreline Structures 43 COASTAL LAND ENVIRONMENT (Policies 21-43) 46 Coastal Streams and Watershed Management 46 Natural Habitat Areas 52 Ag riculIt ure 54 Forestry 62 Soil and Mineral Resources 63 Air Quality 65 COASTAL APPEARANCE AND DESIGN (Policies 44-56) 68 Protecting Coastal Visual Resources 69 Design Guidelines for Viewshed Development 71 COASTAL DEVELOPMENT (Policies 57-70) 76 Development and Natural Resources 76 * ~~~~Special Coastal Communities and Neighborhoods 77 vi � CALIFORNIA COASTAL PLAN Orderly, Balanced Development 79 Concentrating Development in Urban Areas 79 Provision of Public Services 81 Coastal-Dependent and Industrial Development 82 Development in Hazardous Areas 83 Flood Hazard Areas 83 Geologic Hazard Areas 84 Blufftops 89 ENERGY (Policies 71-98) 91 Energy and the Coast 91 Energy Conservation 95 Alternative Energy Sources 101 Energy Facility Siting and Design 110 Power Plants 112 Petroleum Development 117 Refineries 127 Tanker Terminals 130 LNG Facilities 135 TRANSPORTATION (Policies 99-120) 139 Transportation Planning and the Coast 139 Land Transportation 140 Highway 1 and Coastal Roads 140 Parking 144 Public Transit 145 Air Transportation 147 Water Transportation 148 PUBLIC ACCESS TO THE COAST (Policies 121-130) 152 The Right of Public Access 153 Equality of Access 155 Access Through Multiple Use of Coastal Lands 156 RECREATION (Policies 131-148) 158 Recreation and the Coast 160 Recreation and Development 162 Controlling Recreation to Protect Resources 162 Coastal Trails System 164 Marinas 165 EDUCATIONAL AND SCIENTIFIC USE (Policies 149-151) 167 Coastal Reserve System 168 Historical and Prehistorical Resources 169 RESTORATION OF COASTAL RESOURCES (Policies 152-154) 171 PUBLIC ACQUISITION.OF COASTAL LAND (Policies 155-160) 173 FURTHER STAGES OF PLANNING (Policies 161-162) 175 CALIFORNIA COASTAL PLAN W Ii PART III: CARRYING OUT THE COASTAL PLAN 177 Introduction 179 GOVERNMENT ORGANIZATION AND POWERS 179 General Provisions 179 Local Implementation Programs 180 Preparation of Local Programs 180 Certification of Local Programs 184 State Coastal Agency 185 Structure of Coastal Agency 185 Development Review 187 Other Duties and Procedures 188 Public Participation 189 Public Trust Lands 190 ACQUISITION AND RESTORATION 191 FUNDING 194 PART IV: PLAN MAPS AND REGIONAL SUMMARIES 197 Introduction 199 REGIONAL SUMMARIES 199 North Coast 200 North Central Coast 209 Central Coast 227 South Central Coast 235 South Coast 244 San Diego Coast 258 WHAT THE MAPS SHOW 274 SUMMARY MAPS 278 PLAN MAPS 286 North Coast 287 North Central Coast 315 Central Coast 329 South Central Coast 357 South Coast 393 San Diego Coast 411 APPENDIX 421 Glossary 423 Examples of Subregional Plans 426 How the Coastal Plan Was Prepared 430 California Coastal Zone Conservation Act (Proposition 20) 431 Commission Staffs 435 Credits 437 Numerical List of Policies and Recommendations 438 Map Legend (inside back cover) viii * CALIFORNIA COASTAL PLAN COMMISSIONERS' California Coastal Zone Conservation Commission PUBLIC REPRESENTATIVES: REGIONAL COMMISSION REPRESENTATIVES: Fred Farr, attorney and former State Senator, Carmel (S) Ruth E. Andresen, Central Coast Ellen Stern Harris, consumer advocate; member, Federal Emmons Blake, South Central Coast Coastal Zone Advisory Committee, Beverly Hills (A), Dr. Rimmon C. Fay, South Coast Vice-Chairman Jeffrey D. Frautschy, San Diego Coast Melvin B. Lane, magazine and book publisher, Menlo Park (G), Chairman *Philip W. Harry, Central Coast Roger T. Osenbaugh, insurance and marketing executive, James A. Hayes, South Coast Arcadia (G) *Ira Edward Laufer, South Central Coast Bernard J. Ridder, Jr., newspaper publisher, Long Beach (S) *Dwight May, North Coast Richard A. Wilson, rancher, Covelo (A) Robert Mendelsohn, North Central Coast Donald F. Peterson, North Coast *Bernard Vaughn, North Coast North Coast Regional Commission PUBLIC REPRESENTATIVES: COUNTY SUPERVISORS: Mrs. Mildred R. Benioff, businesswoman, Mendocino (A) Ted Galletti, Mendocino County Mrs. Gerry Grader, commercial fish business, Fort Bragg (S) Bernard McClendon, Del Norte County, Vice Chairman *William Grader, commercial fish business, Fort Bragg (S) Donald F. Peterson, Humboldt County; North Coast Dr. Donald W. Hedrick, professor, California State representative on State Commission University, Humboldt (G), Chairman *Guy Rusher, Humboldt County (deceased) Dwight May, cattle rancher, Bridgeville (S) 'John M. Mayfield, Jr., manufacturer, Ukiah (G), former Chairman Richard L. Brown, Mayor of Crescent City William McHugh, labor union representative, Eureka (A) *Ward Falor, former Mayor of Arcata L. R. (Budd)Thomas, president, Eureka Fisheries Inc., (G) *Ray Mast, Councilman, Eureka Ray E. Stewart, Mayor of Fortuna Bernard Vaughn, Mayor of Fort Bragg North Central Coast Regional Commission PUBLIC REPRESENTATIVES: COUNTY SUPERVISORS: Margaret Azevedo, civic leader, Marin County (A), *Dianne Feinstein, San Francisco Chairman Gary T. Giacomini, Marin County 'B. John Bugatto, attorney, San Francisco (G) Robert Mendelsohn, San Francisco; North Central Coast Phyllis Faber, consulting biologist, San Rafael (S) representative on State Commission (alternate: Hans A. *Ellen Johnck, city planner, San Francisco (G) Feibusch, civil engineer, San Francisco) Dr. Bradford W. Lundborg, internist, Santa Rosa (A), *John L. Molinari, San Francisco Vice-Chairman Peter Tamaras, San Francisco (alternate: John L. Molinari) Melville Owen, patent attorney. San Francisco (G) Robert Theiller, Sonoma County Dr. Kenneth M. Stocking, college provost and professor, *Michael Wornum, Marin County; now Assemblyman California State College, Sonoma (G) Wanda Zankich, restaurant/motel owner, Bodega Bay (S) CITY COUNCILMEN: Frank J. Egger, Mayor of Fairfax Gregory Jones, Jr., Councilman, Santa Rosa 1 This list includes all Commissioners who have served since establishment of the California Coastal Zone Conservation Commissions in 1973. Those marked ASSOCIATION OF BAY AREA GOVERNMENTS with asterisks served on the Commissions but were not members as of October REPRESENTATIVE: 3.1975, the date of printing the Coastal Plan. Abbreviations following the names of public representatives show the appointing authority: (G) Governor, Lenard Grote, Vice President of ABAG and Councilman, (S) Senate Rules Committee, (A) Speaker of the Assembly. Pleasant Hill CALIFORNIA COASTAL PLAN � ix Central Coast Regional Commission PUBLIC REPRESENTATIVES: COUNTY SUPERVISORS: Ruth E. Andresen, geologist, Salinas (S); Central Coast Warren Church, Monterey County representative on State Commission *Gerald Day, San Mateo County John Bakalian, land use consultant and pharmacy owner, Gary A. Patton, Santa Cruz County Felton (A) John M. Ward, San Mateo County *Julian Camacho, former senior system analyst, now Deputy Director of State Department of General Services (A) CITY COUNCILMEN: Victoria Gibson, attorney; Carmel (A) Samuel H. Halsted, engineer-planner, Menlo Park (S) *Al Castagnola, former Councilman, Santa Cruz Vice-Chairman B. Joseph Dolan, Jr., Mayor of Seaside Philip Harry, (A) (previously served as a Santa Cruz County Grace McCarthy, Councilwoman, Pacifica; former Vice- Supervisor) *Frank J. Lodato, manufacturer, Mountain View (G), Lorette Wood, Councilwoman, Santa Cruz former Chairman *Robert A. Quinn, Mayor of Pacific Grove *Charles B. Kramer, retired manufacturer, Pebble Beach (G), former Chairman ASSOCIATIONS OF GOVERNMENTS REPRESENTATIVES: *Herbert Rhodes, formerly employee relations, Stanford Dr. James Hughes, dentist and Councilman, Pacific Grove University, now Director of State Department of Parks (appointed by the Association of Monterey Bay Area and Recreation (A) Governments) Norman A. Walters, former Santa Cruz Councilman and Ilene Weinreb, Mayor of Hayward (appointed by the Mayor, retired educator (S), Chairman Association of Bay Area Governments ) South Central Coast Regional Commission PUBLIC REPRESENTATIVES: COUNTY SUPERVISORS: Emmons Blake, businessman, San Luis Obispo (G); South Ralph R. Bennett, Ventura County Central representative on State Commission Harrell Fletcher, Santa Barbara County Allan S. Ghitterman, attorney, Santa Barbara and *Elston L. Kidwell, San Luis Obispo County Ventura (A) *Curtis Tunnell, Santa Barbara County *Gary Hart, formerly University of California, Santa Barbara, M. E. Willeford, San Luis Obispo County now Assemblyman (A) *Bruce Johnson, consultant, Santa Barbara (G) CITY COUNCILMEN: Robert E. Kallman, supervisor, Santa Barbara County (G) Robert H. Newdoll, Councilman, Grover City, Vice- lIra E. Laufer, businessman, Ventura (S) Chairman John Rush, insurance, Camarillo, Chairman of Ventura Dorill B. Wright, Mayor of Port Hueneme, Chairman County Planning Commission (S) Ernest Wullbrandt, Councilman, Carpinteria Naomi Schwartz, civic leader, Santa Barbara (A) J. Tim Terry, insurance executive, Santa Barbara (S) South Coast Regional Commission PUBLIC REPRESENTATIVES: COUNTY SUPERVISORS: *Dr. Donald B. Bright, Chairman of Biological Sciences *Ronald W. Caspers, Orange County (deceased) Department, California State University, Fullerton (G) *Ralph A. Diedrich, Orange County former Chairman James A. Hayes, Los Angeles County (alternate: Frank Casado, restaurant owner, Hollywood (G) Barna Szabo) David Commons, investor and retired film executive, Laurence J. Schmit, Orange County (alternate: Loran Norton) Los Angeles (G) Dr. Rimmon C. Fay, marine biologist, Venice (S); South Coast representative on State Commission CITY COUNCILMEN: *Donald W. Phillips, Councilman, Long Beach (G) Arthur J. Holmes, Councilman, San Clemente Dr. Robert F. Rooney, professor of economics, California Louis R. Nowell, Councilman, Los Angeles State University, Long Beach (S), Chairman Russ Rubley, Councilman, Long Beach, Vice-Chairman Mrs. Judy Rosener, lecturer, Graduate School of Administration, University of California, Irvine (A) SOUTHERN CALIFORNIA ASSOCIATION OF GOVERN- Mrs. Carmen Warschaw, civic leader, Los Angeles (A) MENTS REPRESENTATIVES: *James B. Reidy Jr., Councilman, Santa Monica Dr. Donald E. Wilson, Councilman, Torrance, and Director of Teacher Education, University of Southern California x CALIFORNIA COASTAL PLAN San Diego Coast Regional Commission PUBLIC REPRESENTATIVES: COUNTY SUPERVISORS: 'Cornelius Dutcher, president of Steam Power Systems, Jim Sates, San Diego County I nc. (5) *Lou Conde, San Diego County Lois Ewen, director of land use and environmental quality, William Craven, San Diego County League of Women Voters, San Diego (S) 'Lee R. Taylor, San Diego County Jeffrey Dean Frautschy, associate director of Scripps Institution of Oceanography; (5) San Diego Coast repre- Jack B. Walsh, San Diego County sentative on State Commission CITY COUNCILMEN: Evan V. Jones, president of Ace Auto Park (G) Dr. Elmer A. Keen, professor of geography, California F. Gilbert Johnson, Councilman, San Diego State University, San Diego (A) Rolland M. McNeely, Mayor of Coronado Marvin Kratter, retired real estate and sports owner (A) Tom B. Pearson, Councilman, Del Mar Dr. Malcolm A. Love, president emeritus, California ASSOCIATION OF GOVERNMENTS REPRESENTATIVE: State University, San Diego (0), Chairman Lesie arkrsecetay f DstrctCouncil of Carpenters, Robert Frazee, Mayor of Carlsbad (appointed by the LSanlieg PresCountay (A)itrc San Diego Comprehensive Planning Organization), Vice- San Diego County (A) ~~~~Chairman - k Part I: Summary and I ntroduct ion V1 111 It I * y, A11 HOW TO USE THE COASTAL PLAN The Coastal Plan has four parts: * Part I: Summary and Introduction summarizes the Coastal Plan's findings and policy recommendations, the proposals for carrying out the Plan, the Plan's economic impact, its protection of landowners' rights, and the national interest in the coastal zone. * Part II: Findings and Policies sets forth the Commission's findings of fact about coastal issues and problems and its official recommendations to the Governor and Legislature on policies for coastal conservation and development. � Part III: Carrying Out the Coastal Plan presents the recommended imple- mentation program, with both local and State responsibilities as well as dollar costs and possible sources of funds. * Part IV: Plan Maps and Regional Summaries specifically applies the policies to the geography of the coast, describing in both narrative and graphic form the resources and features affected by Plan policies. � The Appendix contains a glossary defining certain terms, lists of the Part 1I policies and Part III recommendations, and a foldout legend for the maps in Part IV. It also explains how the Plan was prepared, reproduces the Coastal0 Act of 1972 (Proposition 20), and lists staff members and others who helped produce the Coastal Plan. 0 SUMMARY AND INTRODUCTION THE COASTAL INITIATIVE AND THE FUTURE OF THE COAST In adopting the 1972 Coastal Initiative (Proposi- splendor eroded, or shall it be used intelligently, tion 20), the people of California declared that: with its majesty and productivity protected for 'The permanent protection of the remainingfuregnatos natural and scenic resources of the coastal zone is a paramount concern to present and future residents of the State and nation;- and What the Coast Is .~~ 1 "It is the policy of the State to preserve, protect, and where possible, to restore the resources of The California coast is many things along its the coastal zone for the enjoyment of the current nearly 1,100 miles of land and water, from the and succeeding generations." redwood forests of the north to the palm trees But the Coastal Initiative did not provide a per- of the south. manent program. Rather, it established tempor- *The coast is a place for hundreds of thousands ary Commissions to plan for the future of the of Californians to escape the heat of the city coast and to temporarily control development. on a summer day. But they often face a frus- Under present law, the Coastal Commissions will trating traffic jam trying to get to the beach, go out of existence at the end of 1976. and they may find no place to park when they What will happen then? do arrive. One possibility is a return to the wasteful, *The coast is a special combination of climate, piecemeal, sprawling kind of development soil, and ocean breeze that is uniquely valuable that has already overrun many once-open parts for many crops: trees, artichokes, flowers, of the coast, and to the overdevelopment in brussels sprouts, etc. But high taxes and the some coastal cities that has congested local pressures of the expanding city threaten agri- streets and walled off coastal vistas from all cultural land and, as happened in so many but those fortunate enough to live on the im- other parts of California, irreplaceable farm mediate oceanfront. land may be paved over for housing. Another possibility, the one recommended in *The coast is a neighborhood near the water, this Coastal Plan, is for the people of California where you can walk to a nearby beach or to a to protect the unique qualities of the coast, both bluff to see the ocean surf. But the coastal in cities and in rural areas, and to guide coastal neighborhoods can be overrun by incompatible conservation and development accordingly. development. Land values may become so U The hoicefor Caiforna in 976 isthis:Shallhigh that there is little chance to preserve The hoie fo Caiforia n 196 i thi: Sallsmall homes and family neighborhoods; older the coast be abused, degraded, its remaining homes that could be renovated may instead be 4 * PART I: SUMMARY AND INTRODUCTION torn down, to be replaced by bigger and usu- that increasing costs of energy and raw materials ally more expensive residential buildings. can only cause major changes in the lives of Californians; and that the irreplaceableagricul- � The coast is a small lot on the ocean, a place to build your home and retire. But if too many nnpopulation should not be squandered on develop- other people do the same thing, you won't have a quiet, isolated place; you'll find your ocean view blocked by other buildings, your There is increasing recognition that no society roads and highways crowded. can long survive if it dissipates its resources recklessly. Wasteful use of land and water will � The coast is a sought-after place for power sooner or later be costly. Although it may be ex- plants, offshore oil production, onshore refin- pensive to protect coastal resources, in the long eries, and moorings for supertankers. But run it may be even more expensive not to. The there is great controversy about where they costs of the misuse of land and water are paid should be, what the environmental risks are, by us all - in higher costs of food, housing, and who should make the ultimate decisions and transportation, and in a diminished quality about them. of life. * The coast is the nearshore ocean waters that The Coastal Plan is thus designed to achieve the provide fish of great value for sportsmen and long-term protection and productivity of coastal for food supply. But overfishing, destroying resources. The Plan is intended to be as useful coastal wetlands, and using the ocean to dis- during a time of scarcity as during a time of pose of polluting wastes diminish the bountiful abundance: in either time, the careful use of marine life along the California coast. limited coastal resources is necessary if the * The coast is a place to surf, to fish, to swim, coast is to be protected for future generations. to go boating, to sunbathe, to picnic, to bicycle, to study tidepools, to look for rocks and shells, to play volleyball, to walk, to sit, to gaze - in short, to play, and sometimes simply to What Are the Coastal Commissions? enjoy the inspiration and serenity the coast can provide. The Coastal Commissions - one State Commission and six Regional Commissions - were established by passage of a citizen initiative, Proposition 20, in the election of November 1972. The Coastal Com- Planning at a Time of Rapid Change missions were directed (1) to prepare a "compre- hensive, coordinated, enforceable plan for the orderly, long-range conservation and management No single plan can foresee all the problems or of the natural resources of the coastal zone," and provide all the answers for the future of the Cal- (2) during the planning period, to regulate develop- ifornia coast. This would be true at any time, but ment in coastal waters and in a 1,000-yard shore- it is particularly true during the present era of line permit area to insure that improper develop- rapid change. ment did not undercut the plan being prepared. In late 1975, as this Coastal Plan is being com- The six Regional Commissions are: pleted, Californians are increasingly aware that � North: Del Norte, Humboldt, and Mendocino the postwar era of seemingly-endless abundance Counties may be over. There is great uncertainty as to the � North Central: Sonoma, Marin, and San Fran- future: are technological advances just over the cisco Counties horizon that will usher in new periods of pros- perity? Or will our lives become austere as *� Central: San Mateo, Santa Cruz, and Monterey shortages of materials force massive readjust- Counties ments? � South Central: San Luis Obispo, Santa Barbara, Nobody can know all the answers, of course, but and Ventura Counties there is much we do know: that natural resources � South: Los Angeles and Orange Counties are limited; that inflation is in part caused by * San Diego: San Diego County wasteful use of land and other finite resources; 0 MAJOR FINDINGS AND RECOMMENDATIONS � 5 MAJOR FINDINGS AND POLICY RECOMMENDATIONS The essence of the Coastal Plan is that the coast � The Plan seeks to achieve balance where there should be treated not as ordinary real estate but is a competition among goals, such as where as a unique place, where conservation and spe- increasing coastal access competes with re- cial kinds of development should have priority. source protection, where economic develop- Coastal resources are limited; meeting human ment conflicts with conservation, where urban needs while safeguarding the coast will require expansion competes with the retention of nat- special measures. ural areas, or where short-run gains result in the forfeiture of long-run economic benefits. The Plan's 162 policy recommendations form the framework of a management program con- * The Plan is highly restrictive in its control cerned with both natural and manmade coastal over the dredging and filling of coastal wet- resources. lands, its protection of areas of unusual natu- ral or historic value, and in its regulation of - The Plan actively promotes: productive agri- activities that involve substantial environment- culture, viable communities and neighbor- hoods, expansion of commercial fishing activ- al risk or the loss of productive agricultural or ity and fisheries research, acquisition of addi- forest lands. tional parklands, restoration of degraded The major findings and policy recommendations coastal environments, and continued develop- of the Plan are: ment of existing ports and marinas. Zuma Beach, northern Los Angeles County . , buj,: . ~ ~'W ., , . � i.sr~ e~r~ Ey w '*5 f..L 6 � PART I: SUMMARY AND INTRODUCTION Coastal Waters approvals. The Plan recognizes that expansion of some developments, such as ports and energy installations, may be necessary in wetlands, but Improve the Productivity of the Marine Environ- istallations, may be necessary in wetlands, but establishes stringent provisions to minimize any ment. California's coastal waters are among the harmful effects of such expansion. world's most productive marine environments. Since the turn of the century, however, there has Protect Against Harmful Effects of Seawalls, been an ominous decline in the quantity of food Breakwaters, and Other Shoreline Structures. fish caught in the State's coastal waters, especi- Seawalls, breakwaters, groins, and other struc- ally near intensively developed urban areas. The tures near the shoreline can detract from the reasons for this are threefold: overharvesting of scenic appearance of the oceanfront and can af- some popular fish, shellfish, and marine main- fect the supply of beach sand. The Plan limits mals has depleted their numbers; until recently, the construction of shoreline structures to those the ocean has been viewed as a convenient necessary to protect existing buildings and pub- dumping ground for all-sorts of waste products, lic facilities, and for beach protection and resto- including materials poisonous to marine life; and ration. Special design consideration is proposed coastal wetlands, which serve as "nursery to insure continued sand supply to beaches, to grounds" for many species of fish and wildlife, provide for public access, and to minimize the have been dredged and filled for development. visual impact of the structures. Protect Against Overharvesting. The Coastal Plan calls for a coordinated program of marine resources management to combat overharvesting Coastal Land and to maintain high yields of fish, both for food supply and for sportsmen. High priority is given Protect Coastal Streams and Plan Carefully for Protect Coastal Streams and Plan Carefully for to meeting the needs of commercial fishermen Coastal Watersheds. Coastal streams collect and to the expansion of "aquaculture" (growing aal atersd o te land to the marine organisms under controlled conditions). and channel waters draining from the land to the ocean, and thus form a fundamental linkage be- Protect Coastal Water Quality. The Coastal Plan tween shore and sea. Sediments and pollutants specifies that all wastes released into the ocean deposited in these streams can attect coastal should receive adequate treatment and that wetlands as much as dredging and filling. The wastewater discharges into enclosed bays and Plan recommends that comprehensive coastal estuaries be phased out when necessary for es- watershed management plans be drafted to pro- tuarine protection. The Plan supports (and pro- tect streamside vegetation, to maintain salt- poses some expansion of) the current programs water-freshwater balance, to protect the quality of the State's Water Quality Control Boards and of water feeding coastal wetlands, to control the Department of Fish and Game. Power plants, sand supply (and thus protect ocean beaches or other industries that use ocean water for cool- from erosion), and to protect streams important ing, would be required to have special design as spawning areas for steelhead and salmon. measures to help protect marine life from being Retain Natural Habitat Areas. The richness of drawn into the cooling system, and from the ef- fects of the discharge of heated water back into the nearshore ocean habitat is matched by the the ocean. the ocean. ~~~~~~~~richness of the nearshore coastal land habitat. Many plants, animals, birds, and marine crea- To insure careful handling of petroleum, cleanup tures are completely dependent upon the unique of accidental spills, and prompt payback of dam- environment of the coast and can only survive in ages and cleanup costs, the Plan calls for a $100 this setting. The Plan provides for careful pro- million oil spill liability fund, to be financed by a tection of habitats of particular importance or two-cent per barrel tax on oil entering California. rarity through acquisition, by controls on recre- ational uses, and through regulation of adjacent Control Diking, Filling, and Dredging of Wet- deloent development. lands. Nearshore waters, estuaries, marshes, and wetlands are the most productive part of the Encourage Coastal Agriculture. The presence of sea - and the most vulnerable to damage. The the sea moderates the coastal climate, helping to Plan proposes strong measures to protect the create an extended growing season and to pro- State's remaining wetlands. Restoration of wet- tect coastal crops from frost damage. The rich land areas of comparable productivity would be alluvial soils in coastal valleys, combined with required as a condition of many dredging or fill temperate climatic conditions, create some of the MAJOR FINDINGS AND RECOMMENDATIONS * 7 finest and most productive agricultural land in development on coastal air quality to be consid- the nation. Plan policies seek to support agricul- ered in land use and transportation plans. ture and to discourage conversion of these highly 0 ~~productive agricultural lands to other uses. The Plan proposes to alleviate the pressures of high property taxes and urban utility assessments Coastal Appearance and Design that can force conversion of farm land to urban development. Also proposed are direct economic Protect the Scenic Beauty of the Coast. The support and technological assistance. Controls Clfri osln savsa eoreo ra are recommended to limit urban encroachment varietorandeur contastiei an besalrsuty. In mrany into agricultural areas and to regulate rural sub- variety rner otast anceuy nmn division of land and lot splitting. The Plan recog- ara oastal development has respected the nizes, however, that some conversion of lower special scenic quality of the shoreline, but in quality agricultural lands to other uses may be others, incompatible development has degraded unavoidable in places where'it has become un- and altered the attractiveness of the coast. Plan economical to continue farming. The Plan thus policies provide guidelines for various types of recommends standards to govern the conversion development in highly scenic areas and in areas of farmlands surrounded by urban development affording the public prominent coastal views. and the partial conversion of larger parcels of less productive rural lands in ways that would allow some residual agriculture. Encourage Continued Timber Production. The coastal forests in northern California are a valu- able, renewable economic resource. The Plan seeks to maintain forests in long-term production ~~Y2~~ with controls necessary to protect streams from erosion, to protect against damage to fish- spawning areas, and to protect the scenic beauty -ai of forested areas. The Plan recommends that present tax laws be amended to encourage sus- tained forest yield by taxing timber only as it is cut, rather than taxing the value of all standing trees, as under the present system.___ Conserve Soil and Mineral Resources. The soils and minerals of the coastal zone are irreplace- able resources of California. The Plan requires that local building and grading ordinances in- clude effective measures to control erosion. Sand and gravel extraction would be barred in en- vironmentally sensitive or highly scenic areas, and site restoration would be required where mining is permitted. Protect Coastal Air Quality. In many urban ar- eas, increasing numbers of people want to live and work along the coast because of its relatively Crnd clean air. Coastal Plan policies would exclude Crnd major new pollution-generating developments The overriding design goal is that in scenic areas (refineries, fossil-fuel power plants, freeways) new development should be visually unobtrusive from portions of the coastal zone now designated and subordinate to its setting. Development as problem "air quality maintenance areas" un- should be sited to protect coastal views and be less there is no less environmentally damaging landscaped to soften its visual impact. Construc- alternative. Where permitted, such develop- tion materials should blend either with the nat- . ~~ments would have to be designed and sited to ural setting or with adjacent structures. Massive minimize adverse effects on coastal air quality. structures such as major industrial plants and The Plan would require the cumulative impact of shopping centers should be built back from the 8 � PART I: SUMMARY AND INTRODUCTION shoreline. The Plan bans unsightly billboards protection of their scenic and community qualities. along the coastline and requires the removal of Protect Against Natural Hazards. Development existing billboards from such areas within 10 along the coast of California is threatened by a years. The specific design objectives for various number of natural hazards such as floods, earth- coastal areas would be established through local quakes, landslides, cliff erosion, and tidal waves design review programs developed by local gov- (tsunami waves). The Plan proposes policies to ernmnts Tohel cobatlittr, he lanrecin- (tsunami waves). The Plan proposes policies to ernments. To help combat litter, the Plan recom- restrict new development in floodplains, require Legilatue cnsidr eactig a restrict new development in floodplains, require mends that the Legislature consider enacting a that a geologic hazards description be made a law forbidding the sale of non-returnable or non- part of residential sales information, place biodegradable containers. limitations on uses of land within coastal areas The Plan policies contain detailed guidelines for of highest risk, prevent public subsidies for haz- development in different coastal settings includ- ardous development, and provide setbacks from ing standards for construction affecting wet- erosion-prone bluffs. lands, sand dunes, bluffs, headlands, islands, canyons, riverways, and uplands. Energy Reduce Energy Consumption. Energy conserva- tion can not only conserve petroleum and other Coastal Development resources, thus strengthening the nation's self- sufficiency, but it can also help to protect coastal Encourage Orderly, Balanced Development. air, land, and water from unnecessary oil, gas, Recognizing the need for continued development and power-generating facilities. Expanding in appropriate areas, Plan policies propose that demands for oil and gas will result in increased new development be concentrated in places able tanker movements and port development, or in to accommodate it (i.e., areas with adequate additional offshore oil production, or both, and water supply, sewer service, road and public in refinery expansion. Growing electricity con- transportation capacity, etc.). sumption increases pressures for construction of coastal power plants, and some are likely to be New development would not be allowed to con- New evelpmen woud no be llowd tocon- fueled by oil. Plan policies recognize that energy tinue to leapfrog and sprawl over open lands but fueled by oil. Plan policies recognize that energy would, instead, be directed to already-developed conservation programs should be applied state- areas. Along the immediate shoreline, priority wide, and that the primary responsibility for im- areas. Along the immediate shoreline, priority would be given to "coastal-dependent" develop- plementation of such programs rests with the State Energy Commission. The policies recom- ments such as ports that by their very nature re- State Energy Commission. The policies recom- ~quire coastal sites. ~mend to the Energy Commission a detailed pro- quire coastal sites. gram for energy conservation, which could be In rural areas not identified as containing signifi- implemented separately within the coastal zone cant natural resources, as highly scenic areas, or only if the Energy Commission fails to meet its as viable agricultural lands, first preference in own legislative deadline for implementing a determining permitted uses would go to develop- statewide conservation program by July 1, 1977. ment that would preserve the open character of sites and serve the needs of coastal visitors Plan policies also advocate that tax incentives be (e.g., riding stables, campgrounds, or tourist ac- provided to encourage energy self-sufficiency in commodations). Residential development would building design. The Plan urges development be given lower priority but would be permitted and exploratory programs to expand use of alter- where other types of development were infeas- native energy sources such as solar, wind, and ible. Plan policies recognize that certain poten- geothermal energy, and energy from solid tially hazardous industrial activities (liquefied wastes and methanol. natural gas processing works and nuclear power Siting Energy Facilities. The Plan recommends plants) may require remote locations but seek to that the Energy Commission have authority over minimize the proliferation of these through site the siting not only of new power plants but also consolidations. of all other major energy facilities including The Plan also recognizes that some of the unique those for petroleum production and refining. The communities along the coast, such as La Jolla, coastal agency would, under the Plan, have con- Venice, and Mendocino, are themselves coastal current jurisdiction in site selection and certifica- resources, and recommends special standards for tion for sites in the coastal zone. The Plan would MAJOR FINDINGS AND RECOMMENDATIONS � 9 not exclude energy installations from the coast, about 65 feet), but larger tankers to transport oil but rather would require that both inland and imports should be restricted to deepwater off- isO coastal sites be fully evaluated so that necessary shore terminals away from environmentally sen- new energy facilities will be provided in a man- sitive areas; and (4) new terminals should be ner least damaging to all of the State's natural planned for multicompany use and should have resources. adequate equipment for oil spill containment. Power Plants. Power plants would be permitted Liquefied Natural Gas [LNG] Terminals. Termin- within the coastal zone at sites jointly certified als for importing LNG would be permitted under by the Energy Commission and the coastal agen- the following criteria: (1) until concerns about cy. The Plan provides that adequate freshwater the public safety risks inherent to LNG marine supplies for agricultural irrigation be reserved terminal operations have been satisfied, there before any fresh water is appropriated for evap- should be only one LNG terminal for California, orative power plant cooling at inland sites, and at a site remote from heavily populated areas; urges research on the use of agricultural waste (2) if the public safety concerns can be satisfied, water for cooling. Among the most significant consideration should be given to building LNG considerations would be demonstrations by a terminals in already-developed port areas to utility (1) that the plant is needed despite energy minimize adverse environmental impacts; and (3) conservation efforts; (2) that alternative coastal LNG terminals should meet rigorous design and and inland sites have been evaluated, and the operational standards for safety. proposed site is the least environmentally dam- aging site; (3) that the plant would be compati- ble with neighboring land uses; (4) that, where feasible, a substantial coastal area would be pro- vided for public use; and (5) that adverse visual Transportation impact would be minimized. Plants could not be built in areas identified as highly scenic nor could they increase pollution in problem air Limit Adverse Environmental Effects of Coastal * quality areas. Access Roads. Access to much of the State's Offshore Petroleum Development. Plan policies coastline is over roads that were built to meet would allow offshore petroleum development, the needs of another era. Increasing volumes of provided it is part of a clearly defined energy coastal visitors sometimes fill the roads to their conservation and development program for the limits, and there have been growing numbers of country or for the western states, provided strin- second-home owners and long-distance commu- gent environmental safeguards are made part of ters. High-volume freeways, with their graceful the entire exploration and production schedule, curves and generous widths, are ill-suited to the and provided there is careful planning to rugged landforms of much of the coastline and minimize onshore impacts. would cut massive swaths through coastal neigh- borhoods. The policies also recommend revising current Plan policies seek to improve the efficiency of Federal leasing practices to provide for withhold- Pn oas prov e fictr n ing approval of offshore pexisting roads by promoting rause of public transit ing approval of offshore petroleum development until the offshore exploration has been suffi- and by mandating transportation plans that pay special attention to weekend congestion prob- ciently completed to determine the extent of the sCal adshu e d esin a lems. Coastal roads should be designed, as oil and gas available and the environmental oilpandctgs avalvronmentra many in California have been, to reflect their use impacts from extracting it. as recreational routes and should include such amenities as scenic vista points, rest stops, Tanker Terminals. Tanker terminals would be beach accessways, and picnic grounds. The Plan permitted under criteria including the following: recommends that local land use proposals be (1) existing facilities should be used to their evaluated against road building and transit plans maximum capacity before new port facilities are to make sure that land developments do not developed; (2) oil companies should be encour- overrun the capacity of the roads and effectively aged to trade crude oil supplies to minimize the block access to coastal visitors. need for petroleum transport and costly new ter- minal facilities; (3) existing harbor areas should Regulate Parking at the Coast. If everyone in- be used to accommodate the tankers that will sisted on driving his car to the water's edge it transport Alaskan oil (tankers with drafts of wouldn't be long before much of the coastline 70 9 PART I: SUMMARY AND INTRODUCTION would be paved for parking. Plan policies would environmental consequences. Plan policies pro- restrict expansions of oceanfront parking lots vide for increases in both air and water transpor- but would provide for added parking immediate- tation, within a system of environmental safe- ly inland, well designed and connected to the guards. Except for ports handling hazardous ma- shoreline by trails or shuttle buses. New devel- terials, all port expansion would be channeled to opments would be required to have sufficient on- existing port areas, and these would be used to their maximum potential before new diking or filling of water areas would be allowed. The po- tential for airport expansion within the coastal zone is limited, and the Plan recommends avoid- ing expansion of coastal sites, especially where this would require filling wetlands or losing rec- reational potential. - Public Access to the Coast Guarantee Rights to Public Access to the Coast. ~- Public access to the ocean is a right specifically -~~~~~~ ~ ~ ~ ~ ~ ~~ set forth in the California Constitution. But it has not always been enforced, and many parts of the coast are now fenced off from the public or are otherwise inaccessible. The Plan proposes <~~ ~/' that existing legal rights of public access to the coast be enforced, and that reasonable require- ments for public access be established in new developments along the coast. Recognizing that additional public access will require additional policing, litter control, and other such measures, the Plan provides that public accessways in new developments be set aside but not opened for public use until a public agency accepts respon- sibility for maintenance and liability. Where a new oceanfront development could not reason- Mendocinlo CountY ably provide public access within its boundaries, siteparkng o, insom cass, t proide ay-appropriate in-lieu payments to an acquisition miepaknts tor inlomecases toranside paystms fund may be required to help buy nearby ments to local ransit systems.property for public access. Improve Public Transit. Public transit is little- used for recreational travel, so on weekends Create Opportunities for Persons of All Income fleets of transit vehicles used for access to work Levels to Live Near the Coast. In recent years and school sit idle. There is excellent potential much coastal property has increased rapidly in for increasing the use of public transit for rec- value so that people of limited means, including reational trips (experimental programs from San many elderly people, can no longer afford to live Francisco to beaches in southern Manin County in some coastal neighborhoods. Older residences have filled buses to capacity). Because public that could be renovated are torn down, generally transit is less polluting than private automobiles to be replaced by larger and more expensive and more efficient in its use of road capacity, buildings. Policies give preference to coastal transit is given strong preference for coastal developments that would be accessible to people transportation in many areas, and the Plan sup- of diverse incomes, also stressing shared owner- ports programs that would increase the attrac- ships, rentals, and a retention of existing moder- tiveness of transit to coastal visitors. ate-income housing. Provide for Water and Air Transportation. Port Encourage Multiple Use of Coastal Lands. Part and airport facilities are vital to the State's econ- of the beachfront at the Marine Corps' Camp omy, but expansion of either can have serious Pendleton in San Diego County has been opened MAJOR FINDINGS AND RECOMMENDATIONS 0 11 to the public, with management of the beach by to protect coastal tidepools, bluffs, dune vegeta- the State Department of Parks and Recreation. tion, and other such fragile areas; but also that The Plan proposes that on other military lands, additional sites be acquired as recreational de- consistent with security and safety, oceanfront mand increases so that facilities are not overbur- areas be opened for public use. And the Plan dened. recommends similar public access to the ocean-ThPlnecuascotrtinfacatl frotcher asppropriaclties, inowejr intalatintsec trail system, but with adequate policing and suchas prt fciliies, p o w e plats, tc.maintenance to protect adjacent agricultural lands from vandalism or other damage. Off-road recreational vehicles would be prohibited on the Recreation immediate beachfront, except at Pismo Beach in San Luis Obispo County and in a limited number of other places where stringent environmental Increase Coastal Recreation But Protect Coastal standards could be met. Resources. The California coast provides recreation for millions of people every Encourage Recreational Boating, But Protect year-many from within the State, but many Wetlands. The demand for recreational boating from other parts of the country and the world. has grown sharply in recent years, and in many Serving their needs provides California with jobs coastal marinas there is a shortage of berths. In and income constituting a valuable part of the the past, small-boat marinas were often created State's economy. Visitor surveys, filled camp- by dredging and filling valuable marshlands or grounds, and jammed parking lots make clear other wetlands, thus destroying fish and wild- that even more visitors would be at the coast if fowl habitat. Because such areas are essential to there were more room for them. protect the State's fish and wildlife, and The Coastal Plan proposes to expand recreation- because boating can be accommodated else- al opportunities, by purchasing not only ocean- where without habitat destruction, the Plan pro- front beach and park land but also land just in- vides that new or expanded small-boat marinas land from the coast for parking and other support facilities, so the oceanfront can be reserved for recreation. Priority would be given to coastal areas close to major metropolitan cen- ters. Where coastal communities are unduly bur-- dened with the costs of maintaining recreational facilities enjoyed by inland residents, Plan poli- cies recommend that State funds be made avail- able to the extent they are needed to offset local costs of serving visitors. Where public purchase is not proposed, the Plan gives priority to private developments serving recreational and visitor needs over other types of development on the coast and encourages recreational facilities serv- ing all income ranges, i.e., campgrounds, rental__ housing, or resort hotels. *7 But the Plan also recognizes that many coastal . areas cannot accommodate unlimited crowds without environmental damage; indeed, too many people in an area can destroy the very fea- tures that attracted the visitors to the coast in the first place. Recreational areas would be man- SnaCu aged to respect the natural capacity of park be built in natural harbors, in deep water (that lands. (The State Parks and Recreation Depart- is, deeper than marshes and wetlands), and in ment now allows only a certain number of people areas dredged out from dry land. In addition, e at a time into Point Lobos State Reserve south of dry storage, rental programs, multiple IsCarmel, to protect a spectacular coastal promon- ownership, and other means are proposed to tory.) The Plan provides that limits be placed on provide for more boating while protecting wet- public access and recreational use as necessary land values. 12 * PART 1: SUMMARY AND INTRODUCTION Scientific and Educational Resources hoods renovated through a coastal restoration program. Protect Sites of Scientific, Historic, or Educa-Beasoftepfuinfcatlsbdvin tional Value. The Plan builds upon existing pro- Beandltsplttn and the exremefusion of pro-sa udvso grams to protect sites of historic, archaeological, andin lota servicesn and aches etoremeoste depr- or scientific importance from being put to incom- velopmnts uran srviestoatind programto recmoed- patible use. The policies advocate an intensified ve mendedto reduceatheonumbroga s ofuneeloped effort to identify and provide protection for the coastal lts. Prchases are recombersondedelopro- coas's hstorc ad arhaeoogial rsoures.tect areas usable by the public and in areas where costs of extending urban services would exceed the costs of buying lots. In some cases, Restoration lots in common ownership would be consoli- dated. Owners of individual buildable lots would Restore Degraded Coastal Areas. New recrea- be guaranteed construction rights or, alternative- tional opportunities can be provided, new habitat ly, public purchase at full market value in loca- areas created, and blighted coastal neighbor- tions where plans call for acquisition. CARRYING OUT THE PLAN No plan dealing with controversial matters is and thus the Coastal Plan were being followed in likely to be self-enforcing. The Coastal Plan thus day-to-day decisions. recommends that the following implementation program be established: Coastal Resource Management Area. Because the Coastal Plan seeks to provide for the wise Local Government Responsibilities for the Coast. use and protection of coastal resources, local Because city and county government is acces- plans would be required to conform to the Coast- sible and accountable to its constituents, because al Plan in an area designated as the coastal re- statewide coastal concerns should be reflected in source management area. This area, shown in local planning and regulation, and because Plan detail on the Plan Maps in Part IV, is the area of implementation should be streamlined to reduce varying width along the coast containing the costs and delays, primary responsibilities for coastal waters, wetlands, beaches, bluffs, agri- carrying out the Coastal Plan should rest with cultural lands, and coastal communities and local governments. Within three years of the ef- neighborhoods that are the subject of Plan poli- fective date of State legislation to carry out the cies. In some cities, the coastal resource man- Plan, local governments along the coast should agement area is less wide than the 1 ,000-yard be required to bring their General Plans into permit area established in the 1972 Coastal Act conformity with the Coastal Plan. Local (Proposition 20). In rural areas and other areas governments would submit their plans to the of undeveloped land, the resource management Regional and State Coastal Commissions for cer- area may extend to the inland boundary of the tification as to-conformity with the Coastal Plan. coastal zone to include coastal agricultural lands After all the local plans in a region had been and streams and areas where the cumulative im- certified, the Regional Commission would go out pact of development would limit public access to of existence. Local governments would then con- the coast (e.g., Malibu, Big Sur). As provided by trol coastal conservation and development, sub- the 1972 Coastal Act, the California coastal zone ject to a system of limited appeals to the State is the water areas under State jurisdiction, the Commission to insure that approved local plans offshore islands, and land areas inland to the CARRYING OUT THE PLAN a 13 highest elevation of the nearest coastal mountain permit would be required for major water, sew- range, except that in Los Angeles, Orange, and er, transportation, or energy developments that San Diego Counties, the boundary does not ex- could adversely affect coastal resources; and (4) tend more than five miles from the mean high permits would not be required where a Regional tide line. Commission (or the State Commission, on ap- peal) determined after public hearing that devel- Permit and Appeals System. To insure that un- opment of a particular type or in a particular wise development decisions do not occur while area would not adversely affect coastal local plans are being brought into conformity resources. with the Coastal Plan, the permit and appeals Permits and Appeals After Certification. After a Permits and Appeals After Certification. After a system specified in the 1972 Coastal Act would local plan has been certified by the Coastal remain in effect except that (1) the standards for Commissions as being in conformity with the Commissions as being in conformity with the issuing and denying permits would be compli- Coastal Plan, local governments would have ance with the Coastal Plan, not the 1972 Coastal primary implementation responsibility, subject to Act; (2) permits would also be required within a sys tem of limited appeals to the State Coastal the oastl reourc mangemet ara fo thea system of limited appeals to the State Coastal the coastal resource management area for the Commission to insure that the approved local conversion of any prime agricultural land to plan and the Coastal Plan were being followed in othe uss an th coverson f oher griul- plan and the Coastal Plan were being followed in other uses and the conversion of other agricul- day-to-day conservation and development tural land in parcels of 20 acres or more; (3) d ecisions. decisions. anywhere within the coastal zone, a Commission State Coastal Agency. After the Regional Com- missions have gone out of existence, a State Coastal Commission with 12 members - one- third appointed by the Governor, one-third by the Speaker of the Assembly, and one-third by The Legal Basis for Statewide Planning the Senate Rules Commitee - would have the' following responsibilities: (1) carry out the plan- ning and research necessary to keep the Coastal The State of California has legal power to regulate Plan up to date in light of changing conditions; and control land use. This regulation, using such (2) assist local governments in Plan implementa- forms as zoning, is part of the inherent power tion; and (3) through the appeals process, moni- possessed by all States and is commonly called tor the decisions on proposed coastal conserva- the police power - the power to regulate public tion and development. and private activity to protect the health, safety, State and Federal Agency Responsibilities. The and welfre of th generalpublic.State and Federal Agency Responsibilities. 'The and welfare of the general public. Plan provides that all State agencies, and all The California Constitution and other State laws Federal agencies to the extent applicable under Federal agencies to the extent applicable under delegate certain police powers, including the power Federal law, be required to conduct their activi- to plan and control land use, to cities and counties ties in full compliance with Coastal Plan policies. in carrying out their local or municipal affairs. The The Coastal Commission would seek to insure State, however, retains the ability to plan, protect that California maintains a Coastal Plan comply- resources, and even control land use in areas or on ing with the standards of the Federal Coastal subjects of greater than local concern. Zone Management Act of 1972, thus qualifying As one court has said in a case involving the Coastal the State for Federal funds to help carry out the Commissions, "Where the ecological or environ- Plan, and also insuring that Federal agencies mental impact of land use affect the people of the would be required to follow the Plan unless an entire State, they can no longer remain matters of overriding national interest compelled other purely local concern." The court added that "the actions. impact of an activity which in times past has been purely local, may under changed circumstances Proposed Bond Issue. The Plan proposes that a transcend municipal boundaries... Where the limited number of key coastal properties be acitivity, whether municipal or private, is one that bought by the public, primarily for oceanfront can affect persons outside the city, the State is em- recreation and for the protection of wildlife habi- powered to prohibit or regulate the externalities" tat. Based on assessments by county assessors, * (CEEED v. California Coastal Zone Conservation the parcels tentatively proposed for acquisition Commission, 118 Cal. Rptr, 315 [1975]). have a total market value of about $180 million. Because of inflation, and because some assess- 14 � PART I: SUMMARY AND INTRODUCTION ments have not been updated recently, estimates ministration, estimated at $1 million to $1.5 may be low with regard to some parcels. On the million per year; (3) the cost of further Coastal other hand, the total cost may be reduced by Commission planning to keep the Coastal Plan eliminating some parcels from the list (the Com- up to date and to assist local governments in missions are continuing to review the acquisition Plan implementation, estimated at $1 million proposals) and by purchasing easements rather to $1.5 million per year; and (4) the cost to local than full title in some cases. The Plan proposes governments of bringing their plans into con- that, after further review of the proposed acqui- formity with the Coastal Plan, estimated at $600,000 to $800,000 per year for three years. The Plan proposes that these costs be paid from ~,~ ~,~,~~ ~ ,several possible sources: � The bond issue cited above; * Federal acquisition grants from the U.S. Land and Water Conservation Fund; � Federal planning grants (once California's ~l I 1~ Coastal Plan has been certified as in com- n~_~i ,pliance with the Federal Coastal Zone Manage- ment Act of 1972, California will be eligible for two-thirds of the planning and adminis- trative costs of carrying out the Plan); sitions, a bond issue be submitted to the voters � Taxes on the production and transport of of California in 1976 to pay for prompt purchase petroleum on and across California coastal of coastal properties. waters, because a principal purpose of coastal planning is to provide adequately for needed Costs of Carrying Out the Plan and Possible energy production consistent with environ- Sources of Funds. Costs of carrying out the mental protection; and Coastal Plan are (1) the cost of land acquisition, � Perhaps from added fees on pleasure boats not expected to exceed $180 million to $200 or added taxes on visitor accommodations million together with some additional operating in coastal areas, in both cases requiring those and maintenance costs to park agencies as new who benefit most from coastal recreation and beaches and parks are open; (2) the cost of amenities to help pay the costs of protecting Coastal Commission permit and appeals ad- the coast. APPLYING PLAN POLICIES Part II of the Coastal Plan sets forth the policies maries can be used by anyone interested in know- upon which conservation and development deci- ing the location and extent of coastal resources and sions in the coastal zone should be based, and developed areas as well as what the Plan proposes Part III recommends ways of carrying out the Plan. for a particular part of the coast. For example, Part IV specifically applies the Plan policies to the areas for possible public acquisition and restora- geography of the coastal zone - the sea, wetlands, tion are shown, as are possible sites for coastal beaches, farmland, hills, and urban areas. trails and coastal access, and in some cases, areas within which urban growth could be encouraged The Plan Maps, Map Notes, and Regional Sum- or restricted. FUTURE ENVISIONED BY THE PLAN * 15 THE FUTURE ENVISIONED BY THE PLAN The Coastal Plan envisions a future for Califor- incomes to live near the ocean, and clearly nia's coast that includes: blighted areas replaced by new residential � An orderly transition between fully developed construction. communities and productive farm and grazing * Many more people enjoying beaches, coastal land. resorts, hotels, and waterfront restaurants. * Recreational boating increased, consistent with * Power plants as needed to serve an economy wetland protection. that employs effective energy conservation, � New residential development concentrated and and every power plant sited and designed to served by public transit, so that roads to the minimize environmental damage and hazards. coast are kept uncongested. * Expanded and more efficient facilities at exist- * Downtowns and neighborhood commercial areas ing ports, to take advantage of the great energy renewed and refurbished, with no further con- and cost savings of ocean transportation, and struction of sprawling shopping centers that port developments planned to minimize envi- destroy valuable farmland on the fringes of ronmental degradation. the cities. * Beyond the urban areas, a largely undisturbed � Traffic flowing smoothly through cities to the coastline that can be enjoyed from comfortable shore, with many vehicles being shuttle buses tour buses, cars, motorcycles, and from miles from nearshore parking lots where motorists of foot, bike, and horse trails, with many more have left cars. carefully planned beach access areas, and * Well-maintained, older, less-expensive housing campgrounds. that provides opportunities for people of all � Agricultural lands kept in agricultural produc- Avalon, Santa Catalina Island 3-~~~~~~~~~~~..,,~, 16 * PART I: SUMMARY AND INTRODUCTION tion with taxation based not on potential sub- ducts to replace increasingly expensive and division but on farmland needed to feed a dwindling manufacturing and construction growing population; and with incentives for materials such as plastics and steel. Californians to work in productive agriculture. In the North Coast Region, a more vigorous And overall, continued growth channeled both �In the North Coast Region, a more vigorous ahe gat svn i ul ct b to achieve greater savings in public costs by visitor industry, an enhanced agriculture, and ocetraing n ulits concentrating development, roads, utilities, a timber industry made stronger by more and to protect coastal wetlands, farmlands, widespread use of sustained yield practices and ote atal esrs views, and other natural resources. and by an increased demand for wood pro- NATIONAL INTEREST IN THE COAST The California Coastline Is a National Resource. Coastal Plan, which will be submitted to the De- The California coastline is of more than local or partment of Commerce--the agency responsible even State importance; it is a resource of nation- for administering the Federal Act-in the form al significance; it comprises more than half of approved by the State Legislature and the Gov- the western coastline of the contiguous 48 states. ernor. Once approved by the Secretary of Com- merce, the Coastal Plan will provide the basic Visitors from acro ss the c ountry enjoy the scenic policies for both state and national interests in beauty and recreational facilities along the coast. the coastal zone. The Federal Act requires Fede- Foreign goods bound for consumers in inland ral agencies to comply with an approved state states and U.S. products on their way to distant coastal zone management program "to the maxi- countries pass through California ports. Petro- mum extent practicable" (Section 307[cl). leum, timber, and farm produce for the coastal zone are shipped to the rest of the nation. To ensure that the national interest is adequately addressed in the Coastal Plan, the Federal Act Use of the coastal land area and adjacent waters addressed in the Coastal Plan, the Federal Act req u ires that the state coastal zone "'management for national defense and national security is of requires that th e st ate coastal zone "management paramount importance to the country because of pr ogram provides for ad equate consideration of military installations located along the coast. the national interest involved in the siting of miliaryinstllaion loctedalog th costfacilities necessary to meet requirements which This is particularly true of the numerous Navy fa cilities necessary to meet requirement s whi ch installations with defense missions necessarily are other than local in nature" (Section 305[c][81). installations with defense missions necessarily requiring operational use of such areas. Planning for the National Interest. Recognizing its responsibilities to the rest of the nation, Cal- RThe Federal Coastal Zone Management Act. ifornia in its coastal planning has made every ef- Recognizing the distinct and irreplaceable value fort to consider the national interest in issues af- of this country's coastline, the U.S. Congress en- fecting the coast. The Plan's policies recognize actedthe oastl Zoe Maagemnt At of1972fecting the coast. The Plan's policies recognize acted the Coastal Zone Management Act of 1972 national defense and national security as impor- (PL92-83)whch tats ..... t i naioal oliynational defense and national security as impor- (PL 92-583) which states, ...it is national policy tant aspects of national interest, because without ..to preserve, protect, develop, and where possi- the attainment of such objectives, all other goals ble, to restore or enhance, the resources of the and objectives can be threatened. The policies nation's coastal zone for this and succeeding on the protection of agricultural land recognize geneatios" (ecton 33(e]. Te laguag ison the protection of agricultural land recognize generations" (Section 303[e]). The language is the importance of California farm production to almost identical to one of the objectives of the the rtathe nation and also acknowledge the California Coastal Act (Proposition 20): "...to world food shortage. The policies calling for preserve, protect, and where possible, to restore recreational and public-oriented uses to have a the rsoures o thecoasal zne" Pubd Re-recreational and public-oriented uses to have a the resources of the coastal zone" (Pubtic Re- esources Co tSecostaione" 2 c high priority along the coast reflect the increas- sources Code, Section 27001). ing popularity of the coast as a tourist destina- Under the Federal Act, California has received tion. The Plan's energy policies, especially im- financial assistance for the preparation of the portant because of the Department of Interior's NATIONAL INTEREST IN THE COAST � 17 proposals to lease vast Outer Continental Shelf with approved state management programs" (OCS) areas for petroleum exploration and ex- (Section 307[c][I I). The Federal Act also excludes traction, take into account California's role in "from the coastal zone ... lands the use of which national energy supply. The energy policies are is by law solely to the discretion of or which is based on a willingness to respond with a broader held in trust by the Federal Government" state role in meeting the nation's energy re- (Section 304[a]). In recognition of the paramount quirements if such a need is clearly identified importance of national defense and national and if California's environmental, economic, and security, in California this exclusion is inter- legal interests are properly planned for and pro- preted to include all lands and waters within the coastal zone used for national defense or subject to the jurisdiction of the Department of Defense and both present and future needs for operational air space and land and water areas. Moreover, the planning for areas sur- rounding military installations should be coor- dinated with local Department of Defense re- presentatives so these areas are not used in a manner that would conflict with national security needs. And just as military operations should be protected from incompatible surrounding uses by the coastal zone management program, it is anticipated that Federal agencies, being equally aware that environmental problems do not respect jurisdictional boundaries, will do their utmost to comply with applicable Coastal Plan policies. Federal-State Cooperation to Protect the National _ _O~~~~~~~~~~~ ~Interest. California has received extensive assis- tance and cooperation from many Federal agen- cies in the preparation of the Coastal Plan. Moreover, as required by Federal regulations, early drafts of the Plan elements have been pro- vided to numerous Federal agencies for review and comment. For example, the Coast Guard, Federal Energy Administration, Maritime Ad- ministration, National Park Service, Fish and Wildlife Service, National Marine Fisheries Ser- vice, U.S. Geological Survey, Forest Service, tected. Because needs - national, state, and Bureau of Land Management, National Aeronau- local - may change in the future, if occasions tics and Space Administration, Navy, and Army should arise where certain federal activities Corps of Engineers have all commented exten- would conflict with Coastal Plan policies, the sively on the Preliminary Coastal Plan and/or representatives of the Federal and State agencies provided useful data and information for prepar- concerned should consult and cooperate to resolve ing it. the conflicts consistent with national objectives. Through this process, there has been an oppor- Through this process, there has been an oppor- Planning for Federal Activities. One part of the tunity for national interests, as perceived by national interest is the planning for activities Federal agencies, to be incorporated into the carried out by Federal agencies in the coastal preparation of the Plan. Although there is gener- zone. To bring the activities of the many Federal al support for the Coastal Plan objectives among agencies within the context of the comprehensive Federal agencies, there may be some disagree- planning called for in the Federal Coastal Zone ment in applying the Plan policies to particular Management Act, the Act provides that "each circumstances. Nevertheless, continued cooper- Federal agency conducting or supporting activities ation can ensure that the national interest is i directly affecting the coastal zone shall conduct protected through a uniform application of the or support those activities in a manner which is, Coastal Plan policies to the entire coastal zone to the maximum extent practicable, consistent by whichever local, State, or Federal agency has 18 0 PART!1: SUMMARY AND INTRODUCTION regulatory jurisdiction. Where the Coastal Plan ations. The Navy has also cooperated in the de- would conflict with an overriding national need velopment of California's coastal zone manage- under unforeseen circumstances, it may be ment program by making its interests known. It necessary to amend or override the Plan policies is Navy policy to conduct Navy activities to the0 in the national interest. Such cases can be maximum extent practicable consistent with the expected to be rare. Except for national defense State Plan, as long as national defense objectives and national security needs as established by the are protected. To this end, the Navy intends to President and the Congress, the determination permit review, subject to security restrictions, of of national interest needs, along with any mea- its master plans, general development maps, sures necessary to mitigate the adverse impacts and offshore operating area requirements, for of meeting those needs, should be made cooper- comment and recommendation by the agencies atively by the affected local, region all, State, and responsible for carrying out the Coastal Plan. Federal agencies. Other Federal agencies have also indicated their Clearly, national defense and national security willingness to cooperate in a similar manner. are among the highest priorities in the manage- There has, for example, been extensive coopera- ment of the coastal zone. Coastal zone military tion with the Army Corps of Engineers, which installations are important components in their shares regulatory authority with the Coastal local areas, and represent a stable and substan- Commission over the waters and wetlands of the tial contribution to the State economy. Because coastal zone, with the Federal Power Commis- military defense installations are excluded from sion on the siting of liquefied natural gas facili- the coastal zone, State or local approval for re- ties, and with the Environmental Protection lated activities is not required. The decisions on Agency on air and water quality standards. whether or not such activities will comply with Through a continuation of this process of discus- environmental safeguards rest with the Depart- sion, negotiation, and arbitration when neces- ment of Defense. The defense agencies - and in sary, among local, state, and federal interests, particular the Navy, which is the Federal agency differences can be addressed cooperatively, and most dependent on coastal installations for its the entire coastal zone be treated as an interre- continued operations-have displayed increasing lated environmental and economic. system. sensitivity to environmental issues in their oper- I PUBLIC INTEREST IN THE COASTAL ZONE The public interest in the California coastal zone * living on or near the coast; is as diverse and varied as is the 1,100-mile &ejyn h ece n ak ftecat coast itself. To varying degrees, the people of * noigthe leancoastand pairks and the coserntynn California, the people of the United States, and th la ospa iratindo the unaaleedvrienty ofcastaln even the people of many parts of the world ben- forestisn mofteuntainalufsestuarietyo canda ef it from the California coastal zone. foessamutanbufesuris. n The public interest in the coastal zone is in: *its use for national defense; The public interest in the coastal zone is em- braced by the two objectives of the Coastal Plan, *its timber and its oil and other minerals; which are to: *the electric power generated along its shore; 1. Protect the California coast as a great natural *the products shipped around the world from resource for the benefit of present and future its ports, and the imports that arrive in Calif- generations. ornia harbors; 2. Use the coast to meet human needs, in a *the fish and other food produced in the coast- manner that protects the irreplaceable resources al zone; of coastal lands and waters. RIGHTS OF PROPERTY OWNERS * 19 ECOLOGICAL PLANNING PRINCIPLES The ecological planning principles and assump- � People are an important part of coastal eco- tions underlying the Coastal Plan are as follows: systems. People change ecosystems, and in � No one part of an ecosystem operates inde- doing so can improve human living conditions. pendently of any other. Therefore, alterations But changes in the natural environment can within an ecosystem should be carefully con- also result in undesirable consequences as, sidered as to their impacts on other portions for example, the introduction of pollutants into of the ecosystem. the air and water can harm human health. � Air, soil, water, and light are the basic physi- � Every ecosystem has a carrying capacity, cal requirements for an environment to sustain which is limited. Coastal zone management life. must recognize the limiting factors, and they � Organisms have requirements essential to life. should be of primary concern in environmental If any of these requirements are met in analysis. People must recognize the balance of amournts too small to satisfy the organism, it nature and limit use of natural resources so that will not be able to survive in a particular area. they do not destroy options for the future. RIGHTS OF PROPERTY OWNERS The Coastal Plan recognizes fully that the own- public roads, and to provide public access to the ership and use of private property are funda- oceanfront where appropriate. mental concepts in the law and traditions of the The property rights of a landowner are not abso- United States. This nation's long history of per- lute. Rights can and do change over time, and sonal liberty, as well as its material prosperity, the rapid urbanization of the United States have resulted in large part from the freedom and during the 20th century has led increasingly to private enterprise encouraged by the private restrictions on the use of private property-re- ownership and use of resources. The Constitu- strictions held by the courts to be constitutional. tions of both the United States and the State of For example, the U.S. Supreme Court held 25 California protect property owners against the years ago that property owners could not create taking of their property without just compensa- an enforceable agreement requiring racial dis- tion. The Coastal Plan cannot violate these Con- crimination in the future sale of their land. For stitutional mandates, and it does not. many years, laws have prohibited the use of Landowners' Rights Protected. The Coastal Plan property in a way that would result in health protectstherights oflandowners. The Phazards or noxious effects on the public at large. protects the rights of landowners. The Plan pro- And local zoning laws have been upheld by the poses that some key coastal properties be bought courts since 1926. by the public for public use or environmental protection; the owners of such property would be Rights and Expectations. The issue is not wheth- paid fair market value for their holdings. If such er property owners rights could be violated; property is not in fact bought by the public, the under Federal and State Constitutions they could property may be put to other uses by its owner not be. The issue, at least in may places, is that consistent with Coastal Plan policies. The Coast- property owners' expectations may be affected. al Plan proposes development standards, similar When people buy land, they often expect a cer- to those in long-established city and county laws, tainty of financial return greater than when they under which new buildings would be designed to buy securities or make other investments. Be- minimize interference with ocean views from cause they may live on the land and farm it, be- 20 ' PART I: SUMMARY AND INTRODUCTION w~~ ~~iO Malibu Beach cause they pay property taxes on it, and because But the Plan would require that such houses be of the recent rapid rise in land values in many designed, built, and landscaped to minimize in- areas, many people expect to make money by terference with public views from Highway 1, holding or using land, and they believe they de- and to safeguard wherever feasible public ac- serve to be compensated if their expectations are cess to the publicly owned tidelands. Thus, with not realized. Under the Coastal Plan, as under no taking whatever of an owner's property, the many Constitutional land use laws, people can owner of coastal land might be required to build use their land in a variety of ways, but in some in a slightly different manner from what he cases not as fully or intensively as they might might otherwise like to do. This is no different like. from the existing city and county ordinances, accepted by landowners and public alike, that Development in Both Public and Private Interest. acce pted by landowners and public alike, that require, for example, street dedications or front The Coastal Plan recognizes that in many coastal and side yard setbacks from a property line. In areas open lands now providing spectacular . other words, established law already requires ocean views are in fact lands that have been di- that an owner of land take public needs into vided into small lots generally intended for sin- account in his private development. gle-family homes. If all the owners build single- family houses, as presumably they eventually Public Access to the Ocean. The Plan would not expect to do, and if all the homes are screened take any private property for public use, but and landscaped, motorists on the publicly financ- rather seeks to protect existing public rights of ed scenic State Highway 1 will not see the ocean access to the ocean and other navigable waters. but the backs of a nearly solid wall of houses. Just as the California Constitution protects pri- The Coastal Plan recommends policies to deal vate property rights, so it also protects rights of with this situation. In appropriate areas, lots not public access. The State Constitution, adopted in yet built upon could be bought back from their 1879, provides in Article XV, Section 2. that owners-at fair market value-so that the land 'The People Shall Always Have Access to Navi- could be preserved as open space or, alternative- gable Waters. No individual, partnership, or cor- ly, replanned, redivided, and resold for a clust- poration, claiming or possessing the frontage or ered form of development that would preserve tidal lands of a harbor, bay, inlet, estuary, or substantial open areas. If the property is not other navigable water in this State, shall be per- covered by a public program of this or similar mitted to exclude the right of way to such water type, then the Plan recognizes that the owner of whenever it is required for any public purpose, an individual lot, having no legal or physical im- nor to destroy or obstruct the free navigation of pediments to restrict development and having no such water; and the Legislature shall enact such reasonable use other than a single-family home, laws as will give the most liberal construction to will be able to build such a home on it. this provision, so that access to the navigable ECONOMIC IMPACT OF THE PLAN o 21 waters of this State shall be always attainable for success as well as financial reverses in the owner- the people thereof." ship of land, as in the ownership of securities Summry.In ummay, he oasal Panif ar-or any other investment. Although no compen- W~~re outmas resete insmay thirepot woastld Plnoftar sation for loss of expectations is legally required, taed any landwes' prighs.ne In some aepor, woldnt perhaps there should be a public policy debate might chylagdwers highs.I expectatios, but teeaeas to its desirability. At the very least, however, migtcange fatos oterpethantheioasta Plan theeare it could be difficult indeed to correctly measure cany fluctorsuother thand vales -foreastaleata declines in value, and to fairly assess the many caneinfluenc ofutr land vaus-for secon-hmpes biiin factors that might be responsible. And there is dependi palue at least, fon theprcend-hm audvaision yet no tradition of public responsibility for gua- depedsin artat last onthepric an avil- ranteeing the success of private investments in ability of gasoline for driving to distant areas. land or in anything else. Thus, there can be many reasons for financial ECONOMIC IMPACT OF THE PLAN Protecting California's coast is essential for the concentrated on short-term economic benefits: State's long-term economic well-being. The when a marsh was filled, attention was given to Coastal Plan calls for economically sound mea- the jobs created by new construction, and a re- sures: well-planned, orderly development to curb sulting increase in the local tax base. Similarly, the wasteful use of land; vigorous protection of building houses on prime farmland has usually the coastal resources that are the basis of the been seen as economically beneficial. But there . ~~multi-million dollar coastal tourist industry and is increasing evidence of long-term losses that the thousands of jobs it provides; and similar pro- may not be so visible. Filling marshes, bays, and tection for coastal farmlands, timberlands, and estuaries, which are essential nursery grounds ocean fisheries-all of which provide jobs and for many species of fish and wildfowl, can grad- income for Californians. ually decrease the ocean fisheries-and the jobs and income, together with food supply, that Factors in Economic Analysis. Economic activity ocean fishing provides. There may well be seri- along the coast is affected by many factors of ous long-term consequences from the increasing which the Coastal Plan is only one. Interest loss of prime agricultural land-effects not only rates, population growth, unsold or under-used on food prices but on the ability of this nation to buildings, and the availability of energy are all help feed the world's growing population, and to factors that will affect building activity along the export food in return for petroleum, metal ores, coast. The coastal economy, and indeed the and other products from abroad. State's economy, may also be affected in less obvious ways. For example, there is an economic The Coastal Plan recognizes, in short, that pro- loss when low-quality, sprawling development is tection of coastal resources is essential to a allowed to overrun land suitable for much better sound economic future for California. Specific- development. There is an effect on the consum- ally: er's food bill when prime agricultural land is-TeCatlPnSektortctheEnmi converted to other uses-followed by efforts to Value Cofsa Pulicanjoyeeksto Pofec the Oceafont.i lacdtruhenryinensve cmaabeproducations on lesr-ual While it may not be possible to determine pre- liatind wthrog endergy-izer.sive apliastmiosus of i-cisely the dollar value of a day of recreation or riatiforni' coasterand frtiiesor.Tes past misused ofea inspiration provided by ocean beaches, parks, Caliorni's casta resurce hascausd unea-bluffs, and trails, there are clear dollar values sured but real economic losses. attributable to the coastal visitor economy. And . ~~Short-Term Vs. Long-Term Economics. The the Coastal Plan seeks to increase public access gradual, piecemeal degradation of natural to the oceanfront in appropriate areas; to provide is ~resources has not usually been recognized as a tourist accommodations from campgrounds to major economic lose. Rather, attention has been hotels, resorts, and meeting centers; and to give 22 � PART I: SUMMARY AND INTRODUCTION preference to these public activities over private Plan seeks to protect ocean fishing, both com- housing in suitable coastal areas. If Californians mercial fishing and sport fishing. The Plan were to allow the coast to be further degraded, therefore seeks to protect the coastal estuaries ocean views to be blocked by poorly-designed and wetlands essential to California's ocean buildings, and access to beaches restricted, they fishery, and to protect coastal water quality. would be risking the future of one of the most The economic values are clear: the Security important economic assets of the State-coastal Pacific study noted that in 1972, the most recent visitors. year for which detailed figures are available, California landings and shipments of commer- Security Pacific Bank, in its 1975 Coastal Zone California landings and shipments of commer- cial fish were valued at $162.5 million. The Economic Study, wrote that "tourism is a vital a h ere value o m il study added that "the real value of commercial economic base industry, i.e., its income accrues s e tate re al comesa fishing to the State and regional economies of from sales to people from outside the state, and fiino eS o ria econoi California in terms of primary, secondary, and it brings in 'new dollars.' Some of its benefits tertiary income and employment is difficult to include the direct and indirect support of a mul- ass nm a ee s a o assess. In most cases, these values are pro- ti-industry infrastructure, the employment of ab nmstate alsa r ro bably understated. California fishermen range many relatively unskilled workers, and the taxes ay es fr he me r ne many miles from their home ports in search paid by the tourist...Tourists make relatively of their catch - from Alaska on the north to small demands on a region's public services (po- oth erca on the oth South America on the south -- and in many lice and fire protection, street maintenance, etc.) St Ae o the th a n instances, they market their catch at the nearest and yet they contribute heavily toward providing suitable port in order to shorten their turn- emplymen an incme nd i redcin thetaxsuitable port in order to shorten their turn- employment and income and in reducing the tax around time. Consequently, California's official burden of local residents." around time. Consequently, California's official burden of local residents." published valuation figures are understated *The Coastal Plan Seeks Orderly, Balanced De- in that they include neither the value of the velopment, Reducing the Excess Costs of Urban fishing catches, the profits, nor the wages, Sprawl. "The Costs of Sprawl," a study made in resulting from deliveries to non-California 1974 by Real Estate Research Corporation for ports. There is a positive effect, however, in the Federal government, showed that well-plan- that these monies are brought back to California ned, concentrated development means savings to and introduced into the state and regional the public of between 5 and 33 per cent when economies as export or 'new' dollars." compared with wasteful, land-consuming devel- opment. The savings are in the costs of roads, -The Coastal Plan Recognizes the Possible Need sewer and water lines, etc., and also in travel for Energy Installations and Production. The time for residents, the need for services such as Coastal Plan recognizes that some future coastal schools and fire stations, etc. And, of increasing sites may be needed for new or expanded power importance, well-planned developments can save plants, that new port terminals may be needed greatly on energy. The Coastal Plan seeks not to for larger petroleum tankers, and that offshore stop growth and development, but to direct new petroleum production may be required as part of construction primarily into the rebuilding and a national energy conservation and development upgrading of already-developed areas where program. The Plan provides standards by which additional development can be accommodated. necessary energy installations may be accommo- The issue is not whether there should be new dated, consistent with the protection of coastal development, but where. economic and environmental resources. a The Coastal Plan Seeks to Protect the Harvest- *The Coastal Plan Seeks to Provide Other Eco- ing of Renewable Resources - Agriculture, nomic Benefits. The Coastal Plan seeks to pro- Forestry, and Ocean Fisheries. Thousands of tect the coastal streams that deliver sand to jobs and millions of dollars in annual crop pro- ocean beaches; beach erosion costs property duction depend on the unique combination of owners and governmental bodies several million California's coastal soils and climate. Protecting dollars every year for building groins, jetties, California's agricultural lands is not only a and other erosion-combating structures, and for coastal issue; it is obviously a problem of State- importing sand. And the Coastal Plan also seeks wide concern. But the Coastal Plan seeks to to maintain and enhance coastal air quality; air maintain the long-term productivity of coastal pollution causes millions of dollars annually in farmlands, grazing lands, and timberlands for crop damage, and inestimable damage to human their long-term economic value. Similarly, the health. * '444V49�44r44"4t4. *44 44 44 44444 .44 4 V 44rr% in4togs and 444 r 2 4 &r> > 4444444 444 4 4 49 �44�4* P44+?4L (+2<4444 4 - 444 4+44424 44N <' 4 22 44444 PoIic1es 7, 44 44 44 c; 4444 44 444'444�4% 4�44 4>444 94t�& 444444 444-44.4 \4.444.4i444 r4� K%�k4rts A4r4r' 444449 4444 44t2P.v% 4< 4tTh *4444442(4t4?&t2 444444 444>4 249< 4 4< 44> 4-:4 44 444 4 4 <44> 444 4444444 444 444 44444>444444;44444 N4444. 4444244 4 4444 4.4 4>. 44 444;); 44 <' 44444, 44V44 44 4 4>g444 (4> 4 4 4 4 444 4 444$4 4444444 (4 44 4< 4444444444(4 - 4 4444444 44 444 444 - 4 2.4447 N 4�4444 44444' 44 4 4 4 4 4 4-44444444 44 44 44 4444 .4 / 0 4 44 4 44444444 4 4 - 4 4 444444 444 *4 444 4 444 4 4 HOW TO USE PART II *For an overview, see summary of findings and policies in Part I, beginning on page 5. *The Glossary can be found in the Appendix. *Policy "tagline" index, also at the back, provides a numerical list of policies. USE OF "SHALL" IN PLAN POLICIES The Coastal Act requires submission to the Governor and the Legislature of an enforceable Coastal Plan, and the Plan's policies are therefore generally written with the verb "shall." The entire Plan is, of course, the recommen- dation of the Coastal Commissions: the Commissions recommend that legis- lation be enacted and other steps taken to give the policies the force of law. In a sense, then, the policies are similar to draft legislation, so that, upon approval by the Governor and the Legislature, the policies "shall" be carried out. The policies also provide criteria for ensuring that coastal developments are consistent with protection of coastal resources. Unless specifically stated otherwise in the policy, it is intended that the burden of demonstrating compliance with the criteria rests with those proposing the development. * BASIC GOALS FOR COASTAL PLANNING Findings Planning for Conservation and Development to Be Consistent with Coastal Zone Act. The California Coastal Zone Conservation Act declares that the coastal zone is a distinct and valuable natural resource, and requires that planning for conservation and development be consistent with all of the following objectives: � The maintenance, restoration, and enhancement of the overall quality of the coastal zone environment, including, but not limited to, its amenities and aesthetic values; � The continued existence of optimum populations of all species of living organisms; � The orderly, balanced utilization and preservation, consistent with sound conservation principles, of all living and non-living coastal zone resources; and � The avoidance of irreversible and irretrievable commitments of coastal zone resources. Policy 1. Basic Goals for Coastal Zone Conservation and Development. The basic goals for conservation and development in the coastal zone shall be: (1) protect, enhance, and restore the natural resources of the coast; (2) protect, enhance, and restore the manmade resources of the coast - the special communities and neighborhoods that have unique cultural, historic, and aesthetic qualities; (3) give priority to coastal-dependent development - uses of land and water that by their very nature require coastal sites - over other development on the coast; (4) maximize access to the coast for people of all income ranges, consistent with the protection of coastal resources; and (5) encourage orderly, balanced development that avoids wasteful sprawl by concentrating new growth in already- developed areas with adequate public services or in other areas near major employment centers consistent with resource protection policies. MARINE � ENVIRONMENT OCEAN RESOURCES MANAGEMENT Findings sunlit surface waters where the vitally important process of photosynthesis occurs. These topographic features also pro- vide areas of unique habitat and serve as spawning grounds. Marine Resources Are Essential. Life on earth is completely dependent upon the ocean as: Kelp Beds Also Contribute Greatly to the Coast's Biological * a source of fresh water as a result of evaporation and atmos- Productivity. Kelp beds and kelp forests are a significant pheric transport that brings precipitation on the land, marine resource as they contribute to the high biological productivity of California's marine environment. Kelp serves * the temperature-regulating system which permits life to ~~~~exist on earth,~ ~ ~as a sanctuary, nursery area, habitat, and food source for so many species that kelp supports a far greater variety * a major source of oxygen for the atmosphere, and and total amount of life than does a temperate land forest. * a great reservoir of animal protein. The great "biomass" (the amount of living matter per unit area) of kelp functions as food and shelter as well, and The sea provides man with food, economic opportunity, provides an abundance of living matter to thesurrounding educational and scientific resources, recreation, and inspi- sea. Kelp is usually found in rocky coastal environments ration. While the role of the sea as a source of food is already from the intertidal zone to depths of 80 to 100 feet of water. important, it is expected to become even more important in Kelp is a source of many products useful and valuable to the future. Coastal waters are at a minimum four times more people, such as the thickeners and stabilizers in foods, productive than the open ocean; even though the waters over cosmetics, and medicines, and additives in industrial products. the continental shelves comprise only 10 per cent of the In San Diego, for example, the value of the kelp harvested world's ocean surface, 90 per cent of the world's fisheries in 1972 was estimated at more than $500,000 and the market are concentrated in this zone. value of products derived from the harvest at 10 times that amount. Kelp not only serves as a valuable source of natural California's Coast Is Especially Productive. The California products but also tends to dissipate wave action and thus coastal marine environment is among the most productive retards processes of wave erosion along the shoreline. in the world as it is enhanced by: � a rugged sea floor with extensive structural relief that Some Human Activities Have Caused Kelp Bed Losses. provides a variety of habitats, While the size of California's kelp beds varies radically over time in response to natural changes in water temperature � wind and currents which cause the upwelling of nutrient- and currents, they appear to have declined in overall dis- rich deep waters to the surface; tribution from about 100 to 75 square miles of areasince * kelp beds that support an abundant variety of life; the turn of the century. Some of this reduction is attributable to human activities that involve the following: sewage dis- * rocky tide pools and intertidal areas which sustain many charges that smother the sea floor with wastes, reduce unique species; and water clarity needed for photosynthesis, and maycontribute � estuaries and wetlands that are among the world's most to a rise in the abundance of sea urchins that feed on kelp; biologically productive ecosystems. thermal waste discharges that increase the temperature of the water beyond the tolerance of the plant; and toxic Rugged Sea Floor Is One Physical Factor In Sustaining discharges of DDT and heavy metals. Overharvesting of Biological Productivity. Twenty-seven submarine canyons kelp beds can also cause damage to the resource, although exert significant biological and geological control over the with a program of controlled harvesting, administered by continental borderland by providing conduits for transmission the Fish and Game Commission, augmented by restoration of nutrient-rich deep water to the inshore environment. efforts based upon appropriate research and observation, Underwater ridges, banks, mountains, and scattered islands natural growth (at least of the giant kelp species) can sustain also cause turbulent mixing in the water column by deflecting continued harvest in appropriate areas. Different varieties currents and waves, thus enhancing the fertility of the of kelp and different growing conditions in northern and MARINE ENVIRONMENT * 27 processing, retailing, sport fishing, and fishing gear suppliers. The continued vitality of California's coastal fisheries (commercial and recreational) will require effective State, national, and international management to restore and maintain harvestable species at "optimum sustainable yield" (the catch level that can be continued indefinitely while stock is maintained or restored). Changes in International Fisheries Management. There is increasing international recognition of the importanceof the world seas and the need to deal with urgent ocean problems, such as overfishing of some species, affecting all living marine resources. International Law of the Sea Conferences in recent years have been working towards better manage- ment of the world oceans. The United States Senate has established the Ocean Policies Committee to aid in the transition to new national and international priorities affecting the sea's resources. Similarly, the State Assembly Sub- committee on Coastal Resources is exploring California's interests in worldwide ocean management. Emerging from the international efforts is the concept of jurisdiction over ocean resources extending 200 miles offshore from each coastal nation, rather than the present 12-mile jurisdiction. While this gives the United States authority over one-fifth of the world's fish stocks, including the valuable fisheries off California, it also requires increased international coop- eration in sharing and managing these resources wisely. National Programs Being Developed. The National Marine Fisheries Service of the National Oceanic and Atmospheric Administration (NOAA) is preparing the first National Plan for Marine Fisheries. As projected in that plan, the activities of Federal and state fisheries agencies will be expanded dramatically. New Federal and state laws, budget allocations, and compacts will undoubtedly follow the now established pattern of cooperation between Federal and state agencies. Individual states, or interstate organizations, will assume southern California, however, require careful evaluation in some direct control of new national fisheries policies within developing proper controls or prohibitions on harvesting. the 12-mile "territorial sea." Despite kelp's unique role in the productivity of the coastal environment, no kelp interpretive center exists to inform California's Fisheries Management System Needs Improve- and educate the public of the extraordinary importanceof mont. Present State management and regulations may be these plants. (See Policy 150 regarding the recommendation inadequate, especially as California takes on an expanded that certain kelp beds be included in a coastal reserve system.) role in ocean resources management programs. Research and monitoring programs are often fragmented and incom- Aquaculture in Coastal Waters. Aquaculture (water agri- plete. Within California's jurisdiction, the State Legislature culture) involves the cultivation and harvest of aquatic regulates commercial fisheries, while the Department of organisms. Currently it produces most of the mollusks Fish and Game is primarily concerned with sport fishing. marketed on the West Coast. In the future,aquaculture tech- Some fishing regulations are seen as punitive, particularly niques may be improved and applied to other species, in view of the fact that California's commercial fishermen, reducing costs and increasing availability of fish and shell- sport fishermen, as well as fishermen from other states and fish as sources of protein. Coastal lagoons and estuaries nations, must all compete for available resources, yet are not are the predominant locations for aquaculture operations, all subject to the same laws. Overfishing - in the absence Generally, aquaculture can coexist with any activity that of regulations or by unregulated foreign or illegal fishing does not cause pollution or deterioration of the marine operations - can seriously deplete fish stocks to the detriment environment. Some species can even thrive in heated waters of commercial and sport fisheries, the general public, and in the vicinity of energy generating plants. Other species the marine environment. A more comprehensive and better- may be able to utilize nutrients from properly treated sewage funded program is needed to undertake marine resources discharges. The net impact may be a reduction of diversity, management within the State's jurisdiction and to coordinate however. Some aquacu4ture operations may require the use with other state, Federal, and international programs. of open waters now accessible to the public, therebycon- verting them to "private" waters. Additionally, aquaculture Human Activities Affect Marine Resources. The intimate alters a natural habitat by selective cultivation of a plant details of the nature and diversity of living resources of the sea or animal and so may displace other species. are not yet completely understood nor are all of the impacts of human activities upon the organisms and processes of the Vitality of California's Coastal Fisheries. Living marine sea immediately apparent. It is clear, however, that marine resources are not only important in supplying protein and resources are profoundly influenced by many human uses of other products, but they also contribute at least $600 million the marine ecosystems. Pollution of water, over-exploitation annually to the California economy, including income from of fish stocks, and destruction of essential habitat areas 28 , PART II: FINDINGS AND POLICIES all diminish the opportunity for people to benefit from the Organisms. Healthy populations of all species of economic, recreational and other values of marine resources. marine organisms shall be maintained, adequate Signifi!cant opportunities exist not only to protect but to restore for commercialrcetoasinfcnddu_ the natural productivity of the marine environment as a ,rcetoasiniiadeua renewable resource. tional purposes. To this end: a. Effective Marine Resource Management. The State Department of Fish and Game and the Fish and Game Commission shall be Policies adequately funded (from the General Fund as well as from hunting and fishing licenses and 2. Basic Policy. Protect, Enhance, and Restore fines) and adequately staffed to maintain Marine Resources. Public policy at all levels of responsibility for the management of living government shall seek to maintain, enhance, and, marine resources. They shall be charged with where necessary, restore marine resources. While exercising jurisdiction over both commercial the entire ecosystem is important, special pro- and sport fisheries and kelp harvesting. The tection shall be given to areas and species of Department of F ish and Game shallI coord inate special biologic or economic importance including its research and management 'programs with those identified by the State Water Resources the comprehensive ocean water quality research Control Board as Areas of Special Biological Signi- and regulatory program described in Policy 6. ficance, by the State Department of Fish and It shall also continue to be responsible for main- Game, and in the Coastal Plan. Uses of the marine taining and restoring scientific, educational, environment - for commerce, food supply, waste recreational, and aesthetic uses of living marine disposal, mineral extraction, and recreation - resources; developing and implementing habitat shall be carried out in a manner that sustains the restoration and kelp propagation programs; productivity of coastal waters and does not threaten disseminating public information; monitoring the existence of native species. and coordinating marine research programs; and, based on determinations of population 3. Maintain Healthy Populations of All Marine structure and dynamics and monitoring of fish INTERTIDAL MARINE LIFE Adapted fromn a diagramn by Gerhard Bakker in An Island Called California, by Elna BakkerSPAHZN see kBarnacle O-01paileye 9 Coraline Algae 2~~ ucu Se~a Lettuce ..~I MEAN LOW TIDE LEVEL S$ . '.5' MARINE ENVIRONMENT � 29 capture rates, establishing standards to assure optimum sustainable yield (the catch level that can be continued indefinitely while stock is maintained or restored) of all harvestable species. Present kelp harvesting regulations of the Fish and Game Commission shall con- tinue to be refined and evaluated to prevent degradation and to maintain an optimum sus- tainable yield of kelp resources, based on scientific research and taking into account regional variations. Programs shall be investi- gated and, where appropriate, implemented for: (1) a commercial fishing academy, (2) hatcheries and stocking, and (3) limited entry to fisheries resources (e.g., limiting the number of fisher- men, boats, or gear that may be used to harvest a resource, similar to the present regulation of kelp harvesting), particularly in the abalone and lobster fishery. The entry of private enterprise Eureka harbor into hatchery and stocking activities shall be 5. Upgrade Commercial Fishing Facilities. encouraged. Performance objectives for each of Facilities serving the commercial fishing in- these responsibilities shall be agreed upon with dustry shall be protected and upgraded. Adequate the Department of Fish and Game, and progress berthing space and shoreline support (e.g., boat- in meeting the objectives shall be reviewed works and space for fish buyers and equipment annually or biannually by the coastal agency suppliers) shall be provided for commercial fishing and reported to the Governor and the Legis- boats and commercial party boats. lature. (Although this marine resource manage- ment program may be accomplished through a a. Reserve Adequate Space for Commercial Fishing redirection of existing priorities and funding, Facilities. Existing commercial fishing harbor it is recognized that additional programs and space shall not be eliminated or reduced unless funding may be required. Furtherstudywill the demand for commercial fishing facilities be needed to determine precise costs, legislative no longer exists or adequate substitute space authorization, and program changes to carry has been provided. New or major expansions out this policy. See Part III section on financing of recreational boating facilities that might use the Coastal Plan.) up remaining harbor areas suitable for com- mercial fishing facility development shall be b. Cooperation with Other States and Nations. permitted only if facilities serving commercial California shall continue to seek effective fishing in the area are adequate or if construc- fisheries management with adjacent states fishing in the area are adequate or if construc- and sh all support national and international tion of needed additional facilities is assured. and shall support national and international fisheries control adequate to protect worldwide b. Allow for Needed Commercial Fishing Facilities. marine resources. New or expanded commercial fishing facilities requiring dredging or filling of coastal waters 4. Criteria for Aquaculture. New or expanded shall be allowed where (1) there is a need for aquaculture operations in coastal waters shall be the new facilities or expansion that cannot be encouraged under permit safeguards administered met by more efficient use of existing facilities by the Department of Fish and Game (including within the harbor or by facilities in nearby use of adequate controls to prevent the accidental harbors, and (2) the need cannot reasonably be escape of non-native species) especially where they met by placing the facilities in open water areas. would preserve, restore, and enhance marine areas Conversion of such expanded commercial for public use and would not displace productive fishing facilities to recreational boating use natural habitats. Where infringement on public shall not be justified on the basis of greater use or natural habitat would occur, potential food economic return from recreational boating. production shall be weighed against the loss to c. Provide Public Access. The public shall be the public of the fishery and the changed value afforded access to commercial fishing harbors of the natural habitat. consistent with security and safety. 30 a PART II: FINDINGS AND POLICIES COASTAL WATER QUALITY ~~~~~~~~~~Findings ~Federal Act may not be weakened in any way by the coastal Findings management program, although the Coastal Plan may impose stricter wastewater quality criteria. Water Quality Management Involves Many Jurisdictions. Current water quality management programs are based on the primary requirements in the 1972 Federal Water Pollution Control Act and its amendments. In California, the State Policy Water Resources Control Board and the Regional Water Quality Control Boards are the primary agencies for water quality management. They administer the discharge permit requirements mandated by State and Federal regulations 6. Expand Ocean Water Quality Research and and prepare required basinwide and specific area waste- Regulatory Program. A comprehensive ocean water discharge plans and programs. They also administer water quality research and regulatory program Federal grants for upgrading of treatment facilities and designate Areas of Special Biological Significance. The State based on that presently carried out by the State Board's Ocean Waters Plan sets waste discharge quality Water Resources Control Board shall be expanded requirements to protect beneficial uses of ocean water, and implemented cooperatively by the State Water including maintenance of marine life; its Thermal Plan Resources Control Board, the State Department places restrictive requirements on existing and new thermal of Fish and Game, and otherappropriate State discharges, though there has been some question as to their and local agencies. The protection of areas of appropriateness and the need for individual resolution in applying the requirements; and the Bays and Estuaries special biologic importance (see Policy 2) shall be Policy severely limits the discharge of municipal waste the first priority. The program shall include waters and industrial process waters to enclosed water empirical studies of the present condition of marine bodies. A variety of local, subregional, and regional autho- living resources (baseline studies), assessment of rities are involved in collection and treatment of waste waters. Local health departments authorize septic tanks in damage from various activities, and evaluation areas without sewer systems. Thus, current water quality and appropriate control of all potentially hazardous management programs are divided among Federal, State, discharges and development affecting the marine regional, and local jurisdictions. environment, as further described in Policies 7-14. Some Water Quality Program Changes Underway. A number (Although this program may be accomplished in of additional important water quality programs are currently part through a redirection of existing priorities and being developed. The U.S. Environmental Protection funding, it is recognized that additional programs Agency (EPA) is applying effluent limitations for various and funding may be required. Further study to types of domestic and industrial sources of waste water. determine precise costs, legislative authorization, Regulations for electric power generating plants (important for both thermal and other effluent components) were pro- and program changes is needed to carry out these posed in March 1974. A number of Regional Water Quality policies. (See Part III section on financing the Control Boards are currently developing erosion control Coastal Plan.) This program shall be closely coor- policies under the requirement that general sources of dinated with the living marine resources manage- pollution, such as construction practices, be controlled. ment program described in Policy 3. Program Coastal Plan Can Set Stricter Standards. The Federal Coastal results shall be reviewed annually by the coastal Zone Management Act requires that the Federal requirements agency, evaluated, and reported to the Governor and those of State and local governments pursuant to the and the Legislature. WASTE DISCHARGES Findings into California's wetlands, estuaries, and coastal waters. Such discharges seriously impair water quality that is essential to the health of marine as well as human life. Waste Discharges Impair Essential Water Quality. Currently Enclosed Water Bodies Are Especially Vulnerable to Damage. at least 130 waste disposal outfalls annually discharge444 Enclosed bodies of water such as bays, estuaries, and billion gallons (1.36 million acre-feet) of domestic and in- lagoons, with their limited water circulation and abundant dustrial sewage that has received varying degrees of treatment plant and animal species, are more susceptible to damage MARINE ENVIRONMENT * 31 from water pollution than is the open ocean. Most wastes discharges shall be upgraded to meet the goals discharged into the water consume oxygen as they decompose. and standards of the Federal Water Pollution Many wastes are natural products that the sea can decompose Control Act as amended, and to comply with and reintroduce into the life cycle, but with large amounts of organic material or with discharges into enclosed or semi- Section 13379 of the California Water Code, enclosed areas with poor water circulation, wastes can cause which requires compliance with these amend- fish kills, algal blooms, stagnation, foul odors, and smothering ments. The ultimate goal shall be the removal of benthic (bottom-dwelling) organisms. of all pollutants from waste discharges. Highest priorities in the coastal area shall be Mid-1977 Deadline for Secondary Treatment of All Sewage. Highest priorities in the coastal area shall be Following primary treatment of raw sewage, wastes still given to improving or eliminating discharges contain 60 to 70 per cent of the original organic material that adversely affect (1) wetlands, estuaries, 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 percent of the oxygen-demanding organic wastes. Secondary treatment may also reduce the concentrations of micro-organisms, chemicals, heavy metals, particulates, and silt loads in discharged waste waters. Many Present Discharges Are Inadequately Treated. At present many of the sewage discharges into coastal waters are inadeqtlately treated. 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. Policies 7. Basic Policy: Maintain, Manage, and Restore Ocean Water Quality. The natural quality of ocean water appropriate to the maintenance of optimum populations of marine organisms and for the protection of human health shall be maintained, managed, and where necessary, restored. Using either the U.S. Environmental Protection Agency Ford Ord sewageoutfall or State Water Resources Control Board (SWRCB) other biologically sensitive sites, (2) areas standards, whichever is more stringent, as a mini- important for water contact sports, (3) areas mum, all agencies shall take appropriate action that produce shellfish for human consumption, to assure that this goal is met. The State Water and (4) ocean areas subject to massive waste Resources Control Board, which is the agency discharge (e.g., between Newport Bay and El authorized to set waste discharge standards, Segundo). Outfall sites and equipment shall shall set those standards appropriate to assure also be improved to provide substantial diffusion that the objectives of this policy are met; the of discharged waste waters as provided by the coastal agency shall approve, modify, or dis- present water quality standards. approve development proposals and plans within its area of jurisdiction to assure that the objec- b. Phase Out Discharges to Enclosed Bays and tives of this policy will not be frustrated by in- Estuaries. Existing discharges of municipal appropriate development. SWRCB and the coastal waste waters and industrial process waters to agency shall periodically report to the Governor streams, wetlands, enclosed bays, and estuaries and the Legislature progress toward achieving shall be phased out as soon as possible (as the objectives of this policy. provided by the State Water Resources Control a. Upgrade Existing Municipal and Industrial Board's Water Quality Control Policy for Discharges. All municipal and industrial waste Enclosed Bays and Estuaries of California), 32 * PART II: FINDINGS AND POLICIES and new discharges shall be prohibited unless f. Require Source Control. Toxic and hard-to-treat the waste water is (1) necessary to maintain substances shall be pretreated at the source if water flow or water level in the receiving waters such substances would be incompatible with and (2) consistently treated to enhance the effective and economical treatment in municipal quality of receiving waters while maintaining treatment plants (e.g., as presently required the natural balance of the ecosystem. as a regulation of the State Water Resources c. Require Adequate Treatment for New or Control Board's grant program for municipal Enlarged Discharges to Other Coastal Waters. facilities). New or enlarged sewage systems and treatment plants discharging to other coastal waters shall 8. Stress Reclamation ofWasteWater. Reclama- meet present Federal requirements, and all tion and reuse of adequately treated waste water wastes shall be treated sufficiently to maintain (for agricultural, industrial, recreational, fish and the natural quality of ocean waters and thereby wildlife, marsh enhancement, or domestic use) to sustain optimum healthy populations of shall be fully considered as a preferred alternative marine organisms (e.g., fisheries, kelp beds) to discharges into coastal waters and as a desirable and maintain human health and suitability, component of all water and waste water manage- where appropriate, for water contact sports. ment programs. High priority for funding shall be The effects of discharges shall be determined given to projects necessary to offset the continued on the basis of specific studies of each proposed depletion of coastal area water supplies (both outfall location, considering ocean chemistry surface and groundwater) and to decrease the need and mixing processes, marine life conditions, for water importation programs. (See also Policy 23 other present or proposed outfalls in the vicinity, regarding water reclamation as part of water and relevant aspects of areawide waste treat- supply planning.) ment management plans and programs, but not considering, for purposes of this policy, convenience to the discharger. 9. Strictly Regulate Wastes from Vessels. Dis- charges of sewage, waste waters, and other d. Control Discharges from Non-Sewered Develop- materials from vessels and related facilities shall ments. New or expanded coastal developments be regulated to prevent adverse environmental that are not connected to sewer and sewage impact upon enclosed bodies of water (e.g., by treatment systems shall be required to meet using sewage system hookups forlargeshipsat strict waste discharge requirements to prevent berthing docks and holding tanks and pumpout adverse impacts, including long-term and facilities for small craft). This policy may require cumulative impacts, on marine waters. further State and Federal action for full implemen- e. Restrict Expansion of Substandard Sewage tation. Similarly, discharges from vessels into open Systems. Expansion of sewer service in areas waters shall be regulated to prevent adverse with substandard treatment and disposal faci- impacts. Environmental Protection Agency lities shall not be permitted until adequate standards and Coast Guard certification procedures facilities are in operation, shall be rigorously enforced. HEATED AND COOLED DISCHARGES Findings mile area, one foot deep, daily. Additional uses of seawater, especially for major heating and cooling systems in energy facilities, are proposed. Power Plants Use and Discharge Huge Volumes of Water. Over three trillion gallons (9.2 million acre-feet) of seawater Industrial Uses of Seawater Have Adverse Effects. Coastal are now used every year to cool power plants on the coast waters used for heating or cooling purposes, industrial pro- and are then discharged at warmer temperatures into marine cesses, or mineral extraction can adversely affect the marine waters. Based on industry data, the amount of coolant water environment. Water is discharged at temperatures higher circulated through the Southern California Edison plants than ambient conditions. For example, thermal discharges within the South Coast region alone would cover a 12-square- from power plants between El Segundo and Huntingon Beach MARINE ENVIRONMENT � 33 increase the surface ambient water temperature at any given would regulate such discharges on a case-by-case basis to pre- time by 40 F. or greater over a combined area of almost two vent adverse effects on beneficial uses of the receiving waters. square miles. New currents or turbidity are created near intake and outflow points. Marine life is subjected to entrain- Entrainment Kills Marine Organisms. Many marine ment in the system. Chemicals used in such systems can kill organisms, including phytoplankton, zooplankton, fish larvae, many plants and animals. and small fish, are entrained as water is drawn from the sea for use in industrial or power plants. Many of these entrained Many Potential Effects of Heated Discharges. Research to organisms are killed due to pressure and temperature date has been inconclusive in determining the exact beneficial changes, impingement, physical abrasion, and chemicals. and detrimental impacts of heated water discharges, but This problem remains to be resolved at any site circulating potential effects can include the following: seawater for heating or cooling purposes. * Some species that cannot tolerate the warmer water will Chemicals Cause Additional Adverse Effects. Periodic leave or die off. (Kelp is among heat-sensitive organisms, "hot cycle" or chemical treatments with biocides for flushing with adverse effects generally at temperatures exceeding the cooling or heating systems can cause additional damage 66� F.) to marine organisms in the immediate vicinity of the outfall. * Other native species and aquaculture operations may be enhanced by warmer temperatures. � Reproduction and migration patterns of some species may be disrupted. Policy * In restricted water bodies, the amount of oxygen dissolved in the water may decrease, while the amount required for life processes will increase. 10. Avoid Adverse Effects of Thermal Discharge Little is Known About Effects of Cooled Water Discharges. and Entrainment. The adverse environmental In the process planned for use at proposed liquefied natural gas (LNG) facilities on the California coast, large amounts of effects of the intake of seawater and of discharges seawater would be used to heat the supercooled LNG, trans- of heated or cooled seawater shall be reduced forming it to a gas through heat exchangers in the vaporiza- consistent with those Coastal Plan policies calling tion facility. In the process, the seawater is cooled; it is re- for restoration or enhancement of coastal waters, turned to coastal waters at temperatures as much as 12� F. using the U.S. Environmental Protection Agency below ambient temperatures. Although it is known that standards in effect July 1, 1975, or State Water ! �! _ g ! A l l Tt4- Resources Control Board standards, whichever is more stringent, as a minimum. All State agencies t;:,� shall take appropriate action to assure that these goals are met. a. Criteria for Permitting Thermal Discharges. New warmed or cooled water discharges shall be permitted where (1) rapid return of dis- charged water to normal ambient temperature can be assured; (2) the discharge enhances, is important in restoring, or otherwise maintains the optimum population abundance and diver- sity of marine life, and (3) the best available mitigation measures have been incorporated as necessary to minimize adverse effects on marine life. Cooled water discharges shall be permitted only where there is no other feasible use of the cooled effluent in commercial or industrial operations. b. Prohibit All Harmful Discharges into Areas of Special Biologic Importance. New warmed or cooled water discharges into areas of special reductions in water temperature can be fatal to marine life, biologic importance, such as Areas of Special little specific data has been developed on the effects of con- Biological Significance as identified by the State tinuous cold water discharges on marine ecosystems. There Water Resources Control Board, coastal wet- is reason to suspect that unnatural reductions in temperature lands, marine reserves, wildlife refuges, educa- have a particularly severe effect on embryonic and fetal tion and research reserves, or in the vicinity development. Because the problem has not yet presented of kelp beds, shall be permitted only if the itself in California, the State Water Resources Control Board d i c a s hll e te ly f the has not developed standards for cold water discharges com- discharge will enhance the quality of the receiv- parable to those for heated discharges. Under existing rules ing waters and will not alter the natural balance and procedures, the Regional Water Quality Control Boards of the ecosystem. 34 * PART II: FINDINGS AND POLICIES c. Study Marine System at Future Sites of operations, rather than seawater at ambient Seawater-Using Plants. To assure adequate temperatures, for a heat source. measures to protect the marine environment, f. Minimize Entrainment. For each coastal power "baseline" studies of the existing marine plant or other installation using seawater for system shall be conducted in the area that could cooling or industrial processing, the best avail- be affected by a seawater-using industrial or able site, design, and technology shall be used power plant for a statistically valid period of to minimize the intake and mortality of all forms time (usually not less than two years). The study of marine life. Design shall include such features shall be made in advance of the anticipated as offshore intake points, velocity caps, and start of construction at the expense of the plant fish return systems. developer, and shall be made by independent developermadr b ine experts. g. Research Effects of Thermal Discharges. A State agency shall be adequately empowered d. Prefer Closed or Evaporative Cooling Systems. and funded to direct and coordinate research As a general rule, until more is known about on the environmental effects of thermal (heated the effects and methods for mitigating impacts or cooled) discharges, antifoulant biocides, of once-through cooling systems, closed or and entrainment of organisms. evaporative systems shall be preferred. The h. Monitor Discharges, Require Mitigation decision for each site shall be based on a con- Measures. Existing and new thermal discharges sideration of the overall environmental advan- shall be periodically monitored (by independent tages and disadvantages of each system. investigators or a State agency). It is recom- e. LNG Plants Shall Seek to Use Already Heated mended that the Legislature authorize a State Water. Where feasible, LNG vaporization agency to require appropriate mitigation plants shall be required to use heated effluents measures or alternative heating or cooling from nearby power plant or other industrial systems where significant adverse impacts are discovered. OIL AND TOXIC SPILLS Findings mental effects of oil spills, but in general oil spills are more hazardous to the marine environment in nearshore areas than in deep water because the productivity of shore- Several Sources of Oil in the Sea. Oil enters the sea from line, estuarine, and bay and harbor areas is affected im- several sources, including deballasting of tankers, bilge mediately. The damaging effects tend to be more severe pumping, ship accidents, vessel operations and ship yards, from refined products than from crude oil. Although some sewage effluents, oil well accidents, fallout from air pollution, animal species (possibly including some rare or endangered and natural seepage. species) are highly vulnerable to petroleum and could be wiped out by a major oil spill, many species with adjacent Oil Spills Have Differing Reported Impacts on Marine reproductive stocks seem to reassert themselves following Environment. There are conflicting opinions on the environ- the initial die-off after a spill. Long-Term Effects of Spills Not Completely Known. Oil is Sources of Oil absorbed by many bottom sediments and re-emitted for Auto in the Sea many months or years after a spill. Sub-lethal effects of Tank Barges Crankcase S oil pollution may endanger the long-term survival of a species 1.4 Tankers Oi or the entire ecosystem; however there have been few 28.4X 29A. research projects on these effects and conclusions so far Offshore have been equivocal. Production / Industrial 2.1X Z - /Oth WasteOil Further Studies of Effects, Complicated by Natural Seeps, Refinery Petro-Chem the 15.3 Are Under Way. Additional research on the sources and vesselsl s Plants Disposal effects of oil in the ocean is being conducted by various 6.1 X groups in California. Studies on the effect of spills along the coast are complicated by the presence of natural oil MARINE ENVIRONMENT * 35 and gas seeps that regularly emit petroleum, with unknown up to $20 million, and makes deepwater port licensees effects on the marine environment. The Division of Oil and liable, without regard to fault, for up to $50 million. Gas has documented over 50 seeps and seep areas between Costs and damages not actually paid by the vessel ownerl Point Conception and Huntington Beach, and many more operator or port licensee would be compensated by the seeps probably exist; although oil and gas seeps have liability fund. Draft Senate legislation relating to Outer occurred near the sea in Marin and Humboldt Counties, Continental Shelf (OCS) development proposes a similar there are no specifically located offshore seeps north of scheme to cover spills caused by drilling and production Point Conception. activities offshore. The Council on Environmental Quality and President Ford have proposed creation of a single na- Coastal Communities and Activities Are Impacted by Spills. tional liability fund to cover spill cleanup costs and damages Oil spills are aesthetically displeasing; they cover beaches, from all sources in State or Federal waters. create odors, can impart an unpleasant flavor to fish, and �International. Two international industry voluntary corn- may have significant economic and psychological impact on enationa T r o id ol human communities within the coastal zone. Recreation, pensation funds, TOVALOP and CRISTAL, provide oil pollution liability coverage for participating companies of commercial fishing, and water-related activities suffer the llion aili cve for can an $10 million and $30 million, respectively, for cleanup and most severe direct damage, but can recover in the absence of further spills. Of all the existing or proposed Federal third-party damages. In addition, two international con- ventions that would establish civil liability, with limits, offshore production areas - on the Gulf of Mexico, Atlantic, and an international compensation fund have been proposed and Alaskan continental shelves - only California's pro- and a in te ratication he beoe and are being circulated for ratification; they would become ducing area is located close to a large human population effective only if ratified by the U.S. Senate and by a (10 million plus) that is directly affected by the environ- ffcie n f the natn sufficient number of other nations. mental, aesthetic, psychological and economic effects of offshore production. Existing Liability Programs Are Inadequate. Except for the liability provisions of the Deepwater Port Licensing Bill, the Amount of Damage Depends on Several Factors. The amount existing liability programs are inadequate for a variety of of damage from an oil spill varies in degree and duration reasons: some provide only for cleanup costs, and not for depending on the quantity and type of oil, the degreeto damages; all provide dollar amounts that may be inadequate which it has been refined, wind and wave conditions, and in the event of a major spill; all leave a very heavy burden the location of the spill, with the most serious damage upon states and individuals to litigate for compensation of normally taking place in nearshore waters and enclosed damages; all leave the question of liability to the law of bays and estuaries. Some cleanup procedures taken to ordinary negligence, rather than to strict liability. The pro- counteract the effects of an oil spill may be more destructive posed alternative programs would variously remedy these than the spill itself, such as the use of detergents or tech- deficiencies. Enforceability of liability laws may be greatly niques that coagulate and sink oil to the ocean floor, facilitated by development of techniques for tracing spills to their sources. Existing Oil Liability Measures Are Inadequate. Although California has suffered several oil spills off its coast, primarily Several Toxic Substances Harm Marine Life. Chlorinated from tanker mishaps and deballasting of fouled water, and hydrocarbons (such as DDT) and polychlorinated biphenyls from an offshore oil platform blowout, existing liability pro- (PCB) as well as heavy metals (such as mercury, lead, grams are largely inadequate. silver, cadmium, copper, chromium, and zinc) find their way into the marine environment from a variety of sources, State. The State of California itself has no funding to including domestic and industrial effluents, rainwater runoff pay the costs of oil spill damages but instead relieson (containing pesticides and other substances from urban and the State Attorney General to file suit against the appro- agricultural areas), ship repair yards where anti-fouling priate contingency or compensation funds or against other paints are removed, and air pollution fallout. Some of these parties for cleanup costs and damages incurred by the substances accumulate in sediments, complicating dredge State. Other individuals damaged by oil spills must seek removal and disposal. Most of these substances, in excess their own relief. quantities, have been shown to have some adverseeffects � Federal. The Federal Water Pollution Control Act makes on marine organisms, and there is evidence that some, a tanker owner or operator liable for cleanup costs up such as DDT and PCB, may also ultimately effect humans to $14 million, and a terminal operator liable for upto because they may build up in concentration as theymove up the food chain. The most effective, economical, and $48 million. Liability is unlimited if there is willful negli- up the food chain. The most effective, economical, and gence or misconduct; but there is no liability if the dis- equitable means to control such substances is to contain or treat them at the source. charge was caused solely by an act of God, act of war, or treat them at the source. 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. Treasury, for use of the Coast Guard or EPA in cleaning up spills, Policies or for reimbursement 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 11. Prevent Release of Oil and Toxic Substances Licensing Act, passed in late 1974 to govern deepwater by Strict Regulation. The release in unnatural port development in Federal waters, creates a deepwater amounts of fuel and oil, many chemicals, heavy 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 environment shall be strictly regulated to minimize liable, without regard to fault, for discharges and damages adverse environmental effects. Specifically: 36 * PART II: FINDINGS AND POLICIES a. Site, Design, and Operate Petroleum Facilities to Prevent Adverse Impacts. Petroleum faci- lities (e.g., drilling or production platforms or 0 vessels, tanker terminals, refineries, oil separa- tion, treatment or storage facilities, and pipe- lines) shall be permitted where (1) accidental KEEP OUT spills will not haveasignificantadverseimpact WATEREP UT on environmentally sensitive or highly scenic O NATE areas, as identified in the Coastal Plan or by State Water Resources Control Board, the Regional Water Quality Control Boards, Depart- . ment of Fish and Game, Department of Parks I and Recreation, the State Lands Commission, _ Ad or other appropriate public agencies; (2) the best available technology and mitigation measures have been incorporated to prevent oil leaks and spills; (3) adequate plans, person- nel, and equipment exist from the project's inception to guarantee prompt reporting, abate- ment, containment, and cleanup of any dis- charge from such a facility or related operations; (4) the facility is consistent with Coastal Plan energy policies; and (5) there is no alternative location that would result in less environ- mental damage. P b. Research and Regulation Enforcement. The State Water Resources Control Board, the State Lands Commission, or other appropriate State agencies shall be adequately empowered and uagencies (g.shall be adequately empowered and Santa Barbara after February 1969 oil spill funded (1) to direct and coordinate research onge the effects of oil, heavy metals, and other con- Make Polluters Liablefor Damage. Polluters taminants on the marine environment, on new shall be liable to fines and for all damages from techniques for spill prevention, containment, oil (see following two policies) or other toxic and cleanup, and on methods of tagging or spills resulting from their operations, whether and cleanup, and on methods of tagging orstate "fingerprinting" oil to determinespill sources negligent or not. Bonds (or other adequate "fingerprinting" oil todeterminespillsources assurance of financial responsibility) shall be in conjunction with Federal programs; (2) to assurance of financial responsibility) shall be develop and enforce design, construction, required for potentially hazardous operations. develop and enforce design, cons truction, operation, maintenance and inspection require- 12. En act State Oil Spill Liability Measures. 12. Enact State Oil Spill Liability Measures. ments for facilities and vessels, and training standards for personnel handling oil and other Because there is as yet no Federal legislation pastandards for personing o andin ol ande quate to guarantee the immediate availability pollutants (e.g., subsea drilling and produc-eanup com- tionfueling, these researchand enforment a d cpensation of damages resulting from oil discharges, practices); (3) to work with private industry nd pensation of damages resulting from oil discharges, all concerned local, State, and Federal agencies maximum effectiveness of oil spill contingency in providing prompt and adequate discharge plans and maximum care and use of highest state- reporting procedures, response capability, and of-the-art technology in all petroleum operations, abatement, containment, and clean-up programs it is recommended that the Legislature enact under coordinated supervision; and (4) to develop and enforce regulations restricting the use, sale, and manufacture of highly toxic a. Establish California Oil Spill Liability Fund. substances (such as certain boat anti-fouling An oil spill liability fund, to be administered paints) and minimizing routine or accidental by the Secretary of the California Resources releases of other harmful substances. It is Agency, shall be established to provide for all recommended that the Legislature consider abatement, containment, and cleanup costs and funding these research and enforcement to compensate all damages caused by oil dis- programs out of the fund proposed in Policy 12 charges in any California or Federal navigable below. water or reaching the shoreline thereof, result- MARINE ENVIRONMENT � 37 ing from any drilling, production, processing, processing, or transportation of oil can prove or transport associated with development of that an oil discharge from its operations was the offshore or onshore petroleum resource or caused solely by an act of God, an act of war, with operation of any tanker or tanker terminal, negligence by the U.S. Government, or the without regard to the cause of the discharge, act or omission of a third party, the lessee, except that the fund shall not be liable for any owner or operator shall be liable to the liability discharge caused solely by an act of war. fund for all costs and damages resulting from Administrative and arbitration procedures shall such discharge and paid by the fund. Such be established to allow claimants showing proof liability shall not exceed $20 million for indivi- of damages within a specified time period to dual owners and operators of offshore equip- be compensated promptly without protracted ment, tankers, or other equipment or facilities and expensive litigation. The fund shall recover used in the production, processing or trans- any money spent for abatement, containment, portation of oil, and $100 million for individual and cleanup operations or for compensated terminal owners and operators, unless it can damages, from offshore and onshore owners be shown that such discharge resulted from and operators, tanker and tanker terminal the gross negligence or willful misconduct of owner and operators, or other parties, as the owner or operator, in which case liability described below in paragraph (d) of this policy, shall be for the full amount of all cleanup costs A part of the fund shall go annually toward and damages. further development of oil spill containment Shall Post Bonds. Prior to leasing, c. Drillers Shall Post Bonds. Prior to leasing, and cleanup technology, research and surveil- c rille lance programs for identifying the sources of oil each applicant for permission to drill on State spills, and operating expenses of State and tide and submerged lands shall be required to show the State Lands Commission evidence Federal oil spill disaster contingency plans o s ece anso sin evdn (see Policy 11 [bI, above). The liability fund of secured financial responsibility in the amount (see Policy 11[b], above). The liability fund shall be created and maintained by levy of a of $20 million for each individual lease. two-cent fee on each barrel of petroleum pro- d. Register Drillers and Tanker Owners and duced from a well on State lands, on each barrel Operators. All drilling applicants and all owners of petroleum produced from a well on Federal and operators of tankers operating in California lands that enters California for treatment, waters shall register with the California Secre- processing, or delivery, and on each barrel tary of State for service of process. of foreign-produced petroleum loaded or unloaded at California tanker terminals. The 13. Create Single National Oil Spill Liability Fund. liability fund shall have a standing limit of The California Legislature and the California Con- $100 million. Fees shall be levied only at times gressional delegation are urged to support Federal when the fund contains less than that amount, legislation creating a single national oil spill liability or when claims against the fund exceed fund, covering oil discharges from all sources $100 million. related to production, processing, or transportation b. Liability for Spill Costs. Except when an off- of oil, incorporating the measures proposed in shore lessee or operator, or the owner or Policy 12. In the event such Federal legislation operator of any tanker, tanker terminal, or is enacted, any unilateral California legislation equipment or facility used in the production, on this subject shall be repealed. RUNOFF ~~~~~~~~~~~Findings ~can damage marine resources, especially in estuarine areas, Findings because of sedimentation and increased turbidity. In addition to silt and toxic substances, surface runoff can carry excessive organic matter (e.g., from failing septic tanks, logging debris, Runoff Can Degrade Coastal Water Quality. Abnormal silt and agricultural operations) that further degrades marine loads (in runoff waters from construction, grading, removal waters. Siltation can also necessitate costly and environ- of vegetation, and other upland developments and activities) mentally damaging silt removal projects. 38 � PART II: FINDINGS AND POLICIES Policy cluding certain urban, industrial, agricultural, and boat and shipyard runoff) shall be treated or 14. Control Runoff That Degrades Coastal Waters. contained at the source, in accordance with Runoff shall not be permitted to degrade coastal areawide waste treatment management pro- waters, especially wetlands, estuaries, nearshore grams required to be developed by Section 208 reefs, tidlpools, kelp beds, and other sensitive of the 1972 amendments to the Federal Water areas. To this end: Pollution Control Act. First priority for such programs shall be given to areas where the a. Control Adverse Water Quality or Quantity impact of pollutants and contaminants on the Impacs ofRunof fro Devlopmets. eve-impact of pollutants and contaminants on the Impacts of Runoff from Developments. Deve- receiving waters is greatest. Storm water runoff lopments that could directly or cumulatively shall be monitored periodically for the presence aggravate runoff problems or create a significant of pollutants; harmful pollutant loads found of pollutants; harmful pollutant loads found adverse impact on coastal waters (because of shall be traced and controlled. such factors as induced erosion, harmful runoff c. Adopt Ordinances to Control Runoff, Erosion, materials, failing septic tanks, and animal and Silt. A runoff, erosion, and silt-cootrol wastes) shall be permitted only if adequate model ordinance shall be developed by the measures are taken to prevent degradation of coastal agency, the State Water Resources water quality or unnatural changes in the rate Control Board, the Division of Forestry, and of waterflow into coastal waters. of waterflow into coastal waters. other involved agencies, and shall be adopted b. Treat Polluted and Contaminated Runoff and enforced throughout coastal watersheds at Source. Runoff that contains substantial by all appropriate regulatory agencies. (See amounts of pollutants and contaminants (in- also Policies 21-23 on watershed management.) COASTAL WATERS, ESTUARIES, WETLANDS ~~~~~~~~~~~Findings ~of blue-green algae that fix atmospheric nitrogen so that it can be assimilated by other plants. The estuarine system is much more extensive than the areas subject to tidal influence. Coastal Waters Are Highly Productive. Nearshore coastal The area between the upper edge of the tidal zone and the waters (and especially estuaries and wetlands) are extremely surrounding upland vegetation communities and freshwater productive. Coastal estuaries are mouths of rivers, lagoons, marshes can be critical in maintaining the environmental and enclosed bays (all areas that are connected permanently, balance in estuaries and in providing habitat for shorebirds. periodically or occasionally to the sea and within which In addition, the amount, timing, and quality of fresh water seawater is occasionally or periodically diluted with fresh- entering an estuary is essential to the existence of plant water runoff from the land). Coastal wetlands, made up and wildlife habitats. of tidal marshes and mudflats and related freshwater marshes, are a vital part of the productive coastal water Many Fish, Bird, and Animal Habitats Are Found in Sheltered system. Coastal waters are generally rich in nutrients carried Coastal Waters. Many fish, water-fowl, shorebirds, wading from the land by the rivers and streams that also bring birds, and other animal species use the productive coastal fresh water to these areas. And the generally shallow depths estuaries and wetlands either directly for spawning, nesting, of estuaries and wetlands often allow sunlight to penetrate resting, or feeding or indirectly as a provider of essential to the bottom, permitting plant growth to take place. The food through the food chain. Many rare or endangered open water areas are also an important component of the species are entirely dependent on habitats found in California total coastal marine environment, although they may not be coastal waters. Because of the abundant wildlife present, as productive or fragile as shallow estuaries and wetlands. estuaries and wetlands are valuable educational, research, and scenic resources. Estuaries and Wetlands Are a Vital Link Between the Land and the Sea. Salt marshes are one of the most productive Certain Wetlands Have Been Identified as Most Productive. living systems known, ranking in productivity with intensively The California Department of Fish and Game and the U.S. cultivated rich tropical agriculture. Salt marsh plants transfer Bureau of Sport Fisheries and Wildlife, in their joint report phosphorus compounds from the mud into the water, of April 1974, entitled Acquisition Priorities for the Coastal increasing the amount of this nutrient available to the Wetlands of California, have identified 25 high priority wet- microscopic plants (phytoplankton) that are a basic element land areas for acquisition, based primarily on their fish and in the marine food chain. Tidal mudflats support the growth wildlife values and threats to their continued existence as a MARINE ENVIRONMENT * 39 Most Productive Coastal Wetlands natural resource. Nineteen of these are in the coastal zone. Of the 19, nine have been given top priority and have been studied and mapped in more detail: Elkhorn Slough, Morro Bay, Carpinteria Marsh, Upper Newport Bay, Batiquitos Lagoon, San Elijo Lagoon, Los Penasquitos Lagoon, South San Diego Bay, and Tijuana River. Study continues on the other 10 priority coastal zone wetlands: Lake Earl, Ten Mile _ DEL NORTE \ River, Big River, Bodega Bay, Estero Americano, Estero de - EL NORTE \ San Antonio, Pescadero Marsh, Santa Maria River, Agua Hedionda Lagoon, and San Dieguito Lagoon. Estuaries and Wetlands Are Very Vulnerable to Abuse. >i ,"HUMBOLDT /' Coastal estuaries and wetlands 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 2 /' provide new land for development, used as sumps for j3 'MENDOCINO 1. Lake Earl domestic sewage and industrial waste, and deprived of fresh- '3 . ENDOC-/ 2. Ten Mile River water inflow by water diversions. Of the original 197,000 acres 3. Big River of marshes, mudflats, bays, lagoons, sloughs, and estuaries 4. BodegaBay in California (excluding San Francisco Bay), the natural 5. EsteroAmericano productivity and open space values of 102,000 acres (52 per 6. Estero de San Antonio cent) have been destroyed by dredging or filling. Of California's ISONOMA 7. Pescadero Marsh remaining estuaries and wetlands, 62 per cent have been 8. Elkhorn Slough subjected to severe damage and 19 percent have received 65\. 9. Morro Bay moderate damage. In southern California, 75 percent of the 10. Santa MariaRiver coastal estuaries and wetlands have been destroyed or ~.Sj.ARIN 11. Carpinteria Marsh severely altered by man since 1900. Two-thirds of 28 sizable SAN FRANCISCO 12. Upper Newport Bay estuaries existing in southern California at the turn of the 13. AguaHediondaLagoon century have been dredged or filled. 14. Batiquitos Lagoon (SAN MATEO 15. San Elijo Lagoon Dredging and Mining Can Have Adverse Environmental 16. San Dieguito Lagoon Effects. Dredging and mining can affect marine resources \ SANTA CRUZ 17. Los Penasquitos Lagoon in several ways. Dredging tidal mudflats and salt marshes 18. South San Diego Bay can completely destroy these most productive parts of the 19. Tijuana River estuarine system. Newly dredged channels can change water Identified in Acquisition Priorities for circulation patterns in estuaries and can introduce new 'MONTEREY the Coastal Wetlands of California conditions that certain species cannot tolerate. Dredging (1974) by the California Department and mining operations stir bottom mud, which can cause of Fish and Game and the U.S. Bureau turbidity that limits photosynthesis in a small area and can of Sport Fisheries and Wildlife. X r 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. Finally, disposal of the dredged materials ("spoils") can smother benthic I SAN LUIS OBISPO (bottom-dwelling) organisms. :10> . Some Beneficial Effects Are Possible. Dredging and spoils disposal can also be environmentally beneficial. Valuable '\SJANTA BARBARA marine environments may be able to be restored by dredging ' VENTUABARBARA diked former wetlands to return them to tidal action, or by -/ VENTURA deepening lagoons that are drying up. The substrate for M 11 i,-. ~. 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. //LOS ANGELES )ORANGE ~ 12', -> NGE Policies '\"SAN DIEGO 14 15. Give Special Protection to Estuaries and 15 Wetlands. All remaining coastal estuaries and 176 ,/ wetlands and buffer areas necessary to protect 197.._. 18 their water areas, vegetation, waterfowl, fish, and 19 - -- . _ other wildlife values shall be preserved, enhanced, and where possible, restored. To this end: 40 � PART II: FINDINGS AND POLICIES a. Restrict New Development in Wetlands. New of south San Diego Bay. Development in other development, including diking, filling, and wetlands shall be limited to the following: dredging, in existing or restorable wetlands (1) military facilities essential to the national shall be permitted only if (1) the existing func- defense; (2) expansion of existing commercial tional capacity of the wetland is maintained or fishing harbors, ports, or airports; (3) the mini- enhanced (i.e., some alteration but no net mum necessary entrance channel to a marina reduction in the quantity and quality of species); or other boating facility excavated from dry (2) replacement areas are provided for dredged, land; (4) those portions of coastal dependent filled, or diked areas (pursuant to Policy 17); energy facilities that cannot be located on (3) there is no less environmentally damaging dry land or in open water areas; (5) very alternative; and (4) the development conforms minor incidental public service facilities such with an adopted comprehensive estuarine as buried cable or pipelines; (6) restorative management plan (see paragraph [c] below) measures pursuant to paragraph (b) below; and isotherwiseconsistentwiththeapplicable and (7) nature study, aquaculture, or similar Coastal Plan policies. Any alteration of the resource-dependent activity. State's 19 most productive coastal wetlands as identified and mapped in the report of April b. Restore Degraded Wetlands. Degraded marsh 1974 by the U.S. Bureau of Sport Fisheries areas and diked but unfilled former wetlands and Wildlife and the California Department capable of restoration shall be restored for of Fish and Game entitled Acquisition Priorities natural resource values and biological producti- for the Coastal Wetlands of California (see vity, and new marsh areas shall be created finding above) shall be limited to the following: except where they would significantly reduce very minor incidental public service facilities open water areas or adversely affect water (e.g., burying cable or pipelines), restorative circulation. A restoration priority list and sche- measures, nature study, possible commercial dule shall be developed cooperatively by the fishing facilities in Bodega Bay, and possibly coastal agency, the Department of Fish and other development in already-developed parts Game, the State Lands Commission, and appro- Elkhorn Slough, north of Jetty Point Road .......... jtt-0 MARINE ENVIRONMENT 0 41 priate regional and local agencies specifying water quality, habitat areas, and quantitative which sites shall be restored first to enhance and qualitative biological inventories in the coastal resource values, including fisheries area of the individual port, together with plans production or the maintenance of rare and for enhancement or restoration of the marine endangered species, and considering main- environment and habitat. Any significant tenance of prime agricultural lands created expansion of existing port or industrial areas from former wetlands. No new development into a wetland or estuarine area, however, in restorable wetlands shall be permitted in- shall be allowed only upon completion and consistent with this policy. Restorable wetlands implementation of a management plan for for the purposes of this policy shall include all the surrounding estuarine or wetland area. degraded marshes or diked but unfilled former 16. Protect Other Coastal Waters by Limiting wetlands except that the coastal agency may Dredging, Diking, and Filling. The water areas exclude those that it determines, based on and biological productivity of coastal waters other appropriate scientific study and Department than wetlands shall also be protected from of Fish and Game concurrence, are not capable unnecessary encroachment. To this end: of restoration and do not possess a significant wildlife value (e.g., existing or potential habitat a. Criteria for Diking or Filling. Diking or filling of rare and endangered species or for species of coastal waters (other than for shoreline struc- of sport, commercial, or special scientific interest, or functional contribution to the Pacific Flyway). c. Prepare and Implement Comprehensive Estuarine Plans. Before any significant change in the functional capacity of a wetland or estuarine area is permitted, an overallI manage- ment plan shall be prepared by the public agencies and private interests involved for review and approval by the coastal agency. The plan shallI be based on the study of each estuary or wetland and its surrounding and tributary areas, encompassing an area defined by the surrounding physical and environmental characteristics rather than by existing political jurisdictions. The plan shall (1) place first ________ priority on natural resource protection and restoration, research and educational oppor- tunities, and recreational and aesthetic values; (2) assess public health issues, aquaculture potential, possible alternative sources of fresh water, whether the area is burdened with a tures as defined in Policy 19) shall be permitted public trust, and the impact of any proposed only where necessary and 'in accordance with facilities that can be provided in accordance applicable Coastal Plan policies and where there with other Coastal Plan policies; (3) specify the is no less environmentally damaging alternative management programs necessary to protect,' for: (1) port or airport expansion, national enhance, and restore the wetland and estuarine defense, or coastal-dependent facilities; or resources, including controls on development (2) specifically approved restoration projects in adjoining upland areas; and (4) specify the (e.g., diking to create freshwater habitats or responsible agencies and funding sources to reduce sedimentation). carry out the management programs. For b. Criteria for Dredging. Dredging of coastal intensification of use in areas now committed waters shall be permitted in accordance with to industrial or port use, a port master plan other applicable Coastal Plan policies and where for that portion of the estuary, when certified there is no less environmentally damaging by the coastal agency as consistent with the alternative for: (1) new or expanded port, Coastal Plan, may be substituted for the other- energy, or national defense facilities; (2) main- wise required management plan. Such a port taining existing or restoring previously dredged S ~~master plan shall include a review of existing depths in existing navigational channels, 42 * PART II: FINDINGS AND POLICIES turning basins, vessel berthing and mooring and the restoration activity begun before the dike areas, and boat launching ramps; (3) entrance or fill project may proceed. (See also Policyl153 channels or minor deepening of natural harbor regarding provision of replacement areas.) areas for new or expanded recreational boating facilities; (4) new or expanded commercial fishing harbors; (5) incidental public service 18. Regulate Permitted Dredging. Permitted purposes such as burying cables and pipes, dredging shall be planned, scheduled and carried inspection of piers, etc.; (6) mineral extraction, out to avoid disruption to fish and bird breeding including sand for restoring beaches, except in and migrations, marine habitats, and water biologically sensitive areas; and (7) restoration circulation. purposes (e.g., to restore water circulation) a. Analysis Before Dredging. Bottom sediments provided that the results are carefully monitored or sediment elutriate (basically materials that and evaluated for restorative value. The need can go into solution when sediment is disturbed) for dredging shall be minimized by careful shall be analyzed for toxicants prior to dredging design and location of facilIities with respect to or mining, and dredge spoils disposal regulated existing water depths and water circulation and in accordance with the most recent approved siltation patterns and by efforts to reduce con- dredging criteria promulgated by the Regional trollable sedimentation. Where bottom materials Water Quality Control Boards or the Environ- are highly contaminated, dredging or mining mental Protection Agency, whichever would shall be avoided. most effectively achieve the objectives of this policy. 17. Require Replacement Areas for Diked or Filled b. Disposal of Dredged Sediments. Specific Areas. Where landfill or diking of any coastal disposal policies may be modified based on water or dredging of a wetland is permitted, except results of on-going research in coordination in accordance with an approved estuary or wetland with the State Water Resources Control Board, restoration program pursuant to Policy 15(b), the Environmental Protection Agency, and equivalent compensation areas of equal or greater other involved agencies. Otherwise, the biological productivity shall be created near the floigsalapy site (for example, by restoring degraded wetland D redgespoil suiableo bachrplenshen areas) to replace the diked, filled, or dredged *Deg pissial o ec elnsmn areas. If no appropriate restoration site is available shall be transported for this purpose to appro- to the applicant, an in-lieu fee suff icient to provide priate beaches or into suitable Iongshore an area of equivalent productive value shall be current systems. dedicated to an appropriate public agency, a *Dredged sediments meeting criteria specified replacement site purchased by the public agency, by the Regional Water Quality Control Boards Cycle of Exchange of Nutrients Between Marsh and Sea NUTRIENTDEA SEA WATEREXHNS PLANT PLANKTON ANIMAL PLANKTON SEA ANIMALS 4 U MARINE ENVIRONMENT * 43 and the Environmental Protection Agency � Dredged material exceeding approved water for freshwater, estuarine, or marine disposal quality criteria must be placed either on dry may be deposited at open-water sites desig- land in a manner that prevents pollution of nated to minimize potential adverse impacts marine, underground, or surface water or, on marine organisms or in fill sites specifically if land disposal is infeasible or environmen- authorized by the coastal agency. Dredge tally unacceptable, at designated deep ocean material shall not be transported from coastal sites (depths greater than 100 fathoms). waters into estuarine or freshwater areas for * Ocean dumping of other materials shall be water disposal. subject to Region IX EPA authorization. SAND MOVEMENT AND SHORELINE STRUCTURES Findings supplies on beaches, but many of these efforts involve environmental problems and require repeated work. Main- tenance of beach sands is attempted by either increasing Ocean Beaches Depend on Sand. Ocean beachesareoneof the supply of sand to a depleting beach or by decreasing the most highly valued recreational features of the California the movement of sand off the beach. Several methods for coastal environment. But 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 Sand Movement Along the Coast that removed from it, either by nature or by man's action. 1 2 (See the Coastal Land Environment section on coastal streams regarding the supply of sand from inland sources). 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, when put 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 move- ment along the shore occurs within relatively distinct sections of the coast, sometimes called "littoral cells." These extend from the point where the sand supply is introduced to the 3 4 shoreline, mostly by streams, downdrift to the place where it is swept out to sea, often irretrievably into offshore canyons. There sometimes are small indentations in the coast partly isolated from the sand movement system of the littoral 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. Human Activity Increases Beach Sand Losses. Human activity has not only reduced the supply of sand; it has also increased the rate of loss, or changed the distribution, through improper 0[ Sand moving U Sand being deposited design and placement of groins, jetties, breakwaters, and 1. Sand being introduced into littoral cell system by coastal stream. dredged channel entrances in shoreline waters. Another 2. Rocky headlands shelter pocket beach, supplied with sand by onshore currents problem can be loss of sand dunes to wind action due to and cliff erosion. their disruption by vehicles, removal of vegetation, or their disruption by vehicles, removal of vegetation, or 3. Marine structure interrupting sand movement, causing buildup on one side, excessive foot traffic. sand loss downdrift. 4. End of littoral cell as sand is swept into submarine canyon, beginning of new Measures to Restore Beaches Involve Environmental cell as another stream moves sand into the coastal waters. Problems. Several measures attempt to maintain sand 44 � PART II: FINDINGS AND POLICIES Crescent City breakwater constructed of tetrapods increasing sand supply are: study shoreline erosion. The current study program is almost * Mining offshore sand sources; complete in southern California and is continuing in northern * Placing harbor dredge material on nearby beaches or into areas These research programs only indicate broad erosion longshore currents; and problems, however, and accurate understanding of erosion processes requires analysis of specific sites before protective * Transporting material from inland sand sources to depleted structures are designed or constructed. Additionally, the beaches, including material accumulated behind inland Corps of Engineers' Coastal Research Center provides for dams. public distribution of pertinent reports on coastal engineering Methods for decreasing sand loss from beaches may include: and coastal processes. * Structures to reduce the longshore movement of sand, Shoreline Structures Also Affect Marine Life, Access, and such as groins and detached breakwaters; Views. In addition to their effect on shoreline sand movement, * Devices to reduce wave action, such as submerged reefs marine structures (such as dikes, piers, and jetties) can or detached breakwaters; impair productive habitat areas by interfering with water * Sand bypassing systems to pass the sand by a harbor circulation, although properly designed structures may entrance that has altered the natural longshore movement provide positive benefits as havens for small fish and as Tof ns ting and r onestingtes a nd roosting sites. Marine andshorelinestructures can also impair access to and along the shore and degrade Recycling systems that collect sand at down-coast sinks and the visual qualities of the coast. transport it to the up-coast end of the littoral cell. To be effective, measures for controlling sand supplyand loss must consider impacts on the total littoral system. Beach Sand Losses Are a Costly Problem. The necessary Policies combination of measures to maintain beach sands can be extremely expensive, costing over $1 million for a singlerrrrrr beach restoration project at Doheny State Beach, Orange County, for example, and often involving high annual costs Shoreline Structures. Revetments, breakwaters, for on-going sand replenishment. Damage due to beach groins, harbor channels, seawalls, cliff retaining erosion in California was approximately $10 million in 1965. walls, and other such construction that alters The Water Resources Council projects the annual loss to be natural shoreline processes shall be permitted $15.7 million in 1980 and $29.7 million by 2000, unless large-scale preventive measures are taken. The principal only when designed to eliminate or mitigate means to prevent continued property damage and public adverse impacts on shoreline sand systems and cost should be to control developments in erosion hazard when required (1) to maintain public recreation areas and to protect and restore natural sand supply systems areas or to serve necessary public service, com- to the maximum extent possible. But positivesand supply mercial fishing, energy, or transportation facilities management measures will also be needed. (including ports) where there is no less environ- Shoreline Erosion Is Being Studied. The U.S. Army Corps mentally harmful alternative, or (2) to protect of Engineers and the California Department of Navigation principal str uctures of existruct iing developments that and Ocean Development operate a cooperative program to are in danger from present erosion where the MARINE ENVIRONMENT 0 45 coastal agency determines that the public interest 20. Initiate Positive Programs to Restore Sand would be better served by protecting the existing Supply. Because of the extensive alteration of O ~~structures than in protecting natural shoreline sand supply from past human activities and processes. In addition: because of the importance of beaches for pre- a. Mitigate Impairment of Sand Supply or venting erosion damage and for public recreation, Transport. Permitted shoreline works shall positive programs for managing and restoring incorporate mitigation measures to minimize sand supply shall be given high priority and and compensate for any impairment of local appropriate measures (such as recycling sand sand supply or adverse effects on the longshore from downcoast sinks to upcoast beaches, re- transport of sand. Incremental construction moving sediment buildup behind upstream dams, shall be required, where possible, to allow on- sand bypassing techniques, or possibly innovative going evaluation and appropriate modifications. new techniques such as modifying the height, The project owner shall be responsible for con- steepness, and direction of wave approach) shall tinued sand transport, where such transport be undertaken to provide continued beach sand is required. replenishment. To this end, a comprehensive b. D signof Sructres.Shorlinework andprogram to conduct and evaluate studies of sand othe marigne ofstructures. shaloresigned tork n supply and movement and to recommend and o1 ether mainimumtructuesshary for thesigne puros undertake management and restoration measures (1)abeith mintoimcunt thegeology ofo thei purpoea shall be developed cooperatively by all agencies sothatkroiong isnoto acceleatdnt the gedlgyftesae involved, with the active participation of the coastal sof suhasrutue ) 2 berosio visual unobtaclratdatte-de agency. An appropriate lead agency shallI be desig- siv asuc posibltues) (se e also Coastall Appearau- nated by the Legislature, and technical resources andvDesig policibes) (3see clomCoastble withrnc of agencies such as the U.S. Geological Survey, maximu possible shorlinacces), and use cmailwth Army Corps of Engineers, State Department of (egasximumdwrda possible shorelie acesanuse Water Resources, Department of Navigation and of(eagwals) fa andwr as) protectble enthane marie Ocean Development, Division of Mines and lifseaas) condi() rtector ns.cmrn Geology, State Lands Commission, California life conditions. ~~~~Department of Parks and Recreation, universities, c. Phase Out Existing Harmful Structures. colleges, local and regional agencies, private Existing marine structures that are found by entities wishing to participate, and marine labo- the coastal agency or other State or regional ratories shall be utilized in carrying out this agencies to cause water stagnation contributing program. The coastal agency shall review and to pollution problems and fish kills shall be report progress annually to the Governor and phased out or upgraded. the Legislature. COASTAL LAND ENVIRONMENT Findings � Streams that collect from entire watersheds to drain into coastal waters; Natural areas, including the vital shoreline habitats that Coastal Land Environment Is a Dynamic System. The coastal are the link between life in the sea and life on land and land environment is a combination of the soils, air, plants, that harbor many rare species; animals, minerals and water courses as they are affected � Coastal agriculture and forestry that are enhanced by by or themselves affect the ocean - from the pounding rich soils and the maritime climate; surf line to the quiet inland valleys where the coastal fog Coastal mineral resources, primarily sand and gravel; and influences plant species and growth. The land environment is a dynamic, interrelated system composed of: � The coastal airshed that is directly influenced by the ocean. COASTAL STREAMS AND WATERSHED MANAGEMENT Findings part in freshwater streams. These fish are an important State recreational resource and, in the case of salmon, a commercial resource as well, but their abundance has declined by at Coastal Streams Are Vital to the Natural System of the Coast. least 50 per cent over the past 30 years, primarily because Coastal streams directly affect the coastal environment: of human activities. The upstream spawning and nursery � They are vital to anadromous fish that live in both salt areas have been the most severely damaged habitat areas. and fresh water; � They collect and transport sand from the watershed to Human Activities Damage Stream Habitat. The upstream supply coastal beaches; habitat has been damaged by many activities: � They are valuable to the aesthetic and recreational enjoy- � Darns that provide no adequate fish bypass facilities and ment of coastal waterways; and that flood large spawning and rearing areas; � They are interrelated with the estuarine systems that Water diversions and stream channelization; in turn are essential to the productivity of the marine environment. environment. � Sand and gravel mining from streambeds; Coastal streams also significantly influence flooding, natural *Grading or logging operations that induce habitat- ecosystems, agricultural water supply, and groundwater smothering erosion and siltation along streambanks, recharge within the coastal land environment. Watershed even from remote sites in the watersheds; areas are thus an ideal focus for developing management � Land fills for various purposes; techniques to maximize utilization and preservation ofIncreases in water temperature caused by removal of � Increases in water temperature caused by removal of natural resources of the coastal zone. shade vegetation; and Streams Are Essential Habitat for Anadromous Fish. Salmon * Discharges of toxic, thermal, or organic pollutants into and steelhead trout spend part of their lives in the sea and habitat streams. COASTAL LAND ENVIRONMENT � 47 Present Regulations Are Inadequate. The State Department necessitating costly and continuous sand importation of Fish and Game, Regional Water Quality Control Boards, measures. (Conversely, in some cases downstream channel- and Division of Forestry all have some regulatory powers ization in the alluvial plain may assist sand transport through dealing with stream habitat, but there is no agency with the plain to the beaches.) authority over new projects affecting habitat areas, and funding of existing programs is inadequate to enforce present Ground Water and Surface Water Are Interrelated. Ground habitat protection measures. The Department of Fish and water and surface water are naturally interrelated. Surface Game notes that existing authority and funding is inadequate waters recharge groundwater supplies and ground water to provide full protection to spawning areas. often feeds springs, streams, and riparian habitat. Over- exploitation of surface water will prevent adequate recharge Beach Sand Is Generated and Transported by Coastal Stream of aquifers, especially where stream flow is important in Flooding. Though beach sand may come from cliff erosion, recharge. Overuse of ground water can affect surface supplies landslides, dunes, or onshore transport, most of California's by drying up streams and springs fed by the ground water beach sands are delivered by coastal streams. The principal and can adversely affect the groundwater supply by drawing mechanism by which the sands are collected and transported in salt water. This can often have a damaging effect on the is flooding. The amount of sediment contributed by each native habitats that depend on this water supply. At present, stream depends on such factors as the area of the watershed, there is no effective coordinated environmental management erodability of the watershed formation, runoff, land use, of groundwater and surface water resources. and stream slope. A number of studies have been done in the transport of beach sands from major rivers. For instance, Ground Water Supplies Are Recharged from Many Sources. in the past two years the U.S. Geological Survey has com- Groundwater supplies are recharged by precipitation, seepage pleted studies on the Eel, Mad, and Russian Rivers and from rivers and streams, absorption and storage of rainfall by Redwood Creek. soils, and in some cases from underflow from adjacent areas. The rate of recharge is dependent on the type of soil, density Human Activities Reduce Stream Flooding and Thus Affect of vegetation, intensity of rainfall and terrain, buildings, Beach Sand Supply. Dams, settling basins, all flood control coverage with impermeable surfaces, and compaction of soil. works, watershed erosion control, certain farming practices, The recharge area of an aquifer (water supply) can be urbanization, control of natural runoff on range and forest reduced by development that decreases the rate and area land, etc., reduce the natural flood flows of coastal streams of permeability for recharge, by compaction of soil, and by and so eliminate or impair the continued generation and channelization of rivers and other flood control projects. delivery of beach sands. Where the normal process of sand The underground geology of an area must be well known supply has been seriously impaired, severe depletion of in order to have a clear understanding of the recharge and beach sands and accelerated beach erosion has resulted, movement of ground water. Sonoma County 0, !i�~~~~~~~ 48 * PART II: FINDINGS AND POLICIES Groundwater Hydrology and Saltwater Intrusion Well Sea Water Overdraft of Aquilers Has Adverse Effects. If an aquifer into coastal waters. In many areas the use of reclaimed is overdrafted, in addition to the adverse effects on surface water is preferable to importation because agricultural water waters noted above, the geologic structure of the aquifer costs (at lower than drinking water standards) may be itself (especially in thick clay formations) may be changed. stabilized or even lowered (in contrast with the often higher The aquifer may lose its future water storage and structural cost of imported fresh water), because water importation capacity through subsidence or compaction. Subsidence, may entail high energy costs and because water importation an actual sinking of the ground surface, can also cause may in some instances induce development in coastal resource damage to roads, buildings, and other structures. areas. On the other hand, in some coastal areas the initial quality of the water may be so poor as to preclude its recla- Overdrafts Also Threaten Water Quality. As a result of mation for beneficial uses. continuing overdraft of groundwater supplies and the reduc- tion of freshwater recharge, salt water has intruded into Water Injections May Be Able to Correct Saltwater Intrusion. underground freshwater reservoirs. Natural causes, such Saltwater intrusion can usually be alleviated, either by as long periods of low rainfall, may also contribute to saltwater reducing overdrafts that lower the water table or by creating intrusion, but are relatively insignificant compared to man- a freshwater barrier (by injecting water into wells located induced causes. Saltwater intrusion contaminates the water along the coast to raise the water level above sea level). supply and can harm soil quality for agricultural use by Freshwater injections can also replenish underground increasing the level of various salts with continued irrigation. reservoirs for continued use from inland wells, but they The quality of the water can also be damaged by septic tank may be expensive and require consideration of complex effluent, buildup of nitrates and pesticides from irrigation hydrologic conditions. water, and other pollutants. Water Conservation Reduces the Problems Associated with Effective Groundwater Management Is Needed. Because Increasing Water Supply.The adverse economic and environ- of these potential development impacts, it is crucial in effective mental effects of overuse of water supplies can all be reduced water resources management to prepare and use accurate by lowering the rate of growth in demand for water use. maps showing the geology of the groundwater basins and Much water use is inefficient or unnecessary, such as over- their recharge areas. The impact of development, both in watering of agricultural and landscaping areas, planting terms of the amount of groundwater to be drafted and the non-native vegetation that requires more water, and useof effect on groundwater recharge should be assessed in terms inefficient plumbing fixtures. of this geologic information. Alternatives to Groundwater Drafting Should Be Developed. To offset the continued depletion of water supplies (both surface and ground water), alternative sources will be needed. Policies Importation of water and use of reclaimed water are the main sources. Reclamation of waste water can help conserve limited water supplies, thus avoiding the potential adverse 21. Basic Policy: Establish Comprehensive Water- effects of overdrafts, including the problems of subsidence shed Management. Within coastal watersheds and saltwater instrusion. It can reduce California's depen- dence on costly and environmentally disruptive interbasin as mapped in Part IV, the planning and manage- water transfers. Reclamation of waste water can also eliminate ment of land use, and the development of projects W the adverse effects of disposing of partially treated waters having the potential for adverse impact on coastal COASTAL LAND ENVIRONMENT * 49 resources, shall be on a comprehensive water- coastal watershed; consider statewide interbasin shed basis, to avoid damage to coastal streams, interests (e.g., true costs of water importation); . estuaries, and wetlands. To this end: (1) water- and otherwise assure that allowable develop- shed management plans shall be prepared under ment conforms to the Coastal Plan. The plans the direction of a lead agency (as designated by shall stress the protection of coastal ground- the Legislature) with the full participation of the water resources, streams, wetlands, and estua- coastal agency, and shall be completed within ries, and shall prevent significant adverse four years of the effective date of legislation imple- impacts on these resources with particular menting the Coastal Plan, as set forth in Policy 22; attention to the following: (2) land uses and water supply programs shallI be * Loss of natural riparian vegetation that has compatible with watershed protection, as set forth significant value for erosion control, flood in Policy 23; and (3) major projects located in or restraint, wildlife habitat, or recreational adjacent to streams or wetlands (e.g., water diver- amenities; sions, flood control projects, and other such works) e gatinoaadmusfhryeorc; that could have significant impacts on coastal *Dgaaino ndoosfseyrsucs resources shall be reviewed and regulated to * Loss of water-oriented recreational oppor- prevent significant adverse impacts, as set forth tunities on coastal streams; in Policy 24. * Loss of or reduction of coastal sand supply where needed for protection against shore- line erosion, for maintenance of beaches, 22. Prepare and Implement Comprehensive or for industrial sand supply; Watershed Management Plans. Comprehensive * Adverse alteration of saltwater-freshwater watershed management plans shall be undertaken balance in coastal wetlands; to provide long-term assurances that coastal land uses and development will not adversely impact * Sedimentation impacts on coastal streams coastal groundwater resources, streams, wetlands, and wetlands; and estuaries. * Reduction of existing agricultural production * a. Procedure for Preparation and Implementation and processes; of the Plans. A lead agency at the State level a Degradation of groundwater resources; designated by the Legislature (e.g., the Re- a Reduction of needed surface recharge areas sources Agency, Department of Conservation, as a result of development and accompanying or Water Resources Control Board) shall co-inraeinmpvousrfc; ordinate watershed planning and work closelyinraeinmpvousrfc; with affected local governments, other State * Saltwater intrusion, which has adverse agencies, and Federal agencies. The coastal impacts on agriculture, wildlife, or other agency shall participate in an advisory role in resou rces; the overall watershed planning program anc4 * Land subsidence resulting from the lowering shall review and comment on that portion of of the water table; and watershed plans beyond th e co astal resource * Irreversible commitment of recoverable management area. That portion of watershed mineral deposits, including sand and gravel. plans within the coastal resource management area shall be submitted to the coastal agency for certification as to consistency with the 23. Relate Development and Water Supply Deci- Coastal Plan and for incorporation into local sions to Coastal Watershed Management Plans. coastal plans. (To the extent that a program Because water supply programs may significantly under Sections 201, 208, or 303[e] of the Federal decrease the surface flow of key coastal streams Water Pollution Control Act fully addresses the and deplete groundwater supplies, and because concerns enumerated in these policies, such they may also require costly, often environmentally programs may be submitted as the management damaging interbasin water transfers, reservoirs, programs for coastal watersheds.) diversion structures, and water supply plans shall b. Content and Goals of the Plans. The watershed be consistent with approved coastal watershed management plans shall relate upland and management plans. Because the amount and loca- shoreline land use management to the pro- tion of development heavily influences water tection and restoration of the marine environ- supply plans and programs, levels of development ment; use consistent assumptions, standards, shall be correlated with water supply programs (01 ~and criteria for determining appropriate future that are consistent with approved watershed population levels and land uses within each management plans. 50 � PART II: FINDINGS AND POLICIES a. Conform Water Supply Plans to Watershed mation, and to assist in local programs. Cities Plans. To avoid the potential adverse impacts and counties shall incorporate water conser- of water supply projects on coastal resources, vation measures in both their planning and agencies that provide water service (for muni- building code programs. It is recommended cipal, industrial, or agricultural use) shall that the Legislature require the conservation develop water supply plans directed toward element of local general plans to include specific implementing approved watershed manage- provisions addressing water conservation. ment plans and based on a thorough inventory Appropriate alternatives for recycling and of surface and subsurface supplies, coordinated conserving water shall be implemented, inclu- wastewater management, and conservation ding the reclamation of wastewater, especially of water. for non-domestic uses, restructuring of user b. Development Shall Not Adversely Affect Local charges to discourage unnecessarily high con- Water Resources. Based on the local inventory sumption, monitoring of private wells, and of surface and subsurface water supply, new public education. development may utilize local water supplies unless the responsible water supply agencyor 24. Review Major Projects Affecting Coastal the coastal agency finds that the potential exists Streams. Because of their potentially severe im- for substantial adverse impacts on coastal zone pacts on coastal streams, wetlands, and estuaries, resources (e.g., degradation of anadromous structures such as permanent dams, flood control fish runs, saltwater intrusion into groundwater and water diversion projects, or stream channel- supplies, reduction of groundwater recharge). izations, and major activities such as mining, The impact of development shall be evaluated removal of riparian vegetation, road construction, to avoid depletion of underground water logging, grading, or discharge of toxic, thermal supplies and to assure protection of surface or organic pollutants in or near (within 100 feet) drainage necessary for water supply replenish- of coastal streams or wetlands shall be regulated ment or habitats. Before development that could to avoid or mitigate significant adverse impacts adversely affect water supplies is allowed, im- as listed in Policy 22. pervious surface limitations, floodplain zoning, and other development standards designed to a. Project Review Procedures. The coastal agency protect groundwater and surface drainage areas shall review and comment on projects outside shall be established at the local or regional level the coastal resource management area that as part of the implementation of approved would adversely affect coastal resources, and watershed management plans (see Policy 22). through the Environmental Impact Report re- view process, recommend appropriate mitiga- c. Avoid Need for Future Water Importation. tion measures. Within the coastal resource man- Because water importation may entail high agement area this policy shall be implemented energy demands, and may in some instances through certification (with appeals allowed) of encourage inappropriate development in coastal watershed management plans as part of local resource areas, decisions concerning develop- implementation programs as specified in Part I I I. ment in the coastal area shall be in accord with To prevent adverse impacts prior to implemen- water management plans and programs that tation of a watershed management plan, an minimize the need for interbasin transfers and agency designated by the Legislature shall have that consider total water basin impacts. Deve- interim permit authority in the watershed out- lopment that individually or cumulatively has side the coastal resource management area over the potential for inducing the future importation all major projects involving stream diversion or of water shall be permitted only if local, re- permanent structures either in or adjacent to gional, or State water plans that have been streams or wetlands (within 100 feet) to protect determined to be consistent with the Coastal coastal resources; within the coastal resource Plan provide for such importation. management area the coastal agency shall have d. Water Management Shall Stress Conservation, interim permit authority. Upon implementation The Department of Water Resources shall be of approved watershed plans, the coastal agen- adequately empowered, and receive additional cy's permit authority over specific projects shall funding if needed, to gather and disseminate be limited to requiring mitigation measures that information on water supply and use, to re- would enable the project to conform to the search and implement regional and statewide Coastal Plan; projects conforming to the ap- programs for water conservation and recla- proved watershed plan shall not be denied. COASTAL LAND ENVIRONMENT * 51 Coastal Rivers and Watersheds b. Criteria for Projects That Would Alter Natural Streams. Channelizations, dams, or other alter- ations of rivers and streams shall be permitted OREGON only for (1) necessary water supply projects or (2) flood control projects where no other method for protecting existing structures in the flood- DEL NORTE - plain is feasible and such protection is necessary for public safety or to protect existing develop- 1A} d lA ment. Permitted flood control projects shall be Sd of the minimum size necessary to protect exist- e HUMBOL atersheds ing development. In the case of water supply, W Klamatersheds / projects shall be of a size consistent with the A. theKLosth River-B asin lexcludrg- long-term protection of surface water and ) Lstphic Unit) groundwater resources and with the mainte-- 1I;g } 1B. North Coastal Basin nance of optimal habitat functions of streams, /ENDOCINO 2. San Francisco Bay Basin (excluding wetlands, and estuaries. all land areas draining directly into the Bay) C. Approved Projects Must Mitigate Damage. 3. Central Coastal Basin Any agency having permit authority over h~- ~.'[ 4A. Santa Clara River Basin stream-blocking structures shall require that 4B. Los Angeles River Basin such structures incorporate the best available 8. Santa Ana River Basin SONOMA 9. San Diego Basin mitigation measures, including (1) provision ot 'EC anadromous fish runs or fish ladders, (2) main- Coastal Rivers a. Smith River tenance of sand transport capability within the MARIN b. Klamath River streams or alternative supply or other replace- c Mad River . SAN FRANCISCO d EelRiver ment for the loss of needed beach sand, and e. Mattole River (3) replacement of any fish, wildlife, or valuable f. Noyo River plant habitat adversely affected by the project AN MATEO g. Garcia River h. Gualala River to a substantial degree (such as by increasing NTA CRUZ i. Russian River hatcheries' capacity or restoring degraded j. San Lorenzo River k. Pajaro River areas). Costs of such mitigation measures m. Salinas River shall be included in the operating budgets of n. Little Sur River the projects. m nllEY ~M o. Big Sur River p. Arroyo de la Cruz d. Provide Interim Protection of Sand Supply. q. Ventura River Where information is lacking or incomplete to Note: Coastal rivers are shown for il- lustrative purposesonly; coastal water- document sand supply from inland sources or sheds are those State Water Resources the effect of coastal mining, an appropriately Control Board Basin Planning Areas included in the Coastal Plan definition. [ included in the Coastal Plandefinition designed study project shall normally be com- AN LUIS OBISPO pleted prior to approval of any activity that would interfere with natural sand supplyand ,:... .-- Xbtransport processes. However, if it can be g +\SANTA BARBARA established that such delay would result in -_VENTURA unwarranted hardship, and that the public ~- VENTURA interest could be adequately protected through -. ta,^X~-----the posting of a bond or other appropriate legal -, > guarantees, to be forfeited if the project is sub- sequently established to be detrimental to 4 b LOS ANGELES coastal resources, a project may be allowed to commence prior to the completion of such a study. (See Policy 20 regarding an overall program for study and management of sand >SX HAN-_ ^h Gsupply and movement.) 9/ MEXI ,? ~, 25. Provide Special Protection for Anadromous Fish Streams. In addition to the regulation of -MEXI / stream-blocking structures, the upstream spawn- ing and nursery areas needed by salmon and 52 � PART II: FINDINGS AND POLICIES steelhead trout shall be protected -and restored. b. Carry Out Systematic Stream Investigations. The Department of Fish and Game shall be a. Extend Authority of Existing Agencies. The adequately funded and staffed to carry out a authority and funding of the Department of more comprehensive anadromous fish program, Fish and Game, the Regional Water Quality including (1) systematic surveys of anadromous Control Boards, and the Division of Forestry fish streams to determine fish populations; shall be extended if needed to ensure that (2) identification and delineation of critical salmon and steelhead trout habitats will be spawning habitat and associated riparian vege- restored and protected from the adverse effect tation, its conditions, and its potential for of human activities. It is recommended that improvement; and (3) developing and under- Sections 1601 and 1602 of the Fish and Game taking appropriate management and restoration Code be amended to provide protective mea- programs. Appropriate maps and reports shall sures prescribed by the Department of Fish be forwarded to the Division of Forestry to and Game when a proposed project would have effectuate those provisions of the Forest significant adverse impacts on the fish and Practice Act relating to stream protection wildlife resources of the State. Where spawning and wildlife management and to appropriate areas cannot be restored, appropriate mitigation agencies, including local agencies, for control measures (such as the building of additional of polluting discharges and other environ- fish hatcheries) shall be employed. mentally damaging activities. NATURAL HABITAT AREAS is Findings threatening some species and some unique communities, which can exist only in limited areas, with extinction. The continued existence of abundant and varied life forms on Important Habitat Areas Are Found in the coastal Zone. the coast depends upon proper safeguards for whole living Many and varied species of animals and plants make their communities as well as for plant and animal habitats. An homes in the natural environment of California's coastal zone. especially serious problem in coastal zone wildlife manage- Each living community harbors a distinct group of birds, ment is the degradation or reduction of wetlands, tidepools, animals, and plants, which interact with each other and and dunes - the narrow and often fragile transition zone their environment as a complex, often unique ecosystem. between marine and terrestrial ecosystems. Some of the types of living communities (ecosystems or habitat areas) in the coastal zone are: dunes, wetlands Unique Habitat Areas and Rare Species Need Protection. (including salt and freshwater marshes and associated Public land ownership, including wildlife refuge areas and vegetation), riparian (banks of water bodies) vegetation, parks, preserves many habitat areas, but much of the unique tidepools, redwood and other forests, coastal scrub and sage, natural area of the coast is still unprotected. The State and grasslands. Agricultural lands are also of key importance Department of Fish and Game has some regulatory power to wildlife. Many species of animals range through several to protect habitat areas of rare and endangered animal species ecosystems for diverse food and shelter and some plants are and to restrict hunting of threatened animals. Rare and found in more than one type of ecosystem. But many species endangered plant species have recently been extended some can survive only in one such ecosystem. limited protection on the Federal level, and Section 5001.5 of the State Public Resources Code provides protection for Natural Areas Provide Benefits to People. The various natural rare and endangered living communities. However, there areas within the coastal zone are utilized by people for food is limited, if any, regulatory power to assure that more living and fiber production, for enjoyment, for recreation as varied communities, and individual plant and animal species, do as birdwatching and hunting, for scientific investigation and not become rare and endangered in the future. experimentation, and for education and training. Many Human Activities Have Destroyed Coastal Natural Policies Areas. Substantial destruction of natural areas along Cali- fornia'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 indiscri- 26. Preserve Significant Natural Areas and Rare minate use of pesticides. These activities are reducing the Species. Ecologically significant areas of all habitat areas available to all plants and animals and are coastal natural living communities shall be pre- COASTAL LAND ENVIRONMENT � 53 served by appropriate means such as public acquisition or incentives to private owners (e.g., conservation easements). (See Policy 150 regarding the establishment of coastal reserves to protect , ' , ,- such habitat areas and Part IV for identification of areas.) Rare or endangered plants, animals, and communities shall be protected from des- truction or further degradation, and restoration efforts shall be aggressively pursued. Activities shall be restricted and public access shall be care- fully managed to prevent significant disruption of the habitat values. It is recommended that new legislation to assist in the designation, preserva- tion, and restoration of rare or endangered plants and communities (habitat types) be adopted, patterned after or expanding existing laws man- dating protection for endangered species. 27. Protect Fragile Habitat Areas. Natural habitat areas that are fragile, such as tidepools, sea caves, rocks, islets, dune plant habitat areas, and riparian habitat areas, shall be used only for those activities ment, including new divisions of land and con- that are directly dependent on these natural re- struction on existing lots, shall be regulated to sources, such as nature education or research, and maintain a natural vegetation buffer strip along only to the extent to which no significant disruption all lakes, lagoons, wetlands, and intermittent of habitats or environmental damage will occur, and perennial rivers and streams (excluding except as provided for coastal-dependent develop- those carrying water only very rarely, and not ment (see Policy 62). (See also Recreation section in a distinct channel) in the coastal resource on Controlling Recreation to Protect Resources.) management area. The strip shall be as wide as necessary for protection of habitat areas, 28. Control Development Adjacent to Significant but in no case less than 50 feet wide except and Fragile Habitat Areas. Development in areas for minor intrusions upon natural vegetation adjacent to significant or fragile habitat areas (e.g., small boat docks, utility pipe lines, shall be controlled carefully to prevent adverse etc.). The strip shall normally consist of in- impacts which may significantly degrade the digenous vegetation, but in partially deve- qualities of those areas. Specifically: loped areas appropriate landscaping may be a. Priority for Complementary Uses. Priority acceptable where the habitat area will not be a. Priority for Complementary Uses. Priority desl fct. shall be given to proposed developments or adversely affected. activities that are complementary to wildlife 29. Minimize Habitat DamageWherever Develop- 29. Minimize Habitat Damage Wherever Develop- uses, such as hunting and fishing preserves or ment is Permitted. n addition to the special ment is Permitted. In addition to the special grazing lands that serve as auxiliary feeding grazing lands that serve as auxiliary feeding criteria governing significant or fragile habitat areas for wildlife. areas identified in Policies 26-28 above, develop- b. Restrict Disturbance of Shoreline Habitats. ment (including urban development, roads, New development shall be of a type and inten- logging, farm operations, or other human activities sity and set back so as to prevent significant that reduce or affect natural areas) shall be regu- adverse impact to these habitat areas. No lated in other portions of the coastal resource unnecessary disturbance or destruction of management area to minimize the amount of existing shoreline and intertidal habitats or natural land and vegetation that is altered and dune vegetation shall be permitted. to strictly avoid unnecessary impact of such c. Maintain Natural Vegetation. New develop- activities on these ecological resources. 54' PART II: FINDINGS AND POLICIES AGRICULTURE Findings * Land which qualifies for rating 80 through 100 in the Storie Index Rating. Coastal Zone Soil and Climate Create Special Conditions for * Land which supports livestock used for the production of Agriculture. Particular combinations of soil and climate food and fiber and which has an annual carrying capacity along the coast create special conditions that provide high equivalent to at least one animal unit per acre as defined productivity for agriculture. The moderating marine influence by the U.S. Department of Agriculture. extends the effective growing season, provides timing and * Land planted with fruit- or nut-bearing trees, vines, bushes, yield advantages for national markets, and reduces the or crops which have a nonbearing period of less than five dangers of large-scale crop-loss from freezing. Crops realizing years and which will normally return during the commercial these benefits may be termed coastal-related. (See Glossary.) bearing period on an annual basis from the production The rich soil resources of the coastal zone are not limited to of unprocessed agricultural plant production not less than the production of speciality crops, and in the event of need, $200 per acre. agricultural production could be converted to staple crops. Land which has returned from the production of unprocessed Many of the soils could grow varieties of wheat, oats, and other basic cereals, vegetables, and many other necessary crops. less than $200 per acre for three of the previous five years. less than $200 per acre for three of the previous five years. Type and Extent of Coastal Agriculture. Over 3.5 million Non-Prime Lands Are Also Valuable. Lower quality soils acres are now being used for agriculture within thecoastal can also be valuable for producing crops with special climatic counties, with about 340,000 used for principal coastal-related requirements, such as avocados, brussels sprouts, broccoli, crops. The balance is used for irrigated or non-irrigated artichokes, and celery. Grasslands constitute a major renew- pastures for sheep and for dairy and beef cattle. Some pasture able resource that, as livestock feed, is converted to milk, lands could be converted to specialty crop-producing areas meat, and other products. if market, financial, climatic, and water supply conditions were favorable. Even for grazing, coastal lands enjoy Coastal Agriculture Is Economically Important to California. unusually high productivity. Coastal-related agricultural Coastal agriculture provides as many as 350,000 jobs in and lands in many areas extend several miles inland. serving agricultural operations within five miles of the coast. Agriculture and food processing employment is substantial Much Coastal Agricultural Land Is Prime. Much of the coastal in some counties (e.g., Santa Cruz and Monterey). Gross agricultural land is considered prime by U.S. Soil Conser- revenues from agricultural crops are a major factor in the vation Service standards and by the broader definition, which State's economy. In 1969, the value of the 24 principal includes economic factors, used for the State's preferential coastal crops in the 15 coastal counties was estimated at tax program, the Williamson Act (Government Code, almost $500 million - more than half of the State total for Section 51201), which is as follows: these crops. Nationwide, coastal crops are important econo- * All land which qualifies for rating as Class I and Class II mically and as food supply. in the Soil Conservation Service land use capability Urban Development Threatens Coastal Agricultural Lands. classifications. Vast areas of agriculturally productive lands in California Harvesting lettuce, Guadalupe (south of Pismo Beach), San Luis Obispo County -; -il- ; ,-- COASTAL LAND ENVIRONMENT * 55 have been lost to urban expansion. One out of 12 acres valuable production areas. Local and State efforts to preserve (about 8 per cent) of cropland in the coastal counties were agriculture are hampered by the lack of a Federal agricultural lost in the 1960's. Although some recent studies indicate land policy, although agricultural lands are a national that public revenues from agriculture are greater than public resource. Existing laws do not adequately provide for the costs, the traditional concern for an expanding economy, preservation of valuable agricultural land. This problem is employment, and tax base, combined with current tax assess- not unique to the coast, although it is perhaps more urgent ment policies, continue to give precedence to urban develop- there due to high urbanization pressures. Possible techniques ment. Urbanization pressure causes other problems for to discourage land speculation include: agriculture: * Further revision of State and local tax assessment policies; � Subdivisions and lot splits fragment land and ownership � Strengthening the Williamson Act (for instance, by patterns, making some farm operations less practical; authorizing the coastal agency to designate preserves); High land costs and taxes increase operating costs; Revision of State and Federal inheritance taxes; � Residential development near agricultural areas brings A "land gains" tax on land-sale profits. complaints about farm dust, odor, pesticides, and noise, while it increases the problems of vandalism, trespass, Development easements or purchase-leaseback arrangements dogs and other animals, and air pollution that adversely (scenic lands could be leased for limited grazing) could offer affect agriculture. semi-permanent public protection of agricultural lands. Loan programs (such as long-term, low-interest loans for capital Retention of Coastal Agricultural Lands Provides Many improvements needed to meet environmental quality regu- Benefits. World food shortages, price increases, and national lations) and subsidies may also be necessary to maintain the balance of payment considerations have spurred public economic viability of agricultural operations, as might the interest in preserving productive agricultural lands. Pro- mandatory application of protective measures by local juris- jections of future food needs - and the lesser efficiency or dictions (for example, by requiring local governments to zone impossibility of growing many crops outside the coastal zone prime agricultural lands for exclusive agricultural use). - make existing coastal agricultural lands a natural resource of statewide and national concern. Fuel and fertilizer costs, Good Management Is Essential to Maintain Profitable and the probability that future yield increases will be achieved Agriculture. Whether or not individual agricultural holdings only through energy-demanding techniques, add to the value can be maintained as economically productive units is of naturally fertile coastal lands. Retention of agricultural dependent on good management as well as resource (land land, whether for specialty crops or less intensive grazing, capability) and fiscal considerations. Therefore, economic not only helps provide food but can also guide urban growth, evaluations done on a parcel-by-parcel basis must consider reduce public expenditures for urban service extensions, the efficiency of current and past management practices for preserve open space and wildlife habitats, provide beneficial a particular parcel (including the willingness to make appro- use of land that is hazardous or inappropriate for other types priate capital investments) as part of the determination of of development, and maintain future land use options, such the parcel's long-term economic viability. as conversion of grazing lands to more intensive crops. Agriculture Can Have Adverse Environmental Effects That Require Control. Agricultural operations may have such adverse effects as introduction of toxic pesticides and nutrients Policies leading to eutrophication of watercourses, removal of large areas of native vegetative cover (common in the development of citrus and avocado orchards), and heavy drafts on surface 30. Basic Policy: Protect Agriculture and Its and groundwater supplies. Economic Viability. Because coastal agriculture contributes substantially to State and national Greenhouses Have Special Characteristics. In some coastal areas, prime agricultural lands are covered by greenhouses. food supply and is a vital part of the State's Significant conversions of open field agriculture to green- economy, the State's goal shall be to maintain houses have occurred in recent years. Greenhouses may agricultural lands in agricultural production. offer economic advantages in production of several crops (notably vegetable seedlings, flowers, and houseplants)but a. Preserve Prime Agricultural Lands. Prime may also impose substantial environmental costs: loss of coastal agricultural lands (as defined in the open space, increased per-acre energy and water use, loss Williamson Act, Government Code, Section of soil capability by grading or compaction, pesticide and 51201) and all lands now being used or appro- nutrient concentrations in increased runoff. priate for producing coastal-related crops shall Greenhouses May Be Appropriate in Urban-Rural Fringe, be maintained in agricultural use, except as The profitability of greenhouses can support higher land and provided in Policies 32, 33, and 35 below. These water costs. The visual impact of the structures is lessened lands are to be protected both to meet current by placing them adjacent to existing development. They agricultural production needs and as a land may allow continued productive use of productive lands reserve to meet future food production needs. without many of the common urban-agricultural use conflicts (such as spraying affecting nearby residents). b. Preserve Other Agricultural Land in Suitable Locations. Other coastal lands shall also be Additional Preservation Measures for Coastal Agriculture protected for productive use if (1) they are now Are Needed. Some agricultural preservation measures are now in effect in California, but new and expanded techniques in or have potential for agri cultural use for crops and increased public awareness are needed to preserve and grazing and are suitable for such use (i.e., 56 � PART II: FINDINGS AND POLICIES unless the applicant demonstrates that con- pursued, and the coastal agency shall cooperate tinued or renewed agricultural use is infeasible with other agencies to implement the following: due to excessive farming costs); and (2) they a. Maintain Agriculture Through Local Regu- a. Maintain Agriculture Through Local Regu- are located in areas where a significant amount lations. Acting in accordance with Article 28 lations. Acting in accordance with Article 28 of land is in agricultural use or where maintain- of the State Constitution, which establishes ing agricultural lands in open space uses helps the importance of agricultural soils for the implement other Coastal Plan policies (e.g., production of food and fiber and as an eono- production of food and fiber and as an econo- watershed management). mically viable way to retain land in open space, c. Assure Land Valuation Consistent with Main- it is recommended that the State provide per- tenance of Agricultural Uses. Because the manent protection of such valuable lands economic future of much coastal agricultural through legislative action and require the land is threatened by many factors (e.g., in- application of protective measures (e.g., land flation in costs of labor, energy, materials, and use regulations that prevent unwarranted con- borrowing; production cost increases resulting versions and strengthened subdivision controls) from past development policies, high tax and by local jurisdictions statewide. utilities assessments; breakdown of land hold- b. Revise Tax Laws. To prevent property tax ings into parcels of uneconomic size for agri- hardships on owners of agricultural lands, it culture; and conflicts with vandalism from is recommended that (1) the Williamson Act nearby urban development), new programs be revised and/or existing laws (e.g., AB 4107, are needed to help offset current practices providing that property tax assessments shall whereby agricultural land is priced at non- reflect restrictions on use) be rigorously applied; agricultural uses by the private market. It is (2) taxation of agricultural lands be based on recommended that (1) tax relief measures be actual productivity rather than on potential implemented as soon as possible (see Policy 31); productivity or some non-agricultural use; and (2) other economic problems, such as high (3) State and Federal inheritance and income interest rates for farm loans, be analyzed state- tax laws be reevaluated and revised to avoid wide to determine whether the State should adverse impacts on agriculture; (4) specific provide financial assistance toagricultureand, consideration be given to exempting farm if so, what would be the best approach. families from State inheritance taxes after d. Implement Land Use Policies While Developing permanent use restrictions have been placed Long-Term Programs. The long-term statewide on crop or grazing lands or to changing State approaches outlined in paragraph (c) above inheritance taxes, similar to current Federal and in Policy 31 may require considerable time legislation recently introduced, to drastically to complete. In the meantime, many of the reduce such taxes for farm families; and economic problems affecting coastal agricultural (5) legislation be enacted declaring that the production that result from development pres- regulation of agricultural lands in accordance sures can be effectively addressed through with the provisions of the Coastal Plan be Coastal Plan Policies 32-37. These policies shall deemed an enforceable restriction and that, be implemented as soon as possible while work notwithstanding any other provisions of law, continues on solutions to the broader economic the highest and best use of agricultural land problems confronting agriculture statewide. in the coastal zone is agriculturally related use. c. Develop Research and Other Programs to Assist Agriculture. It is recommended that existing 31. Provide Statewide Programs for the Main- agencies (e.g., the University of California tenance of Agricultural Lands. Because protection Division of Agricultural Sciences, U.S. Soil of agricultural lands involves complex economic Conservation Service, State Department of and land use problems resulting from urban en- Food and Agriculture, and others) continue croachment and development pressures on re- and expand programs to assist agriculture such maining agricultural lands, it is recommended as research and development of integrated that high priority be given statewide to appropriate pest control management, agricultural waste programs to assist in preserving and maintaining controls, and long-term management practices productive agricultural uses including: (1) agri- designed to avoid soil erosion and soil degra- cultural zoning and land use regulation, (2) tax dation. Where severe erosion, soil degradation, assessment based on agricultural value, (3) scenic or agricultural waste pollution is occurring, easements and similar programs, and (4) state- governmental agencies shall be authorized wide financial assistance and research programs. to require range improvement practices or These statewide measures shall be vigorously other corrective measures. COASTAL LAND ENVIRONMENT * 57 Timber and Agricultural Lands in d. Provide State Economic Assistance if Appro- Coastal Counties priate. It is recommended that, where other means of preserving agricultural lands and OREGON maintaining agricultural uses are not effective, agricultural assistance programs be fully inves- tigated and appropriate actions implemented, DEL NORTE such as direct farm loans, loan guarantees, and agricultural use easement or purchase- leaseback techniques. e. Selective Public Acquisition of Agricultural HUMBOLDT / Lands in the Coastal Zone. To permanently / curtail urban intrusions into prime agricultural il Timberlands ' areas adjacent to expanding communities when T Primeagricultural land / all other methods of achieving this objective / a ual l prove inadequate, selective public acquisition ENDOCIO/ of easements or other interests in land shall be used to establish limited agricultural buffers V8 Irb96 / (similar to such acquisition programs now in s; effect in a number of eastern states). Acqui- �e .~ / sition of such interest should also be used to st 'SSONOMA : protect prime lands not now in production but I'SONOMA / needed to meet long-term food needs. A ,,I' ,: revolving fund program should be established M RNA to assemble prime lands that are now sub- divided into parcels of uneconomic size and SAN FRANCISCO then to resell the combined larger holdings a,, Ad to farmers and ranchers. S'AN MATEO f. Provide Financial Help to Relieve Specified SAT ' , Hardships Situations in Coastal Zone Agri- ,~,ANTACRUZ \ culture. For farm families approaching retire- ment, scenic easements over agricultural lands ":'~:: \ ~ ~might be purchased as an alternative to con- 'MONTEREY version as a source of retirement income. (See also Part III regarding acquisition programs.) Because of higher costs of farming near urban fringe areas resulting from public approval of development next to farms, public financial assistance in some form may be necessary to SAN LUIS OBISPO keep land in agricultural production (e.g., tax relief). If other techniques fail, publicacqui- < -' M sition should be considered. To this end, s/g> < SANTA BARBARA selective acquisition of easements or other I VENTURA interests in land may be used by local govern- ments and by the proposed Conservation Trust � It, (see Part III). 32. Establish Stable Urban-Rural Boundaries. ,LOS AN'GELES Because the sprawl of urban development into nearby agricultural areas has systematically ( VIORANGE diminished the available amount of agricultural land and has generated serious land use conflicts SAN DIEGO between existing agricultural and encroaching urban uses, further urban encroachment into prime ~' e agricultural lands shall be curtailed; however, /ea ,i some limited development may be allowed on the urban fringe to complete logical urban develop- ment patterns and to assure a well-defined, stable M EXICO "-- - demarcation between urban and agricultural uses. 58 � PART II: FINDINGS AND POLICIES Carmel River To establish stable urban-rural boundaries, a aries could severely weaken or undermine the three-step program set forth in paragraphs (a), stability of the agricultural economy of the area. (b), and (c) below shall be implemented in coastal The study shall include at least the following zone areas containing coastal agricultural lands. considerations: (1) estimates of the acreage The three basic steps are: (1) analyze the sub- and types of agriculture sufficient to provide regional agricultural economy to determine a safe and conservative margin of activity generally the scale of agricultural activity neces- necessary for sustaining a viable agricultural sary to provide the flexibility to meet changing economy and to maintain a scale of activity market conditions; (2) establish specific local capable of meeting changing market conditions agricultural maintenance programs; and (3) esta- and providing competitive economies of scale blish stable urban-rural boundaries along the for production and labor; (2) the level and mix urban fringe by designating long-term land uses of agricultural activity necessary to support for specific parcels (based on the two preceding the required service facilities and industries steps). These three steps shall be implemented (processors, buyers, farmworker housing); as follows: (3) parcel sizes for individual crops of the sub- region required to maintain a competitive a. Consideration of the Subregional Agricultural reg ion required to maintain a competitive Economy. As part of the subregional planning market position; and (4) recomme ndations for process, an analysis of the local agricultural economy (relying primarily on existing data) agricultural lands from conversion. shall be made to determine the steps necessary b. Assure Long-Term Agricultural Land Use. for the long-term protection of agricultural Based on the subregional analysis of the lands and for reconciling conflicts between agricultural economy, local general plans agriculture and existing development in urban- and zoning shall provide for (1) preservation rural fringe areas. One purpose of the economic of agricultural areas sufficient to protect the study shall be to identify danger points where economic vitality of the subregion; (2) the the cumulative effect of individual conversions orderly development for urban uses of avail- aimed at establishing stable urban-rural bound- able lands not suited for agriculture prior to COASTAL LAND ENVIRONMENT * 59 conversion of any agricultural lands; (3) an 33. Designate Use of Remaining Agricultural implementation program involving long-term Parcels Within Highly Developed Areas. Because measures in addition to zoning to protect agri- the designation of future uses of agricultural cultural lands (including the establishment parcels located within highly developed areas of stable and clearly delineated buffer areas generally would not involve significant impacts between urban and agricultural uses by such on the subregional agricultural economy (in con- means as purchase of open space easements - trast with fringe area parcels), designations of see Policy 36(f); and (4) specific measures to prime agricultural parcels located within these assure that projected levels of urban develop- highly developed areas shall be made on a parcel- ment in the subregion will not significantly by-parcel basis, in accordance with the criteria in increase public service costs or assessment paragraph (a) below, rather than on the basis costs of agricultural lands (e.g., for sewer or of a subregional agricultural economic study. water services) or degrade air quality to a Except as provided in paragraph (c) below, these degree that would have significant adverse parcels shall be designated as part of the sub-. impacts on agricultural productivity. regional or local coastal planning process. The parcel-by-parcel decisions shall weigh the eco- c. Designate Land Uses for Fringe Area Parcels. nomic value of continued agricultural production The agricultural protection program may also on individual parcels against the potential benefits designate some agricultural land for conversion resulting from conversion pursuant to other where agricultural viability is severely limited Coastal Plan policies (for instance, encouraging by urban-rural conflicts or where conversion the concentration of development within existing is necessary for development to create viable developed areas). Parcels not located within highly neighborhoods and establish a stable limit to developed areas shall be governed by the pro- urban development (with particular regard for visions for urban fringe area parcels contained in the requirements of Policy 37). For instance, Policy 32. For purposes of this policy, highly evaluations shall be conducted of existing fringe developed areas are those where 80 per cent of neighborhoods employing socio-economic and the land area within one-half mile of the perimeter public services planning criteria to identify of the parcel is developed to a density of at least viable neighborhood sizes. Based on these eva- three residential units per net acre or to 80 per cent luations a very limited number of fringe parcels of the maximum commercial or industrial usage may be converted; specific parcel designations permitted by zoning for the area. shall be made on the basis of the criteria set forth in Policy 33(a) as re!ated to the data and a. Criteria for Designation. The designation of programs developed in the steps in paragraphs a parcel for either agricultural or urban use (a) and (b) above. shall consider at least each of the following: (1) the long-term agricultural production yield d. Interim Policy for Urban Centers Surrounded potential of the parcel in question; (2) the size by Prime Agricultural Lands. Because some of the parcel and whether the parcel can be coastal cities (i.e., developed areas of the combined with adjacent or nearby agricultural Oxnard Plain, the Carpinteria Valley, the parcels for agricultural purposes; (3) whether Salinas Valley, and the Pajaro Valley) are the parcel is contiguous with developed areas; completely surrounded by prime agricultural (4) whether the parcel is in close proximity to land and might otherwise suffer disruption urban services such as roads, sewer and water; of recent efforts to foster orderly development, (5) whether the parcel could be maintained prior to completion of the subregional agricul- in productive use by use of greenhouses; tural plan, expansion of an existing developed (6) energy, transportation, and water costs com- area onto prime agricultural lands shall be pared with inland areas where the same crops permitted if (1) there are no alternative areas are grown; (7) potential for generating develop- for expansion that would result in less environ- ment pressure on nearby agricultural parcels; mental damage; (2) the only parcels considered (8) the absence or presence (for five years or for conversion shall be those located within a more) of agricultural-urban use conflicts and contiguous band surrounding the developed the severity of such conflicts; (9) whether the area which already has major services in place parcel could provide recreational uses; and (e.g., sewer trunk lines) and where parcels can (10) whether the conversion of the parcel to reasonably be developed within one year of urban development would further other Coastal the effective date of legislation enacting the Plan policies (e.g., concentrating development Coastal Plan; and (3) conversion would be con- in existing urbanized areas) or contribute to the sistent with the criteria of Policy 33(a). completion of partially filled neighborhoods. 60 � PART II: FINDINGS AND POLICIES b. Designated Parcels Should Remain in Agri- continued agricultural use on the parcel and on cultural Use. If a parcel is designated for surrounding parcels and does not increase tax agricultural use, the designation shall be for assessments on nearby agricultural parcels not less than 10 years. (see Policy 37); (2) as much of the parcel as c. Prevent Conversion Prior to Making Specific feasible will be kept in agricultural use; and Designations. Prior to adoption of subregional (3) the area retained for agricultural production or local coastal plans, parcels or contiguous shall be placed under long-term (i.e., 25-30 areas of prime land that are five acres or more years or longer) agricultural use restrictions. in size and have been in agricultural production This partial conversion alternative shall be for at least two seasons in the past 10 years considered in primarily rural areas. shall not be converted to development in whole c. First Opportunity for Public Purchase. Prior or in part; conversion of other small-parcel agri- to the aproval of any conversion of such lands, cultural land within a highly developed area the applicant shall grant the Coastal Conser- shall be allowed only in accordance with Policy vation Trust (see Part III section on Acquisition 34. Immediate conversions shall be allowed and Restoration of Coastal Lands) the first for parcels of two acres or less in existing sub- "right of refusal" to purchase such lands at divisions where more than 50 percent of the a value equivalent to the conversion value. parcels are already developed and the parcel is generally surrounded by urban development. 35. Permit Only Agriculturally Related Develop- ment on Agricultural Lands. New development 34. Criteria for Maintaining Non-Prime Agricul- on agricultural lands shall be limited to construc- tural Lands in Production. The conversion of lands tion necessary for farming and timber harvesting, that are not prime or suitable for coastal-related such as farm residences and buildings, farm- crops shall not be permitted unless (1) the appli- worker accommodations, farm and lumber service cant demonstrates, in accordance with paragraph facilities, farm and lumber roads, or other uses (a) below, that continued or renewed agricultural attendant to an agricultural or timber-harvesting use of the parcel is infeasible on a long-range basis economy, except for conversions approved pur- because of the location, size, soil type, or other Sonoma County characteristics; (2) as specifically provided for prime agricultural lands; or (3) the conversion of non-prime lands would further the Coastal Plan policies of preserving prime agricultural lands and of concentrating development in existing urban areas in proximity to major employment centers or providing public recreational oppor- tunities compatible with nearby agricultural uses. a. Determination of Infeasibility. Determination of infeasibility for continued or renewed agri- cultural use shall be made afterconsultation : with local agricultural producers and appro- priate professional advisors. If the infeasibility is economic in form, before conversion is per- mitted,the possibility of tax relief, public loan assistance and public acquisition, and probable future needs for agricultural production shall be examined. This shall include the possible recombination of small parcels (e.g., rural subdivisions) into larger units where agri- culture can be profitably practiced. b. Partial Conversion Preferred. The partial con- version of such lands to compatible uses (see Policy 57) providing sufficient income to allow continued agricultural use of the remainder of the parcel shall be considered the preferred alternative to total conversion. Such partial conversions shall meet the following conditions: (1) the limited development is compatible with COASTAL LAND ENVIRONMENT * 61 suant to Policies 32-34 or for special facilities as provided in paragraph (b) below. Major agricul- tural service facilities, however, shall be located within rural communities unless such a location is infeasible. Any such development permitted on agricultural lands shall be sited and designed to minimize adverse impacts on agricultural operations. a. Greenhouses. Greenhouses may be permitted . . on agricultural lands within developed areas or: - - :-. ' the urban-rural fringe in accordance with agri- : :'.. cultural protection plans. Outside of these areas, . .... greenhouses that degrade soil capabilities of prime land shall be treated as conversions. ? b. Special Facilities. Agricultural lands may be converted to non-agricultural use where (1) conversion is required for public service, . energy, and transportation facilities or for f , mineral extraction; (2) the proposed facility or activity is necessary and is consistent with other Coastal Plan policies; (3) there is no alternative location that would meet the same need with less environmental damage; and (4) such facilities are sited and designed to minimize adverse impact on the agricultural resource. 36. Limit Division of Land Within Agricultural Fieldof lilies SmithRiver Del NorteCounty Areas. Except for conversions permitted pursuant to Policies 32-35, subdivisions and lot splits shall where the purpose of the lease is for agricultural not be permitted to reduce agricultural parcels production or an agriculturally-related use. to a size that could be uneconomic or impractical for continued agricultural production on the 37. Regulate Development and Land Division parcels in question or on adjoining parcels (e.g., Near Agricultural Areas. Except for conversions 40-acre minimums would allow only a total of 25 permitted pursuant to Policies 32-35, new develop- residences in a 1,000-acre area whereas 5-acre ment, land division, or the formation of urban minimums would allow 200 residences with the assessment districts shall be allowed adjacent potential for significant increase in dog, road, to agricultural lands only if (1) the type of use and vandalism problems). Where divisions of proposed will not interfere or conflict with con- agricultural lands are allowed for agricultural tinued agricultural use and the development is purposes (such as long-term leasing of specific designed to avoid conflict with farming practices parcels), the approval of such divisions shall be (e.g., clustering housing as far away from agri- conditioned on the recording of appropriate res- cultural spraying areas as possible); and (2) it trictions precluding the future division of the will not have an adverse economic effect on the parcels and limiting the use of the parcels to long-term preservation of agricultural lands (e.g., agricultural activities. It is recommended that adjacent lands are under agricultural use restric- the Subdivision Map Act be amended to exempt tions and agricultural lands will not be assessed agricultural lands from the requirement for the for urban services or taxed on the basis of urban recorded division of land for long-term leases property values). 62 � PART II: FINDINGS AND POLICIES FORESTRY Findings Revision of Timber Taxation Methods Is Needed. Current methods of timber taxation, which treat most mature standing timber as "property," encourage unsound forest management Commercial Timberland Is a Valuable Coastal Resource. on small timber ownerships, resulting in reduced forest yield. The commercial timberland of the coastal zone is a valuable Revision of present timberland taxation practices (for example, natural and economic resource. It must be managed carefully replacing the property tax with a "yield tax" that would to ensure its maintenance as a renewable economic resource, tax the timber as it is removed) is needed to encourage to retain its valuable wildlife, fisheries habitat, and scenic conservation and long-term renewal of this resource. and recreational potential, and to protect watersheds from erosion and excessive runoff due to the removal of vegetation. The basis of a sound, healthy timber industry is protection and husbandry of soil. The California Forest Practice Act of 1973 has as major objectives the maintenance of commercial Policies timberland to ensure long-term sustained yield, and the pro- tection and enhancement of fish and wildlife habitat, soil and watershed resources, and recreational use of timberland. 38. Protect Coastal Forest Resources. Because Improper Management Has Reduced Forest Resources. timber is renewable while many other vital con- In the past, unsound forest management practices, conver- struction and industrial raw materials are not, sions of timberland to other uses such as residential develop- timber harvesting is a vital and necessary industry ment or agriculture, and site dominance by non-commercial that should be encouraged and safeguarded. To successional species have contributed to the decline in the historical timber inventory in California. Land divisions have that end, forestry resources shall be managed often produced small uneconomic parcels that force the as part of comprehensive watershed management, harvesting of timber when it is not desirable. as set forth in Policies 21-25. Timber harvesting Old-growth coastal redwoods, Humboldt County c' COASTAL LAND ENVIRONMENT � 63 and timberland conversions shall maintain long- screening of new logging operations from such term productivity and protect environmental public viewing points. quality, including the fisheries resources of coastal streams, while encouraging appropriate use of c. Protect Water Quality from Adverse Effects of streams, while encouraging appropriate use ofLogn.Tmehavsignkywtrhd this important renewable resource, using the Logging. Timber harvesting in key watershed this important renewable resource, using theara(toehtaeviltohewerspy criteria in the following sections. These policies areas (those that are vital to the water supply shall be implemented primarily by the Division shof coastal communitie s or that drain into sensi- of Forestry and the Board of Forestry and through al t reas sha etl ad local coastal plans, with participation and comment along all stream banks shall be strictly regulated by the coastal agency. The coastal agency shall and forest management practices within these areas conducted to prevent such adverse effects review and report progress toward meeting these objectives annually to the Governor and as damage to stream and riparian habitats, siltation, or harmful runoff. Specific "buffer zones" shall be established (with assistance a. Restrict Conversion of Productive Timberlands. from water quality, wildlife, and fisheries Conversions of high-quality redwood, Douglas- agencies) where commercial harvesting of fir, or other coastal commercial timberlands timber shall be closely regulated or not allowed. (site I, II, or III) to other uses or their division (sie 1 11 orll~oohersesrthirdvison d. Restore and Enhance Timber Resources. into units of non-commercial size shall be r re and nhance me allowed only for necessary timber processing Programs for rehabilitation and enhancement allowed only for necessary timber processing of commercial timber resources shall be de- and related facilities and for specific uses that may be permitted as provided in Policy 35 for veloped, with State encouragement orappro- agricultural lands. Other coastal areas now in priate incentives, and implemented according to agricuturallands Othecoastlareanowinpriorities developed as part of watershed plans. use for forestry shall be protected for productive priorities developed as part of watershed plans. use and open space value except as provided for non-prime agricultural land conversion (see 9. Modify Taxation to Encourage Sustained Policy 34). Yield. Because the current practice of annually assessing timber lands encourages the conversion of those lands rather that sustained yield timber b. Protect Scenic Qualities of Timberland. Timber management, it is recommended that State laws harvesting, including road construction and governing timber taxation be amended to require debris removal, shall be regulated to protect the taxation of timber when it is harvested (i.e., scenic quality of areas that are highly visible stumpage tax) instead of taxation annually in the from public roads, foot and bicycle trails, manner of real property. Although the ultimate tax coastal rivers and streams, beaches, and parks. yield over the years would be the same, appropriate Such regulation shall favor use of selective adjustments to offset the temporary inequities that timber-harvesting methods or the use of small, may occur to both timber property owners and carefully designed clear-cut areas. Buffer areas local governments during the conversion to the shall be preserved to provide maximum feasible new taxation system need to be included. SOIL AND MINERAL RESOURCES ~~~~~~~~~Findings ~Such maps can aid in land use planning and in review of Findings development proposals by identifying areas of prime soil for agriculture and timber production and areas with potential Soil Quality Is Important to Coastal Conservation and to soil erosion, waste disposal, instability, or other problems. Development Decisions. Soil is a valuable and irreplaceable Several coastal counties have already completed detailed coastal zone resource. Soil absorbs and stores rainfall that soil surveys. Data presently available includes the California recharges underground aquifers, sustains agriculture and Soil Vegetation Survey, which includes soil and vegetation timber production, and supports natural vegetation, wildlife information for over eight million acres of upland soil , and habitat. and a great variety of human activities. Soil maps Department of Water Resources surveys classifying California inventory the distribution, quality, and limitations of the land. lands for suitability for agriculture in terms of slope, soil 64 * PART II: FINDINGS AND POLICIES texture, and other limiting characteristics. Major land use categories, including urban development, 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 10 years. 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 econo- mically. Construction material needs can be largely met by , '..~ ,~ mining non-coastal mineral deposits, with the exception of specialty sand and other unique coastal minerals. Increased c ' " demand for non-petroleum minerals is leading to increased A interest in offshore mining. Recent developments in offshore mining technology are helping to make offshore mining com- petitive with land operations. Seawater also holds promise as a source of more salt, magnesium, and other minerals. On land, the geographic sprawl of cities threatens to cover . . many mineral deposits, primarily sand and gravel resources located near urban areas. Also, urban residents often object.. , . to nearby mining operations. Sand and Gravel Extraction Involves Environmental Impacts. Mineral extraction, primarily of sand and gravel, involves Sand mining, Seaside, Monterey County many environmental hazards. Open-pit mining removes all vegetation, creates disposal problems, may pollute both air and surface water, and deprives wildlife of habitat. Suction "living dunes,' some streams, and othercoastal dredging (using vacuum pressure to recover underwater water areas and landforms that are fragile, resources) disrupts bottom life, can pollute the water with valuable, or highly scenic natural environments. silt and residual material, and can create dredge-spoil disposal Mining shall be allowed in other coastal areas if problems. Dragline mining, which scrapes off surface (1) the mineral extraction will not have a sub- materials with a bucket suspended from an arm, either on land or underwater, can cause the environmental damages stantial or long-lasting adverse impact upon of either open-pit mining or suction dredging. Sand and coastal resources; and (2) in the case of sand gravel extraction also can reduce spawning grounds. Mining mining, the sand supply of the particular water- 0 of coastal sands has noticeably depleted this resource in shed is sufficient or alternative sand supply is pro- some locations. vided to allow mining without significant adverse Mining Regulations Are Needed. Strict environmental impact. (See also Policy 18 regarding dredging and controls such as dredge disposal standards, dust and noise spoils disposal, and Policy 24 regarding stream control equipment, and reclamation of pit mines, could alle- mining.) In addition: viate many of the problems, although they would also increase mineral extraction costs. Some such regulation is now being a. Provide Buffer Areas. Buffer areas shall be done, but it is not uniform throughout the coastal zone. preserved to provide maximum feasible screen- ing of new on-land extraction operations from coastal roads, trails, water bodies, beaches, and recreation areas: Policies b. Restore Mined Areas. After completion of permitted mining operations, mineral extraction 40. Protect Coastal Soil Resources. Soil pro- areas shall be reclaimed and replanted to ensure ductivity shall be protected and development slope stability, erosion control, and adequate regulated to prevent soil depletion or degradation. drainage and to offer as natural an appearance Existing building and grading regulations aimed as possible. Parkandopenspaceuseshallhave at minimizing erosion shall be strengthened and the highest priority for the utilization of restored strictly enforced, including review of local ordi- extraction sites. nances to ensure that they fully conform with the c. Establish Environmental Protection Standards. Coastal Plan. To this end, natural resource inven- Noise and dust, surface water pollution, and tories, including detailed soil surveys, shall be waste materials and spoils disposal shall be completed for the entire coastal zone and used controlled to minimize adverse impacts. It is to identify valuable soils that shall be protected recommended that uniform statewide regula- when formulating land use plans and evaluating tions be adopted and enforced to provide appro- proposed projects. priate standards for these impacts, as well as for reclamation of extractive sites. Imple- 41. Regulate Mining. Mining shall not be allowed menting these requirements will require the. in sensitive areas such as marshes, lagoons, cooperation of the many local, regional, and COASTAL LAND ENVIRONMENT * 65 statewide agencies that would be involved, quality of mineral resource deposits shall be coordinated by an agency such as the State inventoried statewide, concentrating on potential Office of Planning and Research. resources near urban areas where materials can be transported at reasonable cost. Near-city mines 42. Inventory and Reserve Mineral Deposits. and reserves shall be protected from urban en- To reduce the pressure to mine sand and gravel croachment. Designations of appropriate mining and other non-petroleum mineral resources in sites shall be a part of comprehensive watershed fragile coastal areas, the location, quantity, and management plans, described in Policy 22. AIR QUALITY Findings day along much of the coast, because of high-pressure centers off the Pacific Coast or land-water temperature differentials. Land-sea breezes are caused by the temperature Clean Air Is a Coastal Zone Resource. Clean air is an iden- differential beee e a s e the ea ur differential between the land surface and the ocean surface, tifiable economic resource contributing to activities such as on both a daily and seasonal basis. These breezes may push cut-flower and specialty crop agriculture and recreation. ont ac and on ih sers m uh pollutants back and forth without dispersing them throughout Coastal areas with clean air also provide a needed refugeap a larger area, especially where the topography helps trap for people with asthma and other illnesses. Beyond these pollutants and when winds are relatively weak, as they are tangible benefits, the fresh ocean breeze is appreciated by n wn in ae e ea , the a in winter. During the summer season, the fog and low clouds residents and visitors throughout the coastal zone. along the coast usually prevent formation of photochemical Air uality Varies Throughout the Coastal Zone. Air quality smog, but as winds move the air inland, pollutants produced Air Quality Varies Throughout the Coastal Zone. Air quality I ~~~~~~~~~~~~~~~~~~in the coastal zone can contribute to severe smog at inland varies greatly among different sections of the coast. Pollution in the coastal zone can contribute to severe smog at inland locations where the pollutants react with sunlight. Sulfur sufficiently severe to damage human health occurs in some locations where the pollutants react with sunlight. Sulfur dioxide pollution is more dangerous in coastal fog areas, locations (generally urbanized areas with adverse meteoro-ical reactions can produce a weak solution of where chemical reactions can produce a weak solution of logical and topographic conditions) and contrasts with sulfuric acid, injurious to human, animal, and plant health, normally clean air in others. Certain areas of the State where ad in to man al and damaging to many materials. the national ambient air quality standards are not expected to be achieved by 1980 or to be maintained through 1985 Air Pollution Threatens Public Health and Coastal Zone Air Pollution Threatens Public Health and Coastal Zone have been designated as Air Quality Maintenance Areas havebeen des d Air Qsuas BMar De natnes wAreas Resources. Air pollution limits specifically set to protect by the California Air Resources Board. Designations were human health are now being exceeded in some locations based on the following criteria: (1) areas where the standards n heat re no bifed i e l along the coast, creating not totally quantified but very real are currently exceeded and are not projected to be achieved an h sfring t ad uner re damage and human suffering. Studies made under Environ- by 1980, (2) areas currently meeting the national standards en a oeing uies ae neain mental Protection Agency (EPA) auspices are increasingly in which increased emissions are expected to cause a violaon w h inceasrd bemfore 1 nd () ite San quantifying the detrimental effects upon health of air pollution violation of the standards before 1985, and (3) in the San levels even under existing secondary standards. In addition Francisco Bay Area and South Coast Air Basins, the entire to the impacts on human health, the extent of air pollution air basin, if any county in the basin meets the criteria above. to te atson un at e plt damage to wildlife and vegetation (including native plants. Coastal areas or air basins designated by the State include Coastalareasorairbasinsdesignatd bytheSan Diego forests, landscaping, and agricultural crops) is also increasing- the South Coast, San Francisco Bay Area, and S nDeoly being documented. A statewide study estimates crop losses ~Air Basins, and Monterey County. alone from air pollutants in 1970 to be almost $26 million, not including invisible damage. Air Pollutants Originate from Many Sources. Air pollutants originate from many sources. Motor vehicles constitute the single largest source of nitrogen oxides, carbon monoxide, Development Patterns'MayAffectAir Pollution. The location and organic gases; industry, including fossil-fueled electricity- and intensity of air pollution concentrations greatly influence generating plants, is the chief source of sulfur dioxide. Sus- its effect. Studies suggest intensive transportation corridors pended particulate matter comes from mining, agricultural, are major sources of concentrated vehicle emissions creating and lumber operations, as well as from motor vehicles, incine- a special hazard for humans, wildlife, and plants located ration, and the combustion of fuel. All these are in addition nearby. When freeways encourage a net increase in vehicular to natural pollutants such as dust and saltwater particulates. mileage, they also add to total air basin pollution. Buildings also affect pollution dispersal, generally slowing wind speed Distinct Climate of the Coast Affects Air Pollution. Several over urban areas and modifying wind patterns within distinct meteorological aspects of the coast affect air pollution particular building masses. problems. Temperature inversion layers, which trap pollu- tants by stopping upward air movement, tend to occur more Project Design Can Help to Minimize Air Pollution. Careful frequently, at much lower levels, and last longer into the project design can minimize interference with wind currents, 66 � PART II: FINDINGS AND POLICIES Coastal Air Quality Maintenance Areas especially in local circulation patterns, and can thus maintain natural ventilation. Properly located vegetation barriers ("green belts") can substantially reduce particulate air pollution and some types of gaseous pollutants, especially near ground level, by trapping it on the foliage. Even a 30-foot-wide strip densely planted with trees and shrubs can filter out more than a quarter of some types of pollutants. v -- 'L NORTEProject designs which minimize automobile use also aid in 4"_ ArDEL NORTE as reducing pollution. Further Air Quality Regulations Are Needed. Present regulation of air pollution in California is shared among ,'!UMBOLDT local Air Pollution Control Districts, the State, and the 2 //HUMBOLDTj/ Federal government, and is coordinated by the State Air Resources Board. Present regulations focus on limiting / ! S pollutants emitted from stationary and vehicular sources. ~-' / There is currently no authority to coordinate land useand transportation systems as a means to control air pollution, /rMENDOC i but this is now being proposed by the Air Resources Board iMENDOCINO / and the EPA. Indirect source controls are also being developed. l '- : /The EPA 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 o-~f / addition to requiring each state to prepare and enforce a \/ ) - {plan to meet the primary national ambient air quality .S.O.1OMA / standards, the Federal Clean Air Act also required each state to prepare and submit by June 1975 an air quality . ~1W, / maintenance plan showing how air quality standards will '�' ":'" ' @ '~"~ ;";:'":~. ~ ~ be maintained. ~SAN FRANCISCO 1. San Francisco Bay Area Air Basin g oi::~~ ~ 2. Monterey County ;AN MA/ 3. South Coast Air Basin Policy 4. San Diego Air Basin Identified by the California Air Re-r sources Board. 43. Design and Operate Coastal Developments to Protect Air Quality. New coastal developments M,~ i \,1 (including small-scale development that, together NTEREY W5' ,o with other projects of the same type would have a cumulative adverse effect upon coastal air quality) shall be planned, designed, and operated " "'\ " to protect and restore coastal zone air quality to the maximum extent possible. ? i1SAN LUIS OBISPO a. Strive for Maintenance and Restoration of Coastal Air Quality. Air quality maintenance go<, ^N <, plans stressing maintenance and restoration of coastal air quality shall be prepared by the t SANTA BARBARA ..., _NTA RA appropriate air quality agencies with the coop- '---.-.....-E.-N~. :-:_.....TURA eration and participation of the coastal agency. Similar cooperation shall be exercised in de- : .':;' t, veloping air quality carrying capacity estimates for each clean air region. ANGELES b. Major Pollution Sources. Major pollution- o-,. generating developments, including but not ':-..:.ANo. limited to refineries, oil separation, treatment, ,..Y.. :":";~;"'and storage facilities, airports, freeways, fossil ANit DIE fuel electric generating plants, and major modernization or expansion of any existing such developments shall: ,� * meet all applicable Federal, State, and local performance and emission standards and M EXICO -- regulations; COASTAL LAND ENVIRONMENT * 67 �be designed, sited, built, and operated using garding fossil fuel power plants, and Policy 88 the best available technology and operating regard ing ref ineries, are met. procedures to minimize pollution; c. Residential and Commercial Development. � not prevent or interfere with the attainment Additional residential development shall or maintenance of any applicable ambient wherever possible be located in areas served air quality standards; and by public transit systems. (See Policy 59 re- � not cause significant dletrioration of local garding limitation on remote, auto-dependent or eginalcoastal air quality with respect developments.) Public transportation and tor anypoluionalpe reductions in total vehicle miles traveled shall In aditio, suc devlopmets sall nt bebe strongly encouraged in all new and existing buadition, areas deeofpment costall znot de s gae developments by such means as requiring builth Caifoni AirReasofuthes Boardtal zoeAeignte financial contributions to public transit systems Quliy MithenCalionce AirResorcs Boardeas wher e n in lieu of otherwise required parking spaces Qualiy Mantenace Aeas areaswher any(normally in areas served by public transpor- national ambient air quality standards aretainpbcsuideofusytmad exceeded currently and are not projected to r etrition)g artrli susdiesig capacisytiems, andonst be achieved by 1980, or where such standards p rksrcing. arteeialdsog Tranportation candonster. are currently being met but increased emissionspakn.(ealoTnsrtinchtr) are expected to cause a violation of the stan- d. Project Siting and Design. New projects in dards before 1985), or in locations where such the coastai zone shall be evaluated and appro- coastal resources as resort or agricultural areas priate mitigation measures required to reduce would be adversely affected, unless (1) there is pollution problems (e.g., on-site open space, no alternative inland or coastal location where green belts, internal circulation systems, and siting would result in less environmental degra- buildings designed and sited to maintain favor- dation, and (2) further criteria in Policy 79, re- able wind currents). COASTAL APPEARANCE i AND DESIGN Findings such as Bixby Canyon, Los Trancos Canyon, and the San Clemente hillsides. * Upland Terraces and Plains that are generally broad, flat The Coast Is a Vsual Resource. For the most part, the coastal lands stretching inland from the sea to the coastal California coastline is an outstanding visual resource of great mountains, such as much of the Mendocino Coast, San variety, grandeur, contrast, and beauty that can be enjoyed Mateo coastline, and the Irvine Properties. by all the people of the State. Visual attractions such as the dramatic meeting of land and water, clear skies, unspoiled � Rivers and Streams that are the upland portion of estuaries natural areas filled With wildlife, and the rich texture of that are connected to the sea and that are often meandering, urban shorelines add to the quality of life for coastal residents, broad open areas shaped by the paralleling hills, such as visitors, and workers, and contribute to the economic success the Smith, Tijuana, and Russian Rivers of the tourist industry by attracting many vacationers to of the coauristline.g many vacationers to Deterioration of the Appearance of the Coast. In some areas, manmade changes have provided new access to the coast Complexity of Analyzing Coastal Visual Resources. The and new opportunities to enjoy the coast, while respecting systematic analysis and management of coastal visual the special visual quality of the coastal environment. But resources are complex and difficult because of the great in other areas, the coastline has been degraded by new variety of natural conditions and the wide spectrum of the developments and other alterations that do not harmonize degree of development along the coast. At the broadest level with the scenic qualities of natural areas or do not respect the following nine types of landforms have been found to the unique visual resources found in developed coastal areas. encompass most conditions along the coast; therefore, these In its most general terms, this deterioration is due to various are reasonable categories for coastal zone appearance and aspects of urbanization that could have been better designed design policies and guidelines, and lend themselves to greater to minimize their negative effects. These issues include: specificity at the local level based on detailed inventories � Scale, height, materials, and colors of buildings and of existing conditions and problems: structures that, when inappropriate to the landform and � Beaches that may be narrow to broad sand, shingle, cobble, existing patterns and scales of development, can degrade or rock with a wide degree of vegetation ranging from none the appearance of both communities and natural areas. to thick grasses, such as the Silver Strand, Ten Mile Beach, � Community boundaries that are often ignored, creating and Stinson Beach. visually displeasing "sprawl" development. (See Policy 59.) * Sand Dunes that vary greatly in height and in the degree � Signs that can block views, create visual clutter, and mar of vegetation they support, such as Murray Dunes, the appearance of otherwise attractive communities. Monterey Bay Dunes. and Salmon Creek Beach. and Salmon Creek Beach. Alteration of natural landforms by cutting, grading, filling, � Coastal Bluffs that are the angular, irregular coastal edges or vegetation removal that can cause visual scars, result of marine terraces rising at least ten feet above sea level, in unsightly erosion, and destroy scenic areas. such as Point St. George, Santa Cruz North Coast, and � Landscaping that is often inadequate in new development, Goleta Point. creating the appearance of harsh structures imposed on � Headlands that usually fall steeply into the sea along a the coastline. jagged angular, irregular shoreline, such as Big Sur, Cape � Views that when blocked destroy the most important visual Vizcaino, and the Golden Gate Headlands. quality that identifies coastal areas. � Wetlands and Estuaries that encompass bays, lagoons, ..Wetlands and Estuaries that encompass bays, lagoons, *Utility and communications facilities that can cause inlets, and their surrounding wetlands, such as Bolinas visual blight when overhead lines, towers, and poles Lagoon, San Dieguito, and Pescadero Lagoon. intrude into scenic areas or clutter views of the coast � Islands ranging from large rocks to the expansive Channel in developed communities. Islands, such as Indian Island, Farallon Islands, and Santa Islands, such as Indian Island, Farallon Islands, and Santa *Public service, commercial, and industrial facilities such as manufacturing plants, shopping centers, power plants, � Headlands, Hillsides, and Canyons that are usually steep sewage treatment facilities, solid waste disposal facilities, and rugged and include rare vegetation, small scale water storage tanks, pumping stations, and power and features, abundant wildlife, and outstanding visual features, communication substations that can be major visual COASTAL APPEARANCE AND DESIGN * 69 intrusions in the coastal environment because of their size design criteria could be established for all new development and appearance. along the coast. But because of the great variety in the _Transportation and parking facilities that can result in existing character of the coastline, because of the dynamic cutting and filling of the natural landscape and the well- changes taking placeinsocialvaluesandbuildingtechnology, and because different people have different concepts of known "sea of asphalt" in urban areas. (See Transportation chaperpicisoroasanakinglot "beauty," necessitating intensive involvement of community chapter policies on roads and parking lots.) residents in determining the desired visual qualities that * Mineral extraction and timber harvesting that are generally should exist in the hundreds of communities along the coast, considered to be unattractive activities that should be highly specific criteria cannot be established for the entire screened from public view. (See Policies 38 and 41.) coast at this time. Until design plans, specificcriteria, and The Need for Design Evaluation. The Coastal Zone Conser- enforcing regulations can be formulated by coastal com- vation Act of 1972 requires that one objective of the Coastal munities and the coastal agency, the application of general Plan be "the maintenance, restoration, and enhancement design guidelines, refined to as much specificity as possible of the overall quality of the coastal zone environment, by regional and local amplification, through adesign review including, but not limited to its amenities and aesthetic process, appears to be the best method for guiding develop- values" (Public Resources Code, Section 27302 [a]). In order ment to preserve or restore the attractive appearance of the to achieve this objective, it would be ideal if highly specific coast. (See also the Restoration of Coastal Resources chapter.) PROTECTING COASTAL VISUAL RESOURCES Policies natural landforms and significant vegetation, in providing attractive transitions between natural 44. Design Development to Protect Coastal and urbanized areas, in carrying out the policies Viewshed. The visual qualities of the California of the Coastal Plan, or as scenic open space; and coast shall be considered a resource of public (3) scenic areas and historical districts designated importance. Within the "coastal viewshed," as by cities and counties in their design procedures defined below, new development shall be designed and standards prepared pursuant to Policy 46. so that the viewshed quality can be preserved where existing natural or manmade areas are 46. Establish Local Design Procedures and scenic, can be enhanced by the addition of attrac- Standards. Cities and counties within the coastal tive improvements, and can be restored by the viewshed shall prepare and implement design removal of undesirable visual elements (see procedures and standards as a part of their general chapter on Restoration of Coastal Resources for plans. These shall be required to include appro- restoration policies). The coastal viewshed is the priate guidelines, criteria, and standards that are coastal lands and waters that can be seen from consistent with appearance and design policies the major coastal access roads, trails, and railroads of the Coastal Plan; a sign ordinance to apply (those paralleling the coast and those leading to the guidelines set forth in Policy 54; and definitive the coast from inland areas); from public vista design criteria for improving the appearance of points and recreational areas; and from the the shoreline based on detailed studies of the water's edge. oceanfront area carried out by cities and counties. Areawide design guidelines shall be formulated 45. Protect the Visual Quality of Highly Scenic as part of design procedures and standards so Areas. New development shall not be permitted that development proposals can be coordinated to degrade highly scenic natural, historical, or in order to maximize open space preservation; open areas and shall be visually subordinate to to protect view corridors, natural vegetation, the scenic quality of these areas. The areas that landforms, and other features; to effectively link require this special consideration shall include: open space systems with paths and bikeways; to (1) landscape preservation projects designated by reduce the need for duplicating circulation systems; the State Department of Parks and Recreation and to minimize the appearance of visually intru- in the California Coastline Preservation and sive structures. Transportation, land use, utility, Recreation Plan; (2) open areas identified in the and recreational planning shall be coordinated Coastal Plan as being of particular value in pro- with the preparation of the design procedures viding visual contrast to urbanization, in preserving and standards. 70 � PART II: FINDINGS AND POLICIES t Fall- \~~~~~~ Hotel on open beach and dunes, Seaside, Monterey County 47. Establish a Design Review Process. New properties in undeveloped areas, the areashall development within the coastal viewshed that be considered as a single unit, and the project would have a significant visual impact shall be sponsors shall be required to jointly prepare subject to design review. This review shall be to an overall design plan to coordinate open space, ensure that development and its cumulative impact internal circulation, design themes, view pro- are consistent with the design guidelines contained tection, and other visual elements and to meet in Policies 49 to 56 and with the special policies the requirements of the design guidelines and for each individual Region. other Coastal Plan policies. a. Design Review Process. To evaluate visual c. Prepare Area Plan for Intense Development. aspects of development proposals and to advise Major new development that would be of a public regulatory agencies on both design issues substantially greater density or intensity of use and the application of other Coastal Plan policies than the surrounding area shall be in accordance through design techniques, and, in particular, with an area plan, prepared at the project to assist in determining whether a proposed sponsor's expense, that specifies the general development that would not comply precisely location of uses by height, bulk, and density, with the guidelines in Policies 49 to 56 would, and that indicates the location or methods for nevertheless, be visually compatible with the preserving open space, ocean breezes, views, surrounding environment's attractive qualities and public access. The impact of any proposed because of its innovative and sensitive design: major structures on views, shadows, glare, (1) professional design assistance shall be and wind patterns shall be evaluated as part available to the staff of the coastal agency; of the area planning. (2) local governments shall consider establishing design review boards; and (3) regional design d. Large, Intensive Subdivisions and Develop- review boards shall be established by the coastal ments Must Have Detailed Design Plans. agency when necessary to evaluate and advise A detailed design plan shall be required for on development proposals that are of regional subdivision and development of nearcoast area significance or that are in areas not served by properties larger than three acres, or develop- local design review boards. Design review ment proposals of more than 15 dwelling units boards shall consist of persons who have dis- per acre in suburban areas (20 per acre in urban played an understanding and appreciation of areas). It shall be prepared at the project the history, aesthetics, and goals of coastal corn- sponsor's expense and shall demonstrate that munities, and design professionals (e.g., archi- the development will comply with Coastal Plan tects, landscape architects, urban designers, design policies. planners, engineers, artists, sculptors, etc.). b. Require Coordinated Design Plans. Where 48. Reduce Litter in Coastal Areas. All public development is proceeding rapidly in small recreational areas, scenic road turnouts, and other neighborhood areas or on adjoining or nearby such areas shall contain adequate, well-designed COASTAL APPEARANCE AND DESIGN � 71 litter receptacles. Maintenance (emptying) of these receptacles, raking of beaches, and anti-litter patrols along highways and in wilderness areas shall receive high priority in state budgeting and local cleanup campaigns. To greatly reduce litter along the coastal roads, waterfront recreational areas, and in shoreline communities, it is recom- mended that the Legislature consider enacting 1 laws to prohibit the sale in California of non- returnable glass bottles, aluminum and metal pop- L top cans, and non-biodegradable plastic packaging. DESIGN GUIDELINES FOR VIEWSHED DEVELOPMENT Policies b. Design Guideline: Sand Dunes. Development that would significantly hamper natural dune movement, that would conflict with the visual 49. Design Guidelines: Compatibility with Natural form of dune ridgelines, or destroy dune- Environment. The scenic value of natural land- stabilizing vegetation, shall not be permitted. forms shall be preserved, enhanced, and restored. Pedestrian and vehicular traffic in fragile sand Development shall be compatible with existing dune areas shall be minimized. natural features and terrain. The visual intrusion of structures into scenic open spaces shall be c. Design Guideline: Coastal Bluffs. Development minimized by clustering the structures near other on bluffs shall be controlled to minimize bluff existing natural and manmade vertical features degradation. No structures shall be permitted (such as tree masses, hills, rock outcrops, and to be built on a bluff face except for access existing structures). To ensure that structures stairways (which shall be for public use, few are compatible with the natural environment, the in number, and conveniently located to public following guidelines for development on specific accessways) and erosion control structures, landforms shall apply except either (1) where it such as seawalls, that would be in conformance would make an existing parcel unusable and where with Policy 19. Approved structures shall be public acquisition of such a parcel is not appro- constructed of materials that reproduce natural priate (see Policy 155), or (2) where it is deter- colors and textures as closely as possible. Drain- mined, under the provisions of Policy 47 (a), that pipes shall be minimized by collecting runoff a proposed development that would not comply and directing it landward, where possible, and with the guidelines would, nevertheless, be shall be unobtrusive in appearance. No dumping visually compatible with the natural environment's over coastal bluffs shall be permitted except visual qualities. where necessary for erosion control measures specifically authorized by the coastal agency and consistent with other Coastal Plan policies. a. Design Guideline: Beaches. No permanent Blufftop development shall be set back from structures shall be permitted on the open beach the bluff edge sufficiently far to ensure that itself except facilities necessary for public health the development would be visually unobtrusive and safety (e.g., beach erosion control struc- when viewed from the shoreline except in highly tures and life guard towers) or structures found developed areas where adjoining development to be necessary for public welfare. Other is nearer the bluff edge, or in special cases structures or other improvements shall be where a facility that would be used by sub- located inland from the open beach. stantial segments of the public has been 72 a PART II: FINDINGS AND POLICIES justified in an approved urban design plan shall be visually unobtrusive when seen from for the area. (See also Policy 70 regarding the terraces or plains below. development in bluff hazard areas.) h. Design Guideline: Rivers and Streams. d. Design Guideline: Wetlands and Estuaries. Development shall be set back from the edge of The open visual appearance of estuariesand coastal rivers, streams, and other natural water- their surrounding beaches and wetlands shall ways to protect riparian vegetation, minimize be retained ndintact. Public accesswas shall beerosion, and preserve the visual contours of be retained intact. Public accessways shall be the waterway. Channelization projects, where designed to respect the visual and ecological specifically authorized and consistent with other fragility of estuaries and their adjacent land Coastal Plan policies, shall include landscaping, areas. Coastal roads shall be located on the public trails, and linear parks to mitigate the inland side of the estuaries. (See also Marine visual damage resulting from the channelization Environment section on Coastal Waters, and to maintain, enhance, or restore recrea- Estuaries, and Wetlands.) tional opportunities. e. Design Guideline: Islands. Development on islands, except for lighthouses 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. f. Design Guideline: Headlands, Hillsides, and Canyons. Private roads on headlands shall be visually screened, and driveways connecting to the coastal highway minimized in number. The transitions between headlands and related stream canyons shall be left in a natural state 50.Design Guideline: Protection of Coastal Views. with bridges over canyons minimized in number, Except as provided in Policy 47(a), development combined, and located at the narrowest crossing (including buildings, fences, paved areas, signs, points as far inland as physically feasible and and landscaping) shall not be allowed to signi- environmentally acceptable. Grading, cutting, ficantly block views of the shoreline from key and filling in canyons and arroyos and on hill- public viewing points such as roads that terminate sides shall be in accordance with Policy 53. at the coast, roadside turnoffs, recreation areas, Buildings on canyon edges and hilltops shall and beaches. In addition: be visually unobtrusive when seen from the canyon or valley floors below. Coastal canyons a. Views of Natural Features from Roads. In major with recreational and natural study value shall new development, views of attractive natural not be used for sanitary landfill sites where features (such as dunes, the surf, coastal bluffs, satisfactory alternatives are available. outcroppings, and estuaries) from the nearest public thoroughfare shall be protected and public vista areas shall be provided. b. Limit Seaward Extent of Oceanfront Develop- ment. To protect existing views in developed areas, new oceanfront area 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 155), and (2) such development is in accordance with other policies of the Coastal Plan. g. Design Guideline: Upland Terraces and Plains. 51. Design Guideline: Scale, Height, Materials. Structures located in open grassland areas and Colors. Except as provided in Policy 47(a), where they would be highly visible shall be development either shall be visually compatible minimized in number and clustered near with the character of the surrounding attractive existing natural or manmade vertical features, area or shall enhance the quality of areas that and development on upland hilltops and ridges have been degraded by existing development. COASTAL APPEARANCE AND DESIGN * 73 Materials and colors used in coastal construction a. Minimize Landform Alterations for Permitted shall be selected for compatibility both with the Developments. Landform alteration for building structural system of the building and with the sites, access roads, and public utilities shall be appearance of the building's natural and manmade minimized by (1) concentrating development surroundings. Pre-set architectural styles (e.g., on relatively level areas so that steeper hillsides pseudo-Spanish mission and standard fast-food can be left undisturbed, (2) designing struc- restaurant designs) shall be avoided. tures to fit hillside sites rather than altering the landform to accommodate buildings de- 52. Design Guideline: Landscaping. Except as signed for level sites, (3) waiving minimum provided in Policy 47(a), plant materials shall be street-width requirements and using one-way used to integrate the manmade and natural envi- circulation systems so that necessary hillside ronments, to screen or soften the visual impact roads can be as narrow as safely possible and of new developments, and to provide diversity in can conform to natural topographic contours, developed areas. In new development, existing and (4) prohibiting new buildings and their attractive vegetation shall be protected and plants support facilities (such as road and utility similar in habit, form, and water requirements expansions) that would require grading, cutting, to vegetation common to the particular coastal or filling that would significantly and perma- region shall be used as the predominant additional nently alter the appearance of natural landforms. landscaping material in order to reduce the need for irrigation systems and extensive maintenance programs. b. Restore Natural Contours. After any permitted temporary alteration of natural landforms 53. Design Guideline: Alteration of Natural Land- during construction, timber harvesting, or forms. The visual destruction of natural landforms mineral extraction, the topography shall be caused by cutting, filling, grading, or vegetation restored to as close to the natural appearance removal shall be minimized, and the following as possible, and the area landscaped in accor- guidelines shall apply, except as provided in dance with Policy 52. Policy 47(a): South of Shelter Cove, Mendocino County 0~ --- ""'""'~-J 74 * PART II: FINDINGS AND POLICIES 54. Design Guideline: Signs. Signs and billboards shall not be allowed to block significant coastal views, cause visual clutter that conflicts with the ordered design of coastal communities, or detract from the natural beauty of the coast. Cities and counties, as part of their design procedures and standards shall develop sign ordinances applying the following guidelines. Until these ordinances have been enacted, the guidelines shall be applied by the coastal agency to specific coastal areas that can be seen from principal coastal access roads, trails, and railroads along the coast, and from major lateral transportation corridors with views of the coastline, except as provided in Policy 47(a). a. Ban Off-Premise Commercial Signs. New off- premise commercial signs (those that do not advertise a use being made of the premises, the name of the owner or use, or a product, service, or entertainment available on the premise) shall not be permitted. After a suitable amortization period not to exceed 10 years, existing off-premise signs shall be removed. b. Alternatives to Commercial Signs and Bill- boards. In place of off-premise commercial _ , S,. signs, coastal communities could provide alter- - native means for informing the public about commercial services and products available in the communities. These alternatives could North of San Diego include low-power radio broadcasts or local radio station programs and spots designed for standards except as provided in Policy 47(a) or travelers, and kiosks or other well-designed, where immediate compliance would be infeasible: integrated displays at roadside turnouts near major community entrances. The California a. Avoid Duplication of Facilities. Utility distri- Department of Transportation shall cooperate bution and transmission facilities shall be in designing and erecting attractive signs to designed as a coordinated system to avoid alert travelers about these informational dis- unnecessary duplication. plays and in providing roadside turnouts. b. Undergrounding of Distribution Facilities. c. Design of On-Premise Commercial Signs. New distribution facilities and service con- On-premise commercial signs, for identification nections shall be placed underground except and information purposes only, shall be de- where undergrounding would be inconsistent signed as an integral part of the structure they with sound environmental planning or where are identifying, shall complement or enhance the cost of undergrounding would be so high the appearance of the surrounding area, and as to deny service. Cities and counties shall shall not block coastal views. develop programs for undergrounding existing distribution facilities and service connections d. Design Few, Simple, Harmonizing Information in scenic and highly visible coastal areas as and Direction Signs. Public information and part of subsequent planning (see Policy 161). direction signs shall be of a simple, easy-to-read design, shall make use of materials and colors c. Undergrounding of Transmission Facilities. that harmonize with surrounding elements, and New and existing transmission facilities (i.e., shall be as few in number as possible. powerlines of more than 40 KV) within highly scenic areas (as identified in Policy 45)shall 55. Design Guideline: Utility Structures. The be undergrounded where feasible in accordance visual degradation of the coastal landscape caused with a program developed jointly by the coastal by power and communication lines and towers agency and the California Public Utilities shall be minimized by applying the following Commission. COASTAL APPEARANCE AND DESIGN * 75 d. Design of Above-Ground Facilities Except facilities (such as power plants, sewage treatment where inconsistent with sound environmental facilities, solid waste disposal facilities, water planning, new above-ground transmission storage tclnks, pumping stations, power and corn- facilities shall (1) follow the least visible route munications substations) and major industrial and (e.g., canyons, tree rows, and ravines), commercial facilities (such as manufacturing plants (2) cross ridgelines at the most visually unob- and shopping centers) that do not require water- trusive locations, (3) follow, not compete with, or oceanfront locations shall not be located in either natural features of the terrain or man- the oceanfront area unless there is no less environ- made features in developed areas, and (4) be mentally damaging alternative. Wherever located, well designed, simple and unobtrusive in these facilities shall be designed in a manner appearance, have a minimum of bulk, use the that is compatible with the surrounding natural minimum number of elements permitted by landforms and manmade environment (e.g., by good engineering practice, and make use of use of harmonizing colors, textures, and massing colors and materials compatible with local or by undergrounding). Where safety, noise, or surroundings. other functional considerations make it impossible to integrate public service or industrial facilities into the community structure, they shall be 56. Design Guideline: Major Public Service, screened from public view (by use of natural Commercial, and Industrial Facilities. Except as terrain and vegetation or buffer areas and artif icial provided in Policy 47(a), major public service screening). COASTAL 0 DEVELOPMENT DEVELOPMENT AND NATURAL RESOURCES Findings *� coastal streams vital to anadromous fish runs and con- tinued sand supply to the coast, Natural Resources Support Human Life and Uses of the � natural areas that should be preserved for future scien- Coast. Valuable natural resource areas of the coastal tific study, education, and public enjoyment, zone have been identified in preceding Plan chapters. * habitats of rare and endangered species of animals and These finite resources, which often extend inland farther plants than 1,000 yards, support human life and make possible enjoyment and use of the coast. Such resources include: � agricultural (including grazing) and forestry lands, . wetlands and estuaries, � mineral deposits, * tidepools, � clean air, Pacific Palisades MY' w" ~~~~ f 7 -I'd- ~ " '' e F~~~~~~~~~~~~~~~~~~~~~~.hl: +!m COASTAL DEVELOPMENT. 77 * sandy beaches and dunes, complement the resource values of the site (such * recreational lands and waters, and as farm residences) or allow for compatible recrea- * highly scenic areas and coastal landforms. tion use (such as horse stables and riding facilities, dude ranches and summer camps, outdoor recrea- tion, fishing and hunting preserves, and small- Policy scale tourist facilities to the extent that the need for them outside already developed areas can be 57. Design Development to Complement Natural demonstrated). If no other use is feasible or and Scenic Resource Areas. In natural and scenic appropriate, individual homes may be permitted, resource areas other than those designated for provided that minimum acreage and siting require- maintenance in agricultural or forestry uses (see ments are first established in accordance with Policies 30-34 and 38) and where some develop- the resource preservation and scenic view policies ment may be allowed consistent with the resource of the Coastal Plan, with particular regard to the protection and access policies of the Coastal Plan, cumulative impact of potential development in the first priority shall be given to activities that area for which the requirements are to be adopted. SPECIAL COASTAL COMMUNITIES AND NEIGHBORHOODS Findings * The town of Bolinas in Marin County, and * The towns of Mendocino in Mendocino County and Ferndale Certain Small Towns and Neighborhoods Within Large Urban in Humboldt County. Areas Are Significant Coastal Resources. Certain communities and neighborhoods have special cultural, historical, archi- Careful Development Is Required to Complement the Distinc- tectural, and aesthetic qualities that are as important to tive Qualities of Special Neighborhoods. As recreational the coastal zone as are its natural resources. These areas and visitor attractions and as an integral part of the experience are resources either because they have a physical coherence of the coast, distinctive coastal neighborhoods are of value that complements the visual character of the coastal zone, to their residents and the public at large. Maintaining their or because they provide significant opportunities for access qualities is dependent on maintaining the prevailing scale to the coast through pedestrian orientation or through the and mix of development. In some areas large-scale con- provision of housing and recreation-oriented commercial dominiums, townhouses, highrises, shopping centers, and facilities in a broad price range. motel developments are replacing architecturally interesting and lower-density, smaller-scale uses, destroying special Special Characteristics of Such Coastal Areas. These resource places and neighborhoods, displacing lower-income residents areas include both small coastal towns and coastal neighbor- in favor of the more affluent, and increasing the level of traffic hoods in larger cities that are characterized by orientation congestion in the community for residents and visitors alike. to the water, usually a small scale of development, pedestrian use, diversity of development and activities, public attraction and use of facilities, distinct architectural character, historical significance, or ethnic or cultural characteristics sufficient Policy 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 Cityof San Diego and the community of Encinitas in San Diego County, munities and Neighborhoods. The unique cultural, historical, architectural, and aesthetic qualities of � The Naples area of Long Beach and the Venice area of the City of Los Angeles, special coastal communities (e.g., La Jolla, Carmel, Mendocino) and neighborhoods that contribute to � The Pierpont Beach area of the City of Ventura, i nt Ba ara C nt , the enjoyment of the coast shall be protected and, * Summerland in Santa Barbara County, where feasible, enhanced. New developments � Morro Bay and Cayucos in San Luis Obispo County, shall not be allowed to significantly detract from � Carmel in Monterey County, the special qualities of these areas. The protection 78 * PART II: FINDINGS AND POLICIES this policy offers may not be used in any way for exclusionary purposes. a. Identification of Special Communities and Neighborhoods. The special qualities of coastal communities and neighborhoods, although hard to define with precision, nevertheless exist in a limited number of places and include the "YE ___. following: (1) areas characterized by a par- ticular 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 with small-scale and limited automobile traffic providing opportunities for pedestrian and bicycle access for visitors to the coast; (4) areas having a physical scale con- sistent with and complementary to coastal land- forms or having a particular physical coherence that adds to the visual attractiveness of the coast for residents and for the general public travel ing to the coast; (5) areas that provide a diversity of coastal housing opportunities, particularly for low- and moderate-income persons and the elderly; or (6) areas within walking distance of a beach with generally 20 per cent of all parcels in either small-scale hotel-motel or beach- oriented commercial uses. Normally such coastal neighborhoods and communities will I be within walking distance of the coastline - roughly 1,000 yards - but in some cases they McCallumHouse(inn),Mendocin may extend further landward. shall be consistent with the local community scale in size and shall not necessarily be con- b. Community Participation. As part of the centrated in any one village or location. subregional or local coastal planning process (see Policies 161 and 162), residents of a coastal e. Design Guidelines. Permissible new or expand- neighborhood or community, perhaps organized ed development shall be designed to be com- in community advisory committees, shall assist patible with the special values and character in determining the particular values of their of the community and shall avoid the over- area and how new development can be con- crowding of access roads and local streets. sistent with them. Development shall (1) strengthen the physical form of the community or neighborhood, c. Restrict Inappropriate Development. Develop- (2) enhance and restore visual qualities by ment out of scale, size, or social character shall being of a bulk, height, and color that is com- not be allowed in designated special commu- patible with the existing character, (3) harmo- nities and neighborhoods. In determining the nize with the essential design characteristics appropriateness of a proposed development, that distinguish the place from other commu- consideration shall be given to intensity of use nities (e.g., a rustic weathered or whitewashed (e.g., lot size, unit size, residential composition, appearance of the waterfront), (4) protect ocean height, bulk), pedestrian accessibility, open views from many vantage points, and (5) pro- space, economic and social factors, and the vide for maximum pedestrian circulation and cumulative impact that potential development shoreline access. Motels in rural coastal shoreline access. Motels in rural coastal would have on an area's resources. villages, for example, shall be unpretentious d. Coastal-Dependent Development and Access in appearance (stereotyped motel-chain archi- Facilities Desirable. Considerations of appro- tecture shall be prohibited) and shall feature priateness of development shall not preclude some small separate structures rather than coastal-dependent development or coastal large bulky facilities so as to complement the access and visitor-serving facilities. In coastal detached homes and small commercial buildings villages in rural surroundings, visitor facilities that characterize most such villages. COASTAL DEVELOPMENT � 79 ORDERLY, BALANCED DEVELOPMENT CONCENTRATING DEVELOPMENT IN URBAN AREAS Findings Findings Properly Located High-intensity Development Can Absorb Some Demand for Coastal Land. High-rise office buildings, large apartment and condominium buildings, shopping Priorities Are Needed Among Competing Coastal Zone Uses. complexes, amusement parks and tourist attractions, and The coast is an extremely desirable place to live, work, similar high-intensity developments in appropriate areas and play. In the past 30 years, California's population has of cities can, if properly designed and located, absorb a tripled to more than 20 million; 85 percent of this population substantial portion of the demand for those purposes lives within 30 miles of the coast, and 64 percent within that is now directed at older residential neighborhoods, the 15 coastal counties. In San Diego County, nearly open space areas, and other resource areas in the coastal 56 per cent of the population lives within 5 miles of the coast. zone. In addition, such high-intensity development near Pressures for all types of development on or near the coast the coast, especially in existing downtown areas, could at are high and can be expected to increase due to increased the same time enhance the viability of mass transit and leisure time, mobility, changing life styles, and immigration reduce the consumption of energy used for heating and from some inland communities. The finite resources of the cooling because of the milder climate of coastal areas. coastal zone cannot, however, accommodate all the pressures High-intensity development could also take up some of for development and change and still meet the needs of the presently underused capacity of many sewer and present and future generations for recreation, production water systems without the need for costly new expendi- of agricultural crops, and the enjoyment of unique coastal tures for public services and, by being located in existing experiences. Therefore, priorities must be established urban areas, avoid the extension of growth-inducing services among competing uses of the coast, to assure orderly, to open space or resource areas. balanced use and preservation of coastal zone resources. Concentrating Development Enhances Use of the Coastal Zone. If development is prevented from sprawling over large land areas by being channeled to already developed Policies areas (where public services exist), and by increasing the intensity of development in some areas consistent with the objectives of the Coastal Plan, the following advantages 59. Concentrate Development in Already Deve- over sprawling development will often result: loped Areas. New residential, commercial, � Natural, agricultural, and other coastal resources will be industrial, and institutional development shall be preserved for the economic benefits and human enjoyment channeled into existing developed areas able to they provide; accommodate additional development, areas � A desirable contrast and diversity between city and suitable and planned for redevelopment, or in country will be maintained; areas determined in subregional or other approved � Air pollution and energy needs will be diminished because implementation plans (see Policies 161 and 162) of shortened trips and the increased feasibility.of public to be consistent with the goals set forth in the transportation; findings above. (The developed areas delineated � Duplication and costs of public services will be reduced in Part IV of the Coastal Plan are shown for general by utilizing services already in place; reference purposes and not for purposes of � Opportunities for increased physical and visual access applying this policy. The precise designation of to the coast for all people will be increased; where growth should beconcentrated consistent � Options for the future will be preserved by setting aside with Coastal Plan policies shall be as shown in larger areas of land for potential future uses; approved Regional Supplements, subregional � Irreversible and irretrievable commitments of land in- plans, or local coastal plans.) To this end: consistent with the Coastal Plan will be avoided; and a. Use Developed Areas Effectively Before � Existing downtown areas that have declined as a result A E pa A ln Cat e re of suburban sprawl will be revitalized. of suburban sprawl will be revitalized. Allowing Expansion Along Coast. New resi- dential, commercial, industrial, and institutional Growth Can Be Accommodated Away from the Coastline. development shall not be permitted to sprawl, There are many alternatives to intensive urbanization of project by project, into open areas. Expansions the shoreline and nearcoast area. Many existing urban areas inland from the coast could accommodate such growth of existing developed areas (other than expan- without degrading coastal resources. sion on the inland side of the community) shall 80 � PART II: FINDINGS AND POLICIES New subdivision, Half Moon Bay not be allowed until thelandresourceswithin shall be channeled towardsexistingdowntown theexistingdevelopedareasareeffectivelyused. areas and other areas within and outside of b. Locate Visitor Facilities Near Existing Develop- the coastal zone where: (1) development would ments. Visitor-serving facilities shall be located not adversely affect coastal resources or coastal in or adjacent to some existing developed areas access; (2) mass transit capable of serving the consistent with thcommunityscale objectives development already exists or is planned and of Policy 58, in existing isolated developments funded; and (3) development pressure on (such as Sea Ranch and Timber Cove), and resource areas is relieved through enforceable at selected points of attraction for visitors development restrictions . such as as at the entranceto Point Reyes National e. Restrict Significant Developments in Areas Seashore). Removed from Employment and Commercial Centers. Major new residential, commercial, c. Concentrate Commercial Development. Con- institutional or industrial developments or mercial development shall be located where other traffic-generating uses in locations travel conf I icts between residents and coastal removed from employment and commercial visitors are minimized. To this end, general serviceareasshall bepermitted only if (1) the commercihal development such as shopping project will be adequately served by public centers shall, wherever feasible, be located transportation that reduces pollution, total where local residents may ttravel to suchtransportation that reduces pollution, total where local residents may travel to such vehicle mileage, and e nergy consumption (such developments without driving along temajor a tas buses); or (2) the project will not contribute routes to and along the coast. Existing general directly or cumulatively to significant degra- commercial developments that cause significant dation of air quality and will not result in un- adverse impacts on coastal access shall be necessary fuel consumption. Determinations relocated to areas consistent with this policy of air quality impact and fuel consumption shall whmmere possible. ment shof a ir quality impact and fuel consumption shall where possible. include consideration of distances to employ- d. Channel High-Intensity Development to Appro- ment and service centers and alternative priate Areas. High-intensity development locations for such developments. comria eeopet ha as sgiian aio far ult adwl ntrsl.i n COASTAL DEVELOPMENT � 81 f. Plan Development to Reduce Auto Dependence. of surrounding parcels; (3) no significant growth- New development shall be planned to: (1) facili- inducing impact or precedent for development in tate provision or extension of transit service, a natural resource or scenic resource area would (2) provide commercial facilities within or be established by the division; (4) the division adjoining residential development to minimize would not restrict future options for productive the need for outside travel, and (3) provide lands or lands of significance because of their non-automobile circulation within the develop- scenic, wildlife, or recreational values; and (5) all ment (e.g., shuttles, bikepaths, and walkways). public services are readily available. (See also Policy 36 regard i ng agricul Itural lands and Policy 38 60. Criteria for Divisions of Rural Land. The regarding forestry lands.) Where an increase in division of land outside areas designated for con- the number of parcels available for residential centrating development (see Policy 59) shall be use is permitted, priority shall be given to lands permitted either if it is in accordance with in or near already developed areas. This policy an adopted subregional or local coastal plan or, shall not be interpreted to require development in the absence of such an approved plan, if of parcels that would adversely affect coastal all of the following conditions are met: (1) more natural and scenic resources. This policy shall than 80 per cent of the usable lots in a non- not apply to areas where 80 per cent of the land urbanized area have been developed to existing within a half-mile radius of the proposed division zoned capacity; (2) the parcels resulting from the of land is developed to a density of two units division would be no smaller than the average size per acre or more. PROVISION OF PUBLIC SERVICES Findings expanded only to the extent that the location and amount of development and population that the Public Services Availability Influences Development. The systems will potentially serve is consistent with type, size, timing, and location of providing public service other Coastal Plan policies. Similarly, special and transportation facilities, such as roads, water, and districts or local governments shall not be formed sewers, are major determinants of the pattern of land use. Their availability, or lack thereof, often directly en- or expanded except where assessment for and courages or discourages development. Extending urban provision of the service would be in accord with services into coastal recreational, agricultural, and wildlife these policies. Where the physical effects of the areas would make possible development that might not expansion of the public service system itself are otherwise occur. Excessive expansion of services in already- in conflict With Coastal Plan policies, service developed areas can result in additional development to the extent of creating unwanted congestion and impeding system expansion shall not be permitted, and public access to the coastline. Programming service provision development shall be regulated to assure that in accordance with land use objectives is necessary for the capacity of the existing service system is not balanced and orderly development. exceeded. Plans for major sewer, water, and road systems and assessment districts with the potential for adverse effects on coastal resources or access Policy shall be reviewed by the coastal agency for confor- mity with the Coastal Plan. (See also the Coastal Land Environment section on Coastal Streams and 61. Regulate New or Expanded Public Service Watershed Management, regarding water supply and Transportation Facilities. Public service and systems; the Transportation chapter regarding transportation facilities, especially sewer and transportation facilities; and Policy 56, regarding water systems and roads, shall be provided or siting and design of major public facilities.) 0 82 * PART II: FINDINGS AND POLICIES COASTAL-DEPENDENT AND INDUSTRIAL DEVELOPMENT Findings have priority over other development on or near the shoreline. Where coastal-dependent industrial, Coastal-Dependent Developments Require Oceanfront Area commercial, and recreational developments (such Sites. Some developments are "coastal-dependent" in that as ports, yacht basins, certain mineral extraction they must have an oceanfront area site to be able to function activities -such as salt evaporation or special at all. These include fishing, aquaculture, and port facilities, grades of sand for glass) would have a substantial extraction of coastal minerals (e.g., sand and offshore pe- troleum), tanker terminals, boat works and shipyards, adverse effect on coastal resources, they shall be and marinas. permitted only if (1) alternative locations are either infeasible or more environmentally damaging; (2) a Industrial Developments May Have Special Siting Require- careful balancing of environmental effects against ments. Although obviously essential to the State's economy, industrial developments can have major impacts on the coast, consuming valuable lands, intruding on the visual qualities made, with irreversible environmental damage of the coast, interfering with access, and affecting air and weighing heavily in the comparison; and (3) the water quality. Locations for industry must take into account environmental damage is mitigated to the maxi- these impacts on the coastal environment. In addition, mum extent technically feasible in the design and planning for industrial sites should take into account safety concerns and growth-inducing effects. execution of the project. (See also relevant policies in the Coastal Land Environment, Recreation, Transportation, and Energy chapters, and Policy 153 requiring restoration measures for develop- Policies ments that degrade coastal resources.) 62. Give Priority to Coastal-Dependent Develop- ment. Coastal-dependent developments, which 63. Criteria for Location of Industrial Develop- by their very nature require acoastal site, shall ment. Industrial development shall be concen- Power Plant, Morro Rock .z IT J_ 11j Aa Ng COASTAL DEVELOPMENT � 83 lities (except for coastal-dependent industry as provided in Policy 62) shall not adversely affect en- COASOLINEH vironmentally sensitive coastal resources, highly m un.ISTR~lk~nbBf nAscenic areas, and manmade resources. All poten- InuuS I nnL PARI tentially hazardous industrial activities or other R4 PARCELS:l XPPScifio~oast~in y 4 :industrial development that Coastal Plan policies iZNED M2 ARCELS8 643"i9931 have determined cannot be located in already- 2953 TELEGRAPH ROAD. VENTURA developed areas (e.g., possibly liquefied natural gas plants or nuclear power-generating facilities) shall be sited a safe distance away from population Near VentUra centers. All potential industrial sites in such areas trated in already developed areas unless public shall be used to the maximum extent feasible health or safety requires other locations as pro- (subject to safety requirements) prior to the vided in the Energy chapter. New industrial faci- commitment of any new areas. DEVELOPMENT IN HAZARDOUS AREAS Findings development. Hazardous areas include: - Presently unprotected and undeveloped flood hazard areas; * Fault zones and other areas of high seismic risk; Certain Coastal Areas Are Hazardous for Development. * Tsunami (seismic sea wave) run-up areas, and 0 p Certain types of land areas are hazardous for development * Unstable soils, slopes, coastal cliffs, and bluffs subject to and this should be taken into account in locating future landslide and mudslides. FLOOD-HAZARD AREAS Findings During flooding, floodplains augment the streambed's normal capacity and provide a temporary storage area for flood waters. Uncontrolled development in flood-hazard areas Coastal Stream Flooding Provides Several Benefits. Minor (i.e., 100-year floodplains) diminishes both of these functions. flooding is a frequent occurrence; major floods occur less frequently but unpredictably. Although the harmful effects Flood Damage Results from Poorly Conceived Uses of Flood- of flooding are well understood, people do not always realize plains and Flood-Hazard Areas. The lossof lifeand property that the beneficial role of floods on coastal streams include: damage caused by floods is due in large part to man's poorly � the maintenance of salmon and steelhead spawning grounds; conceived uses of floodplains. Because clearing of vegetation * the continued supply of beach sands; and surface paving of areas reduce the porous surface area, they can contribute to the intensity of flooding. Buildings, * the removal of vegetation choking the river channel, bridges, and other obstructions back up the flood water until restoring the channel's capacity to contain minor flood flows; those obstructions are swept away. Demolished structures � the long-term deposition along the floodplain of sediments may then contribute hazardous debris and pollution down- that provide highly fertile soils; stream. The cumulative effect of many small structures reduces the floodplain's storage capacity. Along with changes . flushing of undesirable salts from the surface layers of in hydrologic characteristics of the watershed, such reduction may increase velocity of flood waters, thereby diminishing � the preservation of valuable plant communities on overflow seepage necessary for groundwater recharge. Flooding may lands, such as giant redwood groves. also destroy valuable habitat areas and kill wildlife. 84 * PART I1: FINDINGS AND POLICIES Necessity to Restrict Development in Flood-Hazard Areas Is as sand supply and anadromous fisheries, develop- Increasingly Recognized. In the past, emphasis has been on ment in flood-hazard areas shall be regulated flood control projects that often ignore the beneficial aspects as follows: of floods. Public policy now recognizes that many floodplains should not be developed in a waythat requires construction a. Criteria for New Developments in Unprotected of costly public-financed flood protection works, and that Flood-Hazard Areas. Only new developments allowable uses should be those that can endure periodic flooding and not contribute to the flood hazard. Under the that can sustain periodic flooding and that will Flood Disaster Protection Act of 1973 (PL 93-234), the flood not create public burdens byaggravatingthe insurance program of the Department of Housing and Urban flood problem, impeding floodwater storage Development (HUD) offers incentives and will soon implement capacity, or increasing pressure for new flood sanctions to encourage local governments to restrict uses in control projects shall be allowed in presently identified flood-hazard areas. On the State level, the Cobey- Alquist Floodplain Management Act now requires establish- unprotected flood-hazard areas (those subject ment of floodplain regulations as a condition of State contri- to inundation by a 100-year flood), consistent butions toward the cost of lands, easements, and rights of with the existing Federal insurance program. way for local flood control projects. Examples of permissible uses include agri- culture and recreation, with necessary inci- Costly Flood Control Projects Can Be Avoided by Floodplain dental structures. Controls. Substantial public funds can and should be saved by early planning that permits acquisition of right-of-way b. Restrict Use of Flood-Hazard Areas during before land costs escalate and by land use regulations that Flood-Prone Periods. During flood-prone eliminate the need to build costly protective structures. periods, flood-hazard areas shall not be used Additionally, flood insurance premiums and federally sub- for log decks or storage of materials that can sidized insurance costs can be reduced by preventing inappro- priate floodplain uses. Because flood-hazard area policies (or be carried downstream by flood waters unless lack of policies) in one community can endanger communities mitigation (such as anchoring devices or berms) at far distant points, consistent application of flood-hazard is adequate. area policies throughout a watershed is needed. c. Review Inland Flood-Hazard Area Projects That Could Affect Coastal Zone. It is recom- mended that the Legislature establish pro- Policy cedures to ensure opportunities for public review of proposed inland flood-hazard area 64. Restrict Development in Flood-Hazard Areas. projects that could adversely affect lives and To avoid the need for new flood control works property in the coastal zone. (See also Coastal and interference with natural watershed processes Land Environment section on Coastal Streams that would adversely affect coastal resources such and Watershed Management.) GEOLOGIC HAZARD AREAS Findings 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. Four Major Geologic Hazards Pose Substantial Risks to Human Life and Property. The four major geologic hazards in the California coastal zone are: (1) earthquakes (ground EARTHQUAKES shaking, rupture, or liquefaction); (2) tsunami (seismic sea waves) and storm waves; (3) landslides and mudflows; and (4) bluff and shoreline erosion, including loss of beach Earthquakes Are Common in the Coastal Zone. Much sands. All of these may involve substantial risks to human earthquake activity in California occurs within the coastal life or property. Subsidence of land areas can also pose zone, which is part of the earthquake-prone belt extending major problems for development. Development that inter- aroun'd the rim of the Pacific Ocean. The coastal area feres with or ignores these natural geologic processes may contains many complex fault zones. Ground shaking and impose direct or indirect danger and costs on the public liquefaction of certain soil materials (especially fill) can and accelerate or aggravate long-term natural geologic cause tremendous damage in addition to the rupture at the COASTAL DEVELOPMENT * 85 fault; however, proper engineering can overcome some of the Federal Flood Insurance Program (in part based on earlier these hazards. work by the U.S. Geologic Survey). The State Division of Mines and Geology has outlined general areas vulnerable Earthquakes Are Unpredictable. Almost every section of to tsunami along the coastline. Local and regional studies the coastal zone has experienced earthquakes with various are often available to augment this information. 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, LANDSLIDES seismic activity is virtually certain, but it may not occur for centuries. Similarly, the absence of any high-intensity Many Landslides Occur in the Coastal Zone. Much of shock in any area in the past 175 years does not rule out the landslide activity in California occurs in the coastal earthquake possibility. zone, due to the instability of the prevailing rock units and the steep-canyon topography of the coastal ranges. Definitive Studies of Earthquake Hazard and Probability Many types of landslides, both ancient and recent, are Are Lacking. Definitive studies of earthquake hazard and observable, including rock falls, slides, and slow and fast probability are lacking. The technology of data collecting, mudflows, but many have been obscured by erosion and processing, and interpretation, although rapidly improving, subsequent vegetation growth. Landslides and fast mud- is still in a state of development. Only the areas of recent flows are caused by earthquake ground shaking, unstable high-level earthquake activity have been intensively studied. rock formations, supersaturated ground material, torrential Instrumentation and seismic theory itself is in the process rainfall, and poorly planned development of landslide- of continual revision. Maps of active fault areas only mdi- prone areas. (For example, building on steep slopes. cate a portion of the earthquake-prone areas in the State. especially involving cuts and fills, may increase landslide Many earthquakes occur in previously unmapped areas. risk if not properly planned). Potential Earthquake Damage in the Coastal Zone Is Great. The scale of earthquake shaking hazard is indicated by Fast Mudflows Are Also a Problem in the Coastal Range. the California Division of Mines and Geology projection A special problem in the California coastal range is the of $21 billion in damage statewide between 1970 and 2000 potential for fast mudflows on canyon walls and on alluvial if the present rate of losses continues into the future. A plains or canyon mouths. The potential for these mudflows large amount of this damage would occur in the coastal zone. 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 TSUNAMI AND SEA WAVES Old coastal highway, Princeton, San Mateo County 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; for example, large waves followed the 1964 Alaskan earthquake. Nearshore earthquakes can -- generate localized tsunami, such as the Santa Barbara Channel event of 1812. Much damage can also occur as a result of waves and winds during great storms, as for . . . . example the storm of February 1960 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. Susceptibility to Tsunami Varies Along the Coast. Tsunami damage recurs in certain areas of the coast more than in : others, because waves may befocused by the configuration .,,-; of the ocean floor. Generally, the coast north of Point Con- ception is more susceptible to Pacific Ocean events, while areas such as Santa Barbara and Santa Monica are more Am' susceptible to locally generated tsunami. Crescent City on .; the north coast has been repeatedly damaged. Areas from Santa Barbara to San Diego suffered minor damage from e __ _: the great waves of 1964. These tsunami struck the southern - coast at low tide; had high tide prevailed, damage mi g h t ghti have been greater. . Identifying Areas of Probable Tsunami Risk Can Aid Land : Use Decisions. Assessment of tsunami hazard on the , .a " , California coast is based on a brief and partial history. N o P,- such assessment can anticipate future extraordinary events. ' However, identifying areas of probable tsunami risk can " L 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 86 * PART II: FINDINGS AND POLICIES stabilization of these flow-prone areas is virtually impossible. Common Types In spite of this, these sites are often developed and suffer from later damage (for example, Topanga Canyon in southern of Landslide California and the Big Sur area in central California). If the Adapted from Nilsen and Brabb, 0 present rate continues, for the 30-year period after 1970 1972, in Sorensen et al., Landslide landslide damage statewide is expected to total $10 billion, Hazard in the United States. according to a projection by the Division of Mines and Geology. Much of this will occur in the coastal zone. ROCKFALL - rock mass falls, sometimes slides or tumbles. Slope Stability Hazards Can Be Minimized by Mapping and Regulation. 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 mini- mizing slope stability hazards. At present, both mapping and regulation are incomplete within the coastal counties. Mapping has often been undertaken only when intensive development is contemplated and landslide hazard is sus- pected; however, the Division of Mines and Geology has or 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 DEBRIS SLIDE - incoherent or areas indicated to be hazardous. broken rock slides along underlying surface. SUBSIDENCE Subsidence Is Also a Hazard in 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 (primarily from overdraft of subsurface liquids such as water and petroleum); can break or shift many structures, such as buildings, trans- mission 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 greatest amount of subsidence in the coastal zone. The Division of Mines and SLUMP - mass moves by rotation- . Geology estimates that statewide losses due to subsidence al slip on underlying and penetrat- will total $26 million between 1970 and the year 2000 if current ing surfaces. practices are continued. Continuous monitoring of surface elevation changes and associated horizontal movements is necessary for early detection of subsidence. (See Policy 83[g] regarding measures to minimize subsidence hazard in petroleum extraction operations). Legislation to Expand State Geologic Hazards Program Has Been Recommended. The Joint Legislative Committee on Seismic Safety in January 1974 recommended several measures, including (1) broadening the provisions of the Alquist-Priolo Act (which presently is limited to concern about construction on or near certain active fault traces) to include all major geologic hazards and to cover State and Federal, as well as local and private, projects; and EARTHFLOW - soil and water (2) assigning responsibility for setting criteria for and re- moves downslope like a viscous viewing land use policies related to geologic hazards to an effective State agency able to work with local govern- ments. Legislative response, however, has been incomplete. In 1974 the Seismic Safety Commission Act was enacted, establishing a Seismic Safety Commission, which is develop- ing valuable information through the strong-motion instru- mentation program and will make further recommendations. .* . / 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 Legislature in 1974 but vetoed by Governor Reagan. COASTAL DEVELOPMENT * 87 Policies the large amount ot pertinent data on geologic hazards being developed by such agencies as the State Division of Mines and Geology, U.S. 0 ~ ~~~~~~~~~~~~~~Geological Survey, National Ocean Survey, 65. Improve Statewide Geologic Safety Measures. U.S. Army Corps of Engineers, the Seismo- Measures to ensure geologically safe land use in logical Laboratory of California Institute of California and particularly within the coastal zone Technology, local governments, universities, are necessary to protect the public. To this end: colleges, and private organizations. This infor- a. Improve Local Government Geologic Hazards mation shall be fully utilized in the formulation Programs. Local governments' seismic safety of land use plans and building standards, elements of general plans, and planning, fund- and in development evaluations, including ing, and implementation of city and county septic tank and erosion control considerations, geologic hazards programs, shall be improved, affected by geologic conditions. It is recommended that legislation be adopted requiring local governments to: (1) adopt, im- plement, and enforce at a minimum Chapter 23, 66. Require Filing of Geologic Hazards Informa- dealing with earthquake-resistant design tion. Geologic hazards information developed requirements, and Chapter 70, dealing with by p ual if ied personnel and approved by an appro- grading requirements, of the Uniform Building priate governmental agency for specific areas or Code; and (2) conduct geologic evaluations and sites shall be permanently filed in the public require adequate engineering specifications to records of the coastal counties. The full reports determine to the extent possible site stability shall be cited and a summary of all relevant and structural safety for all proposed con- conclusions, understandable to the layman, shall struction projects and subdivisions that are in be included as part of the chain of title to property areas identified by appropriate governmental (and be a normal part of a title report) and also as agencies as being of high geologic hazard or part of the State Real Estate Commissioner's for projects that involve public service facilities report for subdivisions. and high-occupancy buildings (e.g., police and fire stations, schools and hospitals, major 67. Review and Regulate New Developments for utility and industrial structures, multi-story Geologic Safety. In coastal areas of high geologic residential and commercial buildings). hazard as defined below, all proposed structures b. Strengthen State Role in Geologic Programs. for human occupancy and other developments that It is recommended that legislation be enacted could significantly alter geologic processes or assigning, empowering, and adequately funding contribute to hazards shall be reviewed and the State Division of Mines and Geology or other regulated to avoid risks to life and property. appropriate State agency to: (1) designate a. Definition of High Hazard Areas for Develop- geologic risk areas; (2) recommend and, where ment. Areas of high geologic hazard include: necessary, impose appropriate land use and (1) seismic hazard areas delineated on fault building regulations related to the designations; maps as subject to potential surface rupture, (3) research and recommend appropriate on soils maps indicating materials particularly improvements to the Uniform Building Code prone to shaking or liquefaction, and in local to both the International Conference of Building and regional seismic safety plans; (2) tsunami Officials and local governments; (4) be res- runup areas delineated by U.S. Army Corps of ponsible for enforcing standards and site review Enier'10yarcuecempbotr for proposed State projects and for advisory Engineers'i o0-r hitrecsurrenc as, and otherknw review of Federal projects; (5) establish criteria sientfi or hitorcstudaiersk; (3andsld ohezrd known for local governments' specific review of deliease of sna rsk;opestabilide hapsard inrloca construction projects in hazard areas; and adrelioneate gonlope o stabilty mpsans; (4) blocal (6) review and approve local seismic safety and clf regoal geogiorsigafted pasns;tableu(se plans, land use policies, and building code andolicy7);()fec areas deigate are ustablec (se standards and enforcement for consistency erolicy70; ad(6) beaheargeogiasl thatzareduj ou with statewide designations and goals. Stateerso;ad6)thrglgilyhzrou funding assistance to the local government for areas designated by the Coastal Plan. disaster relief and other such programs could b. Project Review Procedure. Where such project be made contingent upon satisfactory geologic review is necessary, geologic and soils reports hazards policies and enforcement. The State of the site prepared at the applicant's expense agency shall also compile and distribute to all shall be required unless adequate and currently appropriate State, regional, and local agencies, applicable information is already available. Until 88 * PART II: FINDINGS AND POLICIES the statewide system recommended in Policy 65 developments that could contribute to potential is in effect, project review shall be by the coastal hazards, such as cuts and fills in landslide agency or an agency designated by it to carry areas, shall be permitted in high geologic out this function subject to independent review hazard areas only if site treatment and con- by the coastal agency within its area of juris- struction techniques (permissible in accordance diction. (For example, some local governments with other Plan policies) are adequate to are or may become adequately staffed and overcome the hazard. authorized to perform project review, and the f. Public Buildings in Hazard Areas. All existing Forestry Board may adequately review potential high-occupancy public buildings within areas hazards of timber operations). of high geologic hazard shall be phased out c. Division of Mines and Geology to Assist. It is or adequately protected as soon as feasible. recommended that the Legislature enable and g. Restrict Reconstruction in Hazard Areas. In fund the Division of Mines and Geology to serve locations where structures have been rendered in an official advisory capacity to the coastal unfit for human occupancy by geologic insta- agency to assist as necessary in project review. bilities, reconstruction shall be prohibited A review team shall be available, where unless geologic and engineering data on the necessary, with expertise in geology, seismo- site demonstrates that the proposed replacement logy, coastal processes, oceanography, soils structure will not be rendered unfit for human engineering, engineering geology, structural occupancy in the future by the same type of engineering, civil engineering, architecture, geologic event. landscape architecture or coastal botany, and building code enforcement. The team may 68. Prevent Public Subsidy for Hazardous Deve- include personnel from other State agencies lopments. While the standards set forth in as well as local experts. The coastal agency Policy 67 above shall be binding in the coastal may also establish advisory boards to supple- resource management area and are strongly ment this agency assistance. recommended for all areas of high geologic hazard statewide, it is recommended that State legislation be enacted to further assure that, if for any reason priate l and uses, such as agriculture, forestructures for human occupancy are built in priate land uses, such a graicultudre, forestry, high geologic hazard areas without precautions to sand and gravel mining, outdoor recreation, ssubstantially eliminate risk to life and property: and parking lots, shall be encouraged in all (1) there shall be no public assistance for such currently undeveloped areas of high geologic construction or reconstruction (e.g., FHA loans, publicly-financed service facilities, etc.) and no e. Criteria for Development in Hazard Areas. presumption of public liability for property loss Proposed structures for human occupancy or (e.g., disaster loans or forms of insurance borne Pacific Palisades, north of Santa Monica .1 arrr' k. " ACO~~~~~~~~~~~~~~ "o :9ria1 COASTAL DEVELOPMENT � 89 by the general public); and (2) all occupants and a plan shall include evacuation routes and an successor purchasers of such structures shall be effective emergency warning system capable of advised of the hazard and liability, adequately informing all residents and visitors of an impending tsunami occurrence. Based upon accumulated information, the Department of 69. Establish Safety Measures for Possible Navigation and Ocean Development shall establish Tsunami Occurrence. Communities within the and enforce standards for marinas and harbors, 100-year tsunami (seismic sea wave) runup zone including debris clearance and emergency eva- shall include within their safety elements a disaster cuation procedures, to reduce potential damage preparedness plan for a tsunami occurrence; such from tsunami ocurrences. BLUFFTOPS Findings Avoiding Extensive Protective Works Requires Control of Development. The best means of avoiding the many problems associated with construction of bluff protective Bluff Erosion Is Caused by Natural Processes and Human works, including public costs and visual impact on the Activities. The breakdown of seacliffs and bluffs by wave natural landforms of the coast, is to limit construction action is a natural and constant process, the rate of erosion on or near bluffs that might eventually require such works. depending on such factors as the resistance of the cliff Some additional protective works may be required, however, material, the conformation of the shoreline, the height of for certain public service facilities and for protecting the cliff, the erosion from upland areas, and the direction existing structures. 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 satu- ration from irrigation or other increased water runoff at Policy bluff tops, disruption of surface materials (for example, by foot traffic over bluffs), undercutting of the base, removing 70. Regulate Bluff and Cliff Developments for sand or rock materials that protect the base, loading by structures on the top, and improperly designed walls or Geologic Safety. Bluff and cliff developments stairways down the bluff face. Runoff water and saturation shall be permitted if design and setback are can be the major source of cliff and bluff erosion in many adequate to assure stability and structural integrity areas where landscaping and irrigated fields have been for the expected economic lifespan of the develop- permitted on bluff tops. In many cases, drainage could be ment and if the development (including storm directed away from the bluff to correct this problem. runoff, foot traffic, grading, irrigation, and septic runoff, foot traffic, grading, irrigation, and septic Natural and Artificial Measures Can Protect Bluffs. The tanks) will neither create nor contribute signifi- best natural defense of seacliffs against wave action is a cantly to erosional problems or geologic instability fronting beach that is both high and wide. Areas of seacliff of the site or surrounding area. Design solutions lacking natural protection can be preserved by artificial shall in no case include destruction of cliffs and means, such as construction of a beach seaward of the cliffs; armoring the cliff with rock or other non-erodible bluffs by excavation or other means. Bluff pro- material; construction of offshore reefs or breakwaters to tection works may be permitted only in accordance reduce wave energy that reaches the cliffs; and construc- with Policy 19. With that exception, no new lot tion of cliff retaining walls. shall be created or new structure built that would increase the need for bluff protection works. Bluff Protective Works Are Costly and Involve Problems. increase the need for bluff protection works. However, these measures can be extremely costly, may a. Expert to Evaluate Site Stability. The demon- be unsightly in the case of retaining walls, may interfere stration of stability shall include a report with access along the shore, may require continual sources prepared by a registered geologist, a profes- of sand for replenishment, and must be carefully engi- neered to avoid beach erosion and shoaling elsewhere sional engineer specializing in soils engineering, along the shoreline. A decrease in sand supply (especially and/or a certified engineering geologist acting affecting pocket beaches) also may result in some cases within their areas of expertise, based on an when artificial protective measures interfere with natural on-site evaluation. The report shall consider 5 bluff erosion processes. (1) historic cliff erosion, (2) cliff geometry, 90 � PART II: FINDINGS AND POLICIES (3) geologic conditions, including soil and rock characteristics, (4) landslides, (5) wave and Area of tidal action, (6) ground and surface water 50 Feet conditions and variations, (7) potential effects of earthquakes, (8) the effects of the proposed development including landscaping and drainage measures, 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 (of 10 feet in height or greater measured from the lifespan of the project. The report shall the toe of the cliff face) extending inland to use a currently acceptable engineering stability a line formed by a 20-degree angle from the analysis method and shall also describe the horizontal plane at the base of the cliff or bluff limitation in this professional judgment due (a 2.75:1 slope) or 50 feet from the top edge to assumptions and unknowns in the analysis. of the cliff, whichever is greater. However, The degree of analysis required shall be appro- the coastal agency may designate a lesser area priate to the degree of potential risk presented of demonstration in specific areas of known by the site and the proposed project; no signi- geologic stability (as determined by adequate ficant risk to human life shall be acceptable. geologic evaluation and historic evidence) or where adequate protective works already exist, b. Area of Stability Demonstration. As a general and may designate a greater area of demonstra- rule, the area of demonstration shall include tion and/or an area of absolute development the base, face, and top of all bluffs and cliffs exclusion in areas of known high instability. ENERGY ENERGY AND THE COAST Findings � To provide special terminals and onshore plant facilities for liquefied natural gas imports. California Coastal Zone Contributes to the State's Energy Coastal Plan Seeks to Protect the Coast Yet Provide for Supply in Several Ways. The land and water of California Needed Energy. A principal goal of the Coastal Plan is to coastal zone is now used, and can be used more to contribute protect, enhance, and restore the coastal environment while to the State's energy supply in five principal ways: also providing for energy facilities for which a clear public � To provide sites and ocean cooling water for power plants need and a need for siting along the coast can be shown. that generate electricity; Coastal planning does not seek to sacrifice the environment of the rest of California; little would be gained if a coastal � To provide sites for drilling, production, treatment, storage, area were to be saved at the price of even greater environ- and pipeline facilities for oil and gas operationsonshore mental damage inland. Energy planning for the coastal zone and on submerged lands beneath State and Federal must take into account estimates of State and national energy offshore waters; needs, strategies for reducing the need for coastal energy * To provide terminals to moor and offload tankers and barges development through energy conservation programs and bringing crude oil and refined products to California, application of alternative energy forms, and the environ- the region, and the nation; mental impacts of locating energy facilities in the coastal zone . To provide sites for oil refineries; and and inland. Demand and Supply Forecasts for Conventional Energy Sources. Primary conventional energy sources used in California are petroleum (crude oil), natural gas, hydropower, Energy and nuclear power. Based on present demand/supply fore- 42% > Sources (1970) casts (using traditional forecast methodology), demand for PETROLEUM these primary sources will exceed supply. 19.3;X ;UNITED STATES COAL National Petroleu Council, PETROLEUM SUPPLY AND DEMAND (National Petroleum Council, 34.4;' \U.S. Energy Outlook, 1971) NATURAL 3.9X Petroleum Demand Exceeds Supply. California petroleum GAS RO- demand at present outstrips in-State production, and the ELECTRIC deficit is likely to increase. 44 NUCLEAR 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 \PETROLEU requirements can be met by: � Increased development of onshore petroleum, including I ( R s e ICALIFORNIA increased exploration and expanded secondary and tertiary \ 40% �YD~EL I i lResources Agency, Energy recovery and development of the Elk Hills Naval Petroleum 40. ' HYDROELECTRIC in California, 1973) Eserg y \ NATURAL \ 1'COAL Reserve; IGAS -.7.NUCLEAR *� Development of State and Federal offshore petroleum Z3Z.GEOTHERMAL resources; and * Alaskan and foreign imports. 92 � PART II: FINDINGS AND POLICIES Increased on shore production offers the least environmental State's Crude Oil Production Fails to Meet Demand. California risk, but, except at Elk Hills, has a limited potential for crude oil production has steadily declined since 1968-69 from increasing supplies. New sources could require major new about 1,000,000 barrels per day in 1968to about 917,000 barrels developments in the coastal zone which could have substantial per day in 1973. In 1973, only 55 per cent of the crude oil for adverse environmental impacts. California refineries came from within the State; 31 per cent came from foreign sources and 14 percent came from other California's Role in National Petroleum Supply Needs states. Projections for 1975 indicate that California will furnish Updating. At present, California's only defined role in only 49 per cent of its own crude oil for refineries, with national energy supply is based on its historical and con- 41 per cent coming from foreign countires and 10 per cent from tinuing role within Petroleum Administration for Defense other states. If demandlsupply trends of the recent past District V (PAD V - California, Arizona, Nevada, Oregon, should continue, the portion of State demand satisfied by State Washington, Alaska, and Hawaii). Proposals currently exist, crude production would drop markedly by 1985. However, however, to make California a transfer point forcrudeoil because of possible demand growth reduction factors con- to be brought by tanker from Alaska and sent by pipeline sidered above and the potential for increased development of to the Midwest. California's potential recoverable onshore and offshore oil resources, a huge in-State deficit is by no means inevitable. California Is Heavily Oil-Dependent. Oil now accounts for more than 50 per cent of California demand for primary Alaskan Crude Oil Will Reduce Need for State Production and energy. The major oil requirements are for energy (electricity Foreign Imports. Much of California's future crude oil supply generation, agricultural and municipal water pumping, is expected to come from the Alaska North Slope project via industrial process heating, vehicle fuels, liquid petroleum pipeline and tanker, beginning as early as 1978. Although gas) and production of oil-derivative products. the Stanford Research Institute forecast in mid-1973 that oil from this source would amount to 600,000 barrels per day Present Oil Demand Growth Projections Foresee Increased per day in 1980, and 850,000 barrels in 1985, more recent Demand Levels. Leading studies on oil demand growth for information indicates that California could receive as much California completed during 1973-75 have forecast high oil as 1.2 million barrels per day beginning as early as 1978. demand growth (4-5 percent annually) because of: (1) a con- tinued decrease in the availability of natural gas; (2) failure of State Demand for Low-Sulfur Fuel Oil Exceeds Present Supply. nuclear plants to come on line as scheduled; and (3) a con- As natural gas supplies have recently been curtailed, the tinuation of pre-1973 gasoline consumption growth. However, short-term demand for fuel oil for use in industry and in such projections did not consider the significant potential for electric power generation has increased. State air quality demand growth reduction (to 2-3 per cent annually) from regulations require the use of low-sulfur oil when natural gas (1) increased oil prices, (2) conservation measures, and is not available. Much of California's crude oil is high in sulfur (3) accelerated development of alternative energy sources. content, and although several new projects are under con- Consequently a re-examination of traditional forecast as- struction or planned, California refineries presently lack sumptions and methodology is needed. adequate direct desulfurization capacity to meet low-sulfur crude oil demands. Therefore these demands must be met Oil Prices Increase May Reduce Demand. Since late 1973 either by import of low-sulfur crude for refining in California, foreign oil prices have risen abruptly by as much as 100 to or by import of refined low-sulfur fuel oil. 300 per cent, in turn forcing price increases in domestic oil and petroleum products. Such oil price increases, and the 1974 oil State Petroleum Planning Needs Better Coordination with embargo, have led to new emphasis on energy conservation Energy Planning. At present no State agency is responsible measures and alternative energy source development, and for planning petroleum-related development activities within may depress oil demand growth. A major effect of the price the context of a comprehensive program of energy develop- surge is to throw into question all public projections of demand ment and conservation in California. The State Division of Oil and supply of petroleum that pre-date the increase. and Gas forecasts petroleum supply and demand and drafts policies for petroleum development, but it does not directly Several Other Factors May Also Help Reduce Oil Demand determine policy for other sources of energy. The State Lands Growth Rate. Both the Federal Energy Administration and Commission makes decisions relating to development of the the new California State Energy Resources Conservation and petroleum resource underlying State-owned lands. The new Development Commission are specifically charged with State Energy Commission determines policy for power plant developing conservation programs to help conserve oil. The siting and energy conservation, studies petroleum supply and Coastal Commission is also required to conserve and manage demand, and recommends development and conservation coastal resources, including both energy resources and other policy, but under present law it cannot determine policy for coastal resources that would be affected by energy-related siting petroleum-related development. development. Most existing petroleum demand forecasts do not reflect adequate consideration of the potential for demand reduction through such programs. NATURAL GAS SUPPLY AND DEMAND Factors besides price increases and conservation programs that could help reduce the oil demand growth rate include: Natural Gas Demand Exceeds Supply. Natural gas is a desirable fuel because it is relatively clean burning. Its � An increased availability of natural and synthetic gas, extraction and transportation, however, involve many impacts methanol, and alternative energy sources to replace reliance similar to those associated with oil. The demand and supply on petroleum (especially for electrical power generation); of natural gas is important to coastal planning because it will help determine the need for: � Changes in lifestyle, particularly in reduced use of the help determine the need for: private automobile and of electricity; *� Liquefied natural gas (LNG) facilities in California; � A continued decline in the State population growth; and a Facilities proposed by electric utilities and oil companies � A lower growth rate in the national economy. to provide additional low-sulfur fuel oil to substitute for ENERGY * 93 natural gas in power plants and other industries; and than 600. Projects have been proposed to import liquefied natural gas (LNG) into California from practically every Production of natural gas associated with oil reservoirs in natural gas (LNG) into California from practically every California's outer continental shelf. major oil-producing area in the world. Import of LNG into California from Alaska and abroad will require LNG port, In California, as in the rest of the U.S., the demand for natural storage, and gasification facilities, all of which will be located gas continues to increase rapidly while traditional sources of in the coastal zone and involve significant environmental supply are dwindling. At the present projected growth rates, and safety risks. The exact magnitude of LNG imports is without additional supplies some curtailment in peak service difficult to estimate at this time. to residential and commercial customers could occur as early as 1978 in southern California. Potential of New Natural Gas Supplies Is Substantial. Substantially more gas may be available by the early 1980s Conservation Programs, Price Increases, Other Factors than is presently being expected by the gas utilities. Several Influence Future Demand. Future demand for natural gas studies conclude that even without extensive new conservation will be influenced by the impact of energy conservation measures, if regulatory and pricing policies were altered to programs and price increases. Price elasticity studies encourage development of sources, sufficient gas could be suggest that increases in price may decrease demand for available by the mid-1980s to meet nearly all of the presently natural gas through conservation and customer switching projected national gas demand. It is conceivable that a modest to alternative forms of energy. On the other hand, although resurgence of gas consumption by large industrial and utility broad energy conservation programs will presumably result users would then be possible. in more efficient use of existing gas supplies, they may also stimulate additional gas demand in the residential Less Natural Gas Available to Fuel Power Plants. Power and commercial sectors, where direct use of natural gas plants, classified as low-priority users of natural gas, sub- is more energy efficient than use of electricity. Moreover, stitute fuel oil for gas when gas supply is interrupted. In price increases of other energy sources may also increase recent years electric utilities could count on natural gas customer switching to gas. For these reasons it is difficult for up to 90 per cent of their fuel needs, but in 1974 only to firmly estimate future demand. about 15 per cent of fuel needs were met by gas. If present consumption trends contiune, and if no new natural gas Present Natural Gas Supply Sources Cannot Meet Demand. should become available, utilities might have to depend on California produces less than one-fourth of its natural gas fuel oil for as much as 90 per cent of their needs by 1976. needs. Moreover, California's total proved reserves of natural gas have been declining since 1963; if present State production and demand trends continue, only 17 per cent of demand will be met by the State reserves by 1985. In ELECTRICITY SUPPLY AND DEMAND 1973, California imported 78 per cent of its gas supply - 61 per cent from the southwestern states and 17 per cent Electricity Demand Determines Need for Development of from western Canada. However, both the El Paso Natural New Supply. The need for electricity will determine the Gas Company and theTranswestern Pipeline Company have need for various means of supplying electricity, many of been allowed by the Federal Power Commission (FPC) to which will directly affect the coastal zone. In 1973, 59 per cent curtail their deliveries of gas to California, and further cur- of California's electricity was generated by burning oil and tailment can be expected in the near term. Additionally, in gas (oil 30 per cent, gas 29 per cent); 31 per cent was produced 1974 the Canadian National Energy Board refused to permit by hydroelectric sources; and 10 per cent by other sources expanded deliveries of natural gas to the U.S. from Alberta, such as nuclear, coal, and geothermal. Most of California's pending evaluation of the adequacy of reserves to meet fossil fuel and nuclear power plants are located in the coastal Canada's own project needs. zone, and utilities are considering new or expanded power plants at coastal sites. Such power plants can have many New Domestic Sources Could Conceivably Increase State environmental, safety, and land use impacts. (See section Supply. Potential new domestic natural gas sources include: on power plant siting.) (1) large reserves of natural gas on the Outer Continental Shelf; (2) large natural gas reserves associated with Alaskan Electricity Demand Is Growing. Electrical energy demand oil deposits; (3) significant quantities of gas trapped in tight is growing both absolutely and as a share of the total energy rock formations in the Rocky Mountains; and (4) two synthetic market as a result of (1) its versatile applicability, (2) in- natural gas-from-coal (SNG) plants proposed in northwestern creasing supply pressures on oil and natural gas, and New Mexico using coal strip-mined in Utah. All have major (3) development of new uses, products, and processes. environmental impacts that will have to be taken into account. Electrical Energy Use Varies Among Market Sectors. The Electrical Energy Use Varies Among Market Sectors. The If the SNG project is completed despite the environmental principal electrical energy market sectors in California are: problems, California may receive as much as two-thirds of the output of these plants via pipeline beginning as early as a Residential - 29 per cent, 1970-80, representing a very small percentage increment in � Commercial - 38 per cent, overall supply. Other potential sources capable of incremen- tally supplementing natural gas supplies are methane gas * Industrial - 28 percent, produced from sewage, sanitary landfills, or individual units; � Other, including pumping of agricultural and municipal and SNG from oil (naphtha), production of which is being water - 5 per cent. considered at a proposed refinery near Carlsbad. The commercial sector is both the largest and fastest growing. Alaskan and Foreign Natural Gas Imported as Liquefied Residential Consumption. More than half the electricity Natural Gas (LNG). Where pipelines for long-distance consumption in the residential sector is due to three types transportation of natural gas do not exist, natural gas is of uses: space conditioning (heating and cooling), water being transported in ships in very cold (about -260� F.) heating, and refrigeration, with space conditioning growing liquid form, which reduces its volume by a factorof more fastest. Demand in the residential sector as a whole has 94 � PART II: FINDINGS AND POLICIES increased for several reasons: (1) the number of new house- no major breakthroughs in energy technology that will have holds has grown faster than population; (2) the use of air a significant impact on electricity supply in this century. conditioners has increased; (3) until recently utilities actively Among electric utilities and State agencies such as the promoted all-electric homes; and (4) many new and some- Resources Agency and the Public Utilities Commission, times less efficient appliances have been introduced and have there is a consensus that over half of all new capacity in approached market saturation. Due to stabilization in the California required to meet electricity demand in the year growth rate of new households and the approaching market 2000 will be obtained by nuclear fission power plants, one saturation of many appliances, however, residential demand tenth from hydroelectric power, and only one tenth from growth has been forecast to decline significantly, even geothermal power. No potential contribution is identified without price rises and conservation measures. from solar, wind, or solid wastes. If these sources appear at all in conventional forecasts, they are typically allocated only token supply contributions or are dismissed as Commercial Consumption. In the commercial sector, only token supply contributions or are dismissed as electricity is used primarily for air conditioning, food and "futuristic. Stronger, more forceful research and develop- products refrigeration, and lighting. Increased commercial ment programs at the State and Federal levels, however, electricity use has been forecast to continue, but the sector's could expedite development of the full potential of alternative sensitivity to electricity price increases and other market energy sources for use in California. factors may help restrain growth. Electric Utilities Plan on Basis of Available Technology. Industrial Consumption. Industrial electricity demand growth Electric utilities take a cautious approach to including has been due to (1) increased industrial output and floor alternative sources of electricity generation in supply mix space, (2) greater electricity use per unit of output, and projections because: (1) electric utilities are held responsible (3) increased use of electricity instead of primary fuels in for meeting whatever demand for electricity actually exists, industrial processes. The rate of growth has been forecast and they therefore plan almost exclusively on the basis of to slow in the future because of conservation practices, available technology as the means to meet 5, 10, and even 20-year demand forecasts; (2) the lead time required for construction of any generating facility is significant: typical Consumption Patterns Vary By Region. Electrical energy lead times are 6 years for a combined cycle fossil fuel plant, usage patterns differ regionally within California. Southern and up to 12 years for a nuclear plant. California consumes two-thirds of statewide electrical energy produced and has a faster growth rate than northern California. Both northern and southern California, however, have recently Electricity Supply Forecasts Form Basis For Other Supply been experiencing declining growth rates in population and Forecasts. Although the electric utility supply forecasts overall electrical energy use. Because of variations in weather represent only one possible supply scenario, they are used conditions, there are also regional differences in the months as a principal basis for planning bya broad rangeof public of maximum electrical energy usage. Pacific Gas and Electric agencies dealing with such complex issues as petroleum system peak occurs in July, whereas the San Diego Gas and and natural gas supply, port facilities, land use, and Electric system peak occurs in December. California's water resources. maximum monthly electrical energy usage is usually during August. Serious Environmental Impacts Implied in Continued Dependence on Conventional Supply Mix Forecasts. The Potential for Reduction in Electricity Demand Growth. consequences implied in conventional supply mix forecasts The growth in demand for electricity in California has averaged 7.7 per cent over the last 25 years. It has now begun to slow, but there is considerable potential for further demand growth reduction through vigorous energy conser- vation measures, the impact of rising electricity prices and Electricity Electricity price rate restructuring, and the development of alternative energy sources. Slowed population and economic growth Supply in Cali- rates in California will also contribute independently to a fornia (1973) lower electricity demand growth. In the long-term, increased prices, intensive conservation efforts, new energy systems, and revised price structures could probably reduce California's estimated demand by as much as 30 to 40 per cent of the conventional projections for the year 2000. (See section on 31. energy conservation.) Present demand forecasts do not yet HYDROELECTRIC 10 HYDRC OTELCRI adequately reflect these factors. State Energy Commission Will Improve Forecast Methodology. Electricity Use Electricity Use The Warren-Alquist Act (AB 1575) provides for the State Energy Commission to make improved electricity demand 29 in California forecasts to serve as the basis for electrical generation facility siting. The Energy Commission will develop a standard forecasting methodology to be employed by theMERCIAL utilities in providing input to an independent forecast to be developed by the Commission. 25 X Conventional Demand/Supply Projections Are Pessimistic INDUSTRIA About Alternative Energy Sources. Many conventional demand/supply projections assume that there will be noHER significant contributions from alternative energy sources and ENERGY*� 95 are serious: (1) increasingly severe environmental disrup- A hypothetical alternative scenario for future electrical tions for fossil fuel extraction, processing, and delivery; generation capacity in California suggests that alternative (2) consumption for electrical generation purposes of non- energy sources (solar, geothermal, wastes, wind, and renewable hydrocarbons that are more valuable for other uses; pumped hydroelectric for peak hour demand) for electric (3) increased problems of air pollution; (4) problems of power generation might be provided by the following nuclear fuel transport security, radioactive waste handling sources by the year 2000: and disposal, and potential nuclear reactor hazards, which Solar .................... 16,900 Megawatts (Mw) do not yet have definitive solutions; (5) and problems of Geothermal.12,800 Mw cooling water supply and marine life impacts. Such energy Wastes .................. 3,200 Mw planning as has been done in California has been based Wind ................... 3,000 Mw primarily on the conventional utility projection of electricity supply mix. TOTAL .................. 35,900 Mw This capacity would represent half of all new generating Alternative Energy Sources Look Increasingly Desirableand capacity required between 1973 and 2000 (based on the Feasible. Energy sources for electricity generation that Rand Study Case "2" - i.e., base case plus price increases), previously were thought to be economically unattractive or in contrast with the conventional supply mix forecast of less technologically unattainable have recently become more than 15 per cent from these combined sources. This scenario desirable or more feasible because of (1) escalating price assumes a strong policy commitment by government bodies levels for competing conventional energy sources; (2) new and electric utilities to high levels of research and develop- concern for environmental protection, human health and ment of alternative energy technologies and to extensive safety, and conservation of nonrenewable hydrocarbon marketing and public education. The future share of generation resources; (3) new levels of research commitment for alter- that will actually be provided by each of these technologies native source development; and (4) new concern about is uncertain, and depends on such things as comparative political implications of dependence on international markets economics, environmental acceptability, and lead time for energy supply. required from earliest date of feasibility. Alternative Energy Sources Could Yield Half of New Capacity Long-Term Demand Reduction Through Increased Prices and Required. It is possible that alternative sources of energy Conservation Measures. In the long-term, increased prices, that may be environmentally less damaging or less hazardous intensive conservation efforts, new energy systems, and than the sources shown in most conventional electricity revised price structures could probably reduce California's supply projections may make a greater contribution to estimated demand by as much as 30 to 40 per cent of the future electricity supply than is presently acknowledged. conventional projections for the year 2000. 0 ENERGY CONSERVATION Findings producing and delivering additional service. Present rate structures often encourage consumption by charging reduced per-unit prices for large consumers. Present pricing structures Impact of Energy Facilities on the Coast Can be Reduced also make no attempt to discourage demand during periods by Energy Conservation Measures. The need for energy- of peak load. Peak load generation typically results in use producing facilities can be reduced, and the impact on of the least efficient generating equipment. Consumption the coastal zone thereby lessened, by vigorous energy during peak periods, then, is costlier than during off-peak conservation measures. Substantial savings can be achieved hours. The Wisconsin Public Service Commission in 1974 by curtailing wasteful consumption of energy without harming made a landmark rate decision requiring a major electric the economy of the nation or the State. Some experts utility to implement (1) "flat" rates, except where the estimate that as much as 40 per cent of present total energy traditional "declining block" rate structure can be proved consumption is wasteful, and that conscientious application to encourage the most efficient allocation of energy, and of a broad energy conservation program to all sectors of the (2) a system of peak-load pricing that would result in energy market - homes, businesses, industry, and trans- higher rates during summer months, when the system's portation - could halve our historical energy growth rate. peak loads occur. In California, the California Public Utilities The Ford Foundation Energy Policy Project, for example, Commission (CPUC) has rate-setting authority. The new concluded that the national energy growth rate could be State Energy Commission will not assume this function. reduced from the present level of nearly 5 per cent to The CPUC has recently undertaken a study of alternative 1.7 per cent annually without any significant adverse rate structures to analyze possible new approaches for economic effects. application -in California. Utility Rate Structures Encourage Consumption. One of the Forty Per Cent of Energy Used in Homes and Businesses most important and direct ways to encourage more efficient Is Wasted. The residential and commercial sectors of energy use is to change electric and gas utility rate structures society account for about one-third of the nation's annual to accurately reflect all of the internal and external costs of energy consumption and their consumption is increasing at 96 � PART II: FINDINGS AND POLICIES the rate of 5.4 per cent per year. They consume two-thirds State Energy Commission Is Mandated to Develop Energy of California's electricity. Overall, it is estimated that nearly Conservation Programs. The State of California has already 40 per cent of the energy these sectors consume is wasted. begun to move toward design of energy conservation Waste occurs due to poor insulation and ventilation; in- measures for uniform implementation statewide. The State efficient heating and cooling systems; poorly maintained Energy Commission has a broad mandate to develop and designed appliances; and wasteful use of lighting, programs for reducing wasteful, unnecessary, inefficient, appliances, and heating and cooling, and uneconomic uses of energy through energy pricing strategies; improved lighting, insulation, climate control Energy Consumption in Industry Can Be Cut up to 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 Con- energy waste still exists in energy-inefficient work schedules of use sumption and and industrial processes, poorly maintained equipment and sumpton and machinery, use of outdated direct-heat apparatus with heat RESIDENTIAL Wastage - transfer efficiencies as low as 5 per cent, and failure to AND recover and reuse waste heat and waste materials by By Sector recycling. Savings of at least 10 per cent of the energy used1/3 of use) in the industrial sector should be possible with only minimal efforts, while 30 per cent or more could be saved with INDUSTRIA concerted application of currently feasible technology. Energy Consumption in Transportation Can Be Cut by 15 to 25 Per Cent. Transportation of passengers and freight accounts for about 25 per cent of nationwide energy use, and nearly 35 per cent in California. Transportation modes have become increasingly energy consumptive. As presently systems, and other building design and construction standards; used, automobiles, which account for 90 per cent of all improved standards for appliance efficiencies; and advances passenger movement, use more than twice as much energy in power generation and transmission technologies. The per passenger mile as buses; in large part this is because Energy Commission is mandated by law to prescribesuch on the average each car carries only 1.3 passengers. Auto- standards by July 1976, which shall then take effect state- mobile inefficiency is increased by high-speed driving, air wide by July 1977. conditioners, automatic transmissions, poor tires, and un- necessarily large engine size and car weight. Remote, Some Legislative Energy Conservation Measures Will Soon scattered, or low-density developments not only increase Be Implemented. Other energy conservation measures that dependence on automobiles but also tend to require greater have been initiated by the Legislature include: travel distances, causing increased air pollution and fuel � SB 277 (Health and Safety Code, Chapter 11), which requires consumption. About one-third of all freight transport in development by the Department of Housing and Community the nation is by truck, although trucks use over 31/2 times Development of minimum insulation standards for resi- more energy per ton mile than railroads, and 5 times more dential structures. Such standards have now been adopted than pipelines. Savings of 15 to 25 per cent are possible by the Legislature as regulations effective February22, 1975, in the transportation sector using only short and mid-term to be applicable statewide and enforced by local agencies; conservation measures (e.g., consumer education, lower S 144 (Health and Safety Code, Chapter 11.5), requiring �SB 144 (Health and Safety Code, Chapter 11.5), requiring speed limits, rate and service improvements on public similar development of insulation standards for new non- similar development of insulation standards for new non- transit, and rail freight transport). transit, and rail freight transport). residential structures, to become effective near the end of 1975; and Energy Consumption in Electric Utilities Operations Can � SB 1521 (Public Resources Code, Section 25950), to Be Reduced in Several Ways. Energy consumption in eliminate pilot lights in gas appliances. electric utilities operations can be reduced through improve- The CPUC has recently played an active role in energy ments in power generation technologies; reductions in conservation efforts by ordering utilities to undertake transmission losses by use of improved equipment and by voluntary conservation programs and to mandatorily curtail siting generation facilities near to load centers; and use of uses by specific customer groups. once-through seawater cooling systems rather than evapo- rative cooling or dry tower systems, though such cooling Coastal Commission Can Recommend Energy Conservation systems may have adverse effects on the marine environment. Policies to Energy Commission. Despite the broad mandate In electric utilities operations, the trade-offs for achievement of the Energy Commission to develop energy conservation of energy conservation are often stark: a utility may accept programs, and the strong interest in having such programs energy inefficiencies to avoid high capital costs of alter- applied statewide, strong reasons remain for the Coastal native equipment, to utilize a generation or cooling tech- Commission to develop policies for energy conservation. nology that meets its particular system needs (e.g., agas First, under the Energy Commission's enabling legislation, peaking turbine or pumped hydropower project to meet its regulations pertaining to lighting, insulation, climate peaking capacity needs), or for other economic considerations; control systems, and other building and design standards, similarly, a conservationist or land use planner may support including recommended energy budget codes, may not be equipment design or siting standards that sacrifice some developed and enforceable before mid-1977. Energy con- energy efficiency in order to meet specific land use planning servation policies recommended in the Coastal Plan will or environmental goals. provide significant input into the Energy Commission's ENERGY � 97 energy conservation program. Second, development in the Fluorescent Lamps Are More Efficient than Incandescent coastal zone will continue during the period prior to enforce- Lamps. Incandescent light bulbs are inefficient energy ability .of the Energy Commission standards. Energy con- converters. Less than 10 to 14 per cent of the energy con- servation standards that are already clearly identifiable can sumed results in useful lighting; the rest goes into heat. serve as guidelines for new construction, to begin working Fluorescent lamps are more than three times as efficient. toward reduction of energy demand growth. Third, the Energy Commission's mandate does not include land use Heat-of-Light Systems Lower Resultant Heat and Need Less and development planning measures designed to reduce Cooling. Excessive and inefficient lighting also wastes energy energy consumption. indirectly by increasing the heat load, thereby increasing the need for cooling. Typically, every two watts of lighting Energy Budget Codes Set Maximum Energy Consumption requires one watt of cooling by air conditioning. "Heat-of- Levels. Experts believe that substantial reduction of energy light" systems are available that reduce the amount of heat consumption could be achieved by designing and imple- from lighting and thus the amount of air that must circulate menting "energy budget codes," which would require new in the air-conditioning system. buildings to meet maximum allowable levels of energy consumption according to building type, net building floor High Pressure Sodium Lamps Are More Efficient in Street area, number of stories, height of individual stories, and Lighting. The high pressure sodium lamp (HPS) is a fairly local climate, among other possible criteria. Use of energy recent development in street lighting and other outdoor budgets would require architects, engineers, and builders illumination. For various lighting configurations, systems to design with some focus on energy conservation, but using mercury vapor lamps, which at present are most would afford them maximum flexibility as to what conser- common, consume 2.3 to 2.9 times the energy required vation measures to employ. The Ohio Board of Building to produce an equivalent amount of light with a system Standards has recently adopted an energy budget code. using HPS lamps. The HPS lamp is initially costlierthan The California State Energy Commission is mandated by the mercury vapor lamp; it also has a shorter life, and AB 1575 to recommend per unit energy requirement allot- thus requires more investment in replacement lamps. Experts ments based on square footage for various classes of buildings. concur, however, that because of greater lamp efficiency, No date is set within which the State Energy Commission HPS systems are less costly over the system life cycle than must perform this function. Standards developed will not mercury vapor lamps. Where existing street lighting in be mandatory. 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 LIGHTING without adversely affecting public safety. Outdoor Illuminated Signs and Ornamental Lighting Con- Lighting Consumes One-Fourth of U.S. Electricity. Lighting sumption Can Be Reduced by Regulation. Electrical con- represents 20-25 per cent of all electricity sold in the U.S. sumption for promotional signs and lighting could be reduced In office buildings, lighting represents an average of 40 through regulating the size, type of lighting, and extent of per cent and in some cases up to 60 per cent of electricity such uses. Regulation of signs for public safety and welfare used. Decorative lighting, advertising and display lights, reasons (including aesthetic values) has been upheld by court exterior wall lighting, and other promotional uses are also decisions. According to sign industry data, electric signs use large users of electricity. 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 Lighting Levels Can Be Reduced Without Sacrificing Visual will ultimately be developed and prescribed by the Energy Acuity and Physiological Needs. Nationally, average lighting Commission for mandatory application statewide. These intensity in commercial buildings has risen from 35 foot- candles in 1940, to 85 in 1958, and to 124 at present. Many experiments confirm that lighting levels between 10 to50 footcandles are sufficient for most visual acuity and physio- logical needs where levels of 60to150 footcandles are now HEATING AND COOLING being provided. Illumination levels can be significantly reduced in corridors, lobbies, passageways, and storage areas. Within work areas (e.g., classrooms or offices), use FiftyPerCentof ExistingHeatinglCoolingDemand IsCaused of selectively higher lighting levels for "task zones" can by Air Infiltration. Of the total national consumption of both reduce total lighting needs and heighten the effective- energy, 18 per cent is for heating buildings. Only one out of ness of the people working in the area. Lighting levels for every 10 buildings operates at 90 per cent or more of potential tasks up to 100 footcandles can be achieved in most buildings energy efficiency. Up to 50 per cent of the heating and cooling designed for a maximum average requirement of 2.3 watts demand in existing buildings is a result of infiltration of out- per net rentable square foot. side air because of inadequate insulation, caulking, and weather-stripping. If these "leaks" were plugged in all existing buildings, 7.2 per cent of total nationwide energy Reduce Lighting Needs by Using Natural Light. 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 Stringent Insulation Standards in New Construction Can normally used in lighting might be saved if the lighting Achieve Significant Energy Savings. In new construction. fixtures near windows could be manually switched off, or more stringent insulation standards (applicable to walls. automatically operated by a photo cell. ceilings, and floors) and double glass windows, possibly 98 * PART II: FINDINGS AND POLICIES with special coating, could effect significant reductions of year. Such windows must be well fitted and weather-stripped energy usage. Savings of up'to 50 per cent of the energy to reduce infiltration of outside air. required for heating and 20 per cent of the energy required for cooling in new residential construction and 10 percent Heating/Cooling Systems' Designs, Based on Outdoor Con- Heating/Cooling Systems' Designs, Based on Outdoor Con- of both the heating and cooling energy in new commercial ditions, Can Be Redesigned for More Efficiency. Heating construction can be achieved. construction can be achieved. and cooling systems are usually based on outdoor conditions not exceeded more than 2-21/2 per cent of the time. Except for Energy Consumption Doubles with Use of Electric Space facilities for the elderly, for industrial processes, or for health Heating. Use of electric resistance space heating results in care, such systems could be designed for the 5 per cent con- consumption of at least twice as much energy to heat a dition with only a slight increase in discomfort during a few given space as direct use of a primary fuel (e.g., gas or oil). hours per year. Excessive safety margins and failure to account The conversion efficiency for a fossil or nuclear fuel thermal for people and appliance heat-loads also result in oversized electric power plant is only about 35 per cent; inefficiencies space conditioning equipment and inefficient operation. in transmission and delivery systems still further reduce the overall conversion efficiency for electric space heating. Reduce Heating/Cooling Requirements by Reusing Already- Reduce Heating/Cooling Requirements by Reusing Already- If gas is used directly for space heating, overall conversion Circulated Air in Buildings. Heating and cooling of ast efficiency will range from 50 to 80 per cent, even considering irculate r Buildings c n amounts of outdoor air that circulate through buildings can inefficiencies due to improper furnace adjustment and start- inefficiencies due to improper furnaceadjustmentandstart- also consume energy wastefully. By reusing already-circulated up and shut-down operations. up and shut-down operations., air, the amount of outdoor air required for ventilation can be substantially reduced, from 5-15 cfm (cubic feet per minute) Air Conditioning Puts Severe Seasonal Strain on Electric per person to 3-4 cfm per person in most buildings. Air Generating Resources. Air conditioning's share of annual quality can be maintained by using odor-absorbing devices total national energy consumption has grown from an infini- and better filtration. Initial costs are no greater, since savings tesimal amount 20 years ago, to 1.6 per cent in 1960, to in fans, heating and cooling equipment, and ductwork more 2.5 per cent in 1968, to possibly as much as 4 percent than offset the added costs for better filters and odor absorp- now. Because most of this energy is consumed during just tion equipment, and there are significant savings in energy a few months of the year, the strain air conditioning loads and operating costs. Heat exchangers, which allow the use put on electric generating resources can be severe. One of of already air-conditioned exhaust air from a building to every two homes in the country has at least one room air con- preheat or precool system intake air, are a means for reducing ditioner. One-half of the houses being built today are centrally heating and cooling requirements in large buildings. air conditioned, compared to one-twentieth a decade ago. Heat Exchangers Recapture the Energy of Waste Heat. With Proper Controls, Central Heating/Air Conditioning The present lack of capability of buildings to store heat and Systems Can Be Flexible and Efficient. Among various cold and to control temperatures of appropriate areas types and makes of conventional room air conditioning units, separately results in a loss of energy which otherwise energy efficiency in actual "cooling capability" can vary could be used later to offset peak electrical demand loads. by as much as 80 per cent. Large central heating and air Conventional chimneys, fireplaces, combustion devices, conditioning systems generally use 10 to 15 per cent less kitchen, laboratory, and laundry exhaust hoods are all energy energy on the average than smaller decentralized systems. wasters. Heat exchangers,can also be used to recapture If central systems are to operate with the same flexibility energy otherwise given off as waste heat, such as from as individual systems, however, proper controls must be fireplaces, kitchen, laundry or major appliances, to be used installed. In portions of the temperate coastal zone, proper later to offset peak demand loads. design of structures and landscaping can obviate the need for air conditioning. APPLIANCE EFFICIENCY Shading Windows from Direct Sunlight Can Substantially Reduce Heat Build-Up Inside Buildings. The use of trees, Gas Pilot Lights Waste Energy Except in Water Heaters. Gas Pilot Lights Waste Energy Except in Water Heaters. shutters, sun screens, awnings, or roof overhangs to shade It is estimated that continually operated or lighted gas windows from direct sunlight can substantially reduce heat pilot lights consume more than 223 billion cubic feet of pilot lights consume more than 223 billion cubic feet of build-up in buildings, and thus air conditioning requirements. gas per year in the 30 million gas-heated homes in the gas per year in the 30 million gas-heated homes in the Special glazing (metal-coated and/or double wall glass) can Special glazing (metal-coated and/or double wall glass) can U.S. Pilots on gas dryers and other appliances in commercial, cut both cooling and heating requirements by about half. It governmental, and industrial facilities wastefully use addi- governmental, and industrial facilities wastefully use addi- is much more efficient to screen glass on the exterior, rather tonal volumes of gas. Pilots use about one-third of a typical than with blinds, drapes, etc.. on the interior of a building. gas range's overall consumption, a n d in some cases may gas range's overall consumption, and in some cases may account for as much as 50 per cent of the gas use, especially Heat Transmission Rates Vary with Building Surfaces. if pilot flames are set too high. Heat transmission rates are also affected by the proportion of exterior walls, the amount of surface area in windows Electric Ignition Devices Can Replace Pilots. Safe electric (heat loss and gain from windows causes much greater or other "intermittent" ignition devices actuated only when energy use than the potential saving in natural lighting). the appliance is in operation are available today to replace and the color, orientation. shape, and angle or exposure pilots in most residential-type appliances and can be built of building surfaces. into new gas appliances or retrofitted to existing appliances. Electric ignition devices add to the initial cost of a new Operable Windows Aid Natural Ventilation. Operable appliance (about $3 to $30). but given current gas shortages windows in lieu of fixed glass will allow natural ventilation and rising prices, they are likely to be substantially less to enter the building, eliminating some of the need for air expensive to the consumer than pilot lights when costs are conditioning and mechanical ventilation during much of the calculated over the life of the appliance. Replacing pilots in ENERGY � 99 existing equipment, however, may cost $80 to $100, which major building material. Concrete and masonry have higher may not be recouped through lower operating cost over the heat storage capacity and longer life cycles than metals remaining life of the appliance. Unlike gas pilots in other or wood. fixtures, water heater pilots are efficient because the pilot flame contributes directly to heating the water. Intermittent Ignition Devices Will Soon Be Required by Law. Policies In May 1974, SB 1521 (Public Resources Code, Section 25950) was approved, prohibiting the sale or installation of new residential-type gas appliances (furnace, air conditioner, 71. Restructure Utility Rates to Encourage Energy heater, refrigerator, stove, range, dishwasher, dryer, Conservation. To encourage energy conservation decorative fireplace log, or other similar device, but not and peak-load demand reduction, the California including a water heater) equipped with a pilot light 24 months after an intermittent ignition device has been demonstrated Public Utilities Commission and the State Energy or certified by the State Energy Commission, or January 1977, Resources Conservation and Development Cornm- whichever is later. This long lead time was included in mission (hereafter "Energy Commission") are the legislation primarily to guarantee advance notice to urged to revise rate structures to more accurately appliance manufacturers, retailers, and contractors. allocate the increased costs of peak load production and construction of new or expanded production Routine Maintenance of Gas Appliances Will Effect Energy and transmission facilities. Savings. The efficiency 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 mainte- 72. Recommendations for Statewide Energy nance of such appliances could effect substantial energy savings Conservation Measures in New Developments. Non-essential consumption of energy shall be Energy Savings Can Be Realized Through Improved Appliance reduced statewide, thereby reducing the adverse Efficiencies. Home and business appliances using both environmental impact of energy supply facilities electricity and natural gas account for approximately on the coast. Pursuant to the Warren-Alquist Act eight per cent of total national energy consumption. Water (Public Resources Code, Section 25400 et seq.), heaters alone use four per cent of the national energy the Energy Commission is required to prescribe budget. Appliances vary greatly in the amount of energy required for identical tasks. Innovations in appliance tech- energy conservation standards to be in effect nologies frequently result in more energy-intensive appliances. statewide by July 1, 1977. Because of the close Frost-free refrigerators and freezers, for example, use nearly relationship between effective energy conservation twice as much energy as manual defrost units; and color and the possible need for new and expanded televisions use about 40 per cent more energy than black and white sets. More efficient appliances may initially cost coastal energy facilities, the following energy more, but they enable consumers to save money in operating conservation standards are recommended to the costs. Labeling of appliances as to energy efficiency would Energy Commission for consideration in carrying enable the public to make informed purchases, and would out its mandated activities. encourage energy efficient design by appliance manufacturers. The State Energy Commission is mandated to prescribe The energy conservation requirements of the standards for minimum levels of operating efficiency for all appliances whose use requires a significant amount of Warren-Alquist Act, if carried out in a timely energy on a statewide basis. One year after adoption of and effective manner, will achieve the goals of such standards, sale of non-complying appliances in California this policy; but if for any reason an energy con- will be illegal. servation program is not in effect statewide by July 1,1977, then, because of the great importance of energy conservation to coastal protection, the BUILDING MATERIALS coastal agency shall be empowered to begin an energy conservation program by requiring, after public hearings, that the energy conservation Aluminum Production Requires Six Times More Electric public hearings, that the energy conservation Energy than Steel. It takes approximately six times as much standards be included in local coastal plans. Until electric energy to produce a ton of aluminum as aton of such time, the application of energy conservation steel. Analysis of a high-rise building has demonstrated that measures to proposed developments in the coastal its skin would require 5.75 million pounds of stainless steel, agency's jurisdiction shall be encouraged as a which takes .77 million kwh to produce, compared to only contribution to energy efficiency and resource 4 million pounds of aluminum, which, however, takes 2.1s million kwh to produce. conservation. Wood Is the Only Renewable Major Building Material. a. Recommendation to Establish Energy Budgets Wood is significantly more favorable in energy required for for New Developments. It is recommended that production than steel or aluminum. The production of aton of finished wood takes only 12 per cent of the energy required an energy budget code be formulated setting to produce a ton of steel and 2 per cent of that required to required energy budget performance levels for produce a ton of aluminum. Wood is also the only renewable a range of building types, sizes, occupancies, 100 � PART II: FINDINGS AND POLICIES projected levels of use, and location. Major lighting in portions of the building receiving new developments should then be required to adequate natural light or not in use. demonstrate compliance with the energy budget code by submission of an energy budget, signed Recommended Standards for Signs and Facade by a California registered engineer or certified Lighting architect, stating the energy inputs and outputs Electric lighting of new advertising or orna- of the proposed development in BTUs per cubic mental signs should be allowed only for on- foot or in watts per square foot; the extreme site identification signs containing the name, site identification signs containing the name, mean heat loss/gain of all buildings in peak address, and major product or service of the heating and cooling seasons; microclimate business, and these signs should be illumi- description of the building site; and outline nated only during darkness and only when specifications for microclimate modifiers such te uiness on he the business is open to the public. as planting, total building exterior cladding material, building insulation, building thermal Building and facade lighting, exclusive of inertia and energy storage capability, and for signs, should be no greater than 1,000 watts major energy using and controlling equipment or 2 per cent of the total interior lighting such as lighting, heating, ventilating, and air load of the building, whichever is greater. conditioning. An energy budget should not be required for residential developments of less Recommended Standards for Space and Water than four dwelling units, industrial projects of Heating: less than 5,000 square feet of floor area, or com- Electric resistance heating (water or space) Electric resistance heating (water or space) mercial or institutional structures of less than should be allowed only if natural gas is not 2,700 square feet, provided a California regis- available, electrical heating is needed for available, electrical heating is needed for tered engineer or certified architect states in medical, health or public safety reasons, some medical, health or public safety reasons, some writing that the proposed design would meet other unusually high requirement for clean - ~~~~~~~~~~other unusually high requirement for clean the required performance level for the project heat exists, or where a back-up system for heat exists, or where a back-up system for type. It is recommended that a State-financed solar heating and cooling systems can be solar heating and cooling systems can be program directed by the Department of Housing provided feasibly only by electric resistance provided feasibly only by electric resistancehaig and Community Development be instituted heating. to provide in-service training for building inspectors to administer the energy budget Recommended Standards for Building Climate Recommended Standards for Building Climate code through local building codes. Control: Control: b. Recommended Energy Conservation Specifi- Mature planting, exterior architectural cation Standards. It is recommended that until shading, or reflecting and/or insulating an energy budget code is adopted, the following glass or screen should be provided to shade energy conservation specification standards or protect windows receiving direct sunlight apply to all new development. Following in warm climates. adoption of an energy budget code, develop- ments meeting the required energy budget Properly weather-stripped operable sash levels would be exempt from the specification and vents should be provided in all exterior standards. rooms for which ventilation is required by the local building code. Recommended Standards for Lighting: Variable thermostats should be required for areas with different air conditioning � Lighting should not exceed 2.3 watts (2.5 volt- requirements. amperes) per square foot except in instances where higher levels are shown to be necessary * New conventional compressive refrigeration for high visual acuity tasks and public health air conditioning should be permitted only if and safety. the life cycle costs of the conventional system are substantially less than the lowest-cost � Only efficient lamps and luminaires, as defined in the proposed Standard 90-P of and most energy-efficient alternative systems defined in the proposed Standard 90-P of available. (Alternatives may include cooling the American Society of Heating, Ventilating, available. (Alternatives may include cooling systems based on evaporative cooling, solar Refrigeration, and Air Conditioning Engineers systems based on evaporative cooling, solar (ASHRAE), should be allowed cooling, nocturnal radiation, absorption refri- (ASHRAE), should be allowed. geration, heat pumps, rock-bed regenerators, � In large buildings, selective or light-sensitive and coolness storage, among others. (See switches should be provided to avoid electric the section on Alternative Energy Sources.) ENERGY * 101 Recommended Standards for Pilot Lights and cost savings resulting from the conversion. Gas Flames: Other appropriate energy-conserving devices i Gas pilot lights (except water heater gas and design (e.g., reduction of lighting levels pilots) should not be permitted unless the consistent with public safety, use of astro- gas pilot device has a substantially lower nomical clocks that eliminate lighting during life-cycle cost or is more energy-efficient daylight) should also be incorporated in all than an electric ignition orotheralternative new public lighting systems. system or is required for public health or s ystem or is required for publieasons. 73. Recommendations for Additional Energy Con- servation Measures. It is recommended that the � Open gas flames for advertising, promotional, Energy Commission and the Legislature, as part or decorative purposes should not be allowed. of a comprehensive statewide energy conservation c. Recommended Energy Conservation in Street program, implement certain other conservation Lighting System. It is recommended that new measures statewide, as follows: (1) tax legislation street and highway and other public lighting to encourage the use of lighter automobiles with luminaires should be of the high pressure smaller engines and increased energy efficiencies; sodium (HPS) type, oran approved alternative (2) legislation requiring that all appliances sold type equal in energy efficiency, unless environ- in California meet specified energy efficiency mental, aesthetic, public safety, or system standards and that all appliances be clearly labeled compatibility reasons dictate the use of a with energy efficiency or energy consumption different type of system. The Legislature should information; (3) implementation of a long-range consider the feasibility of establishing a capital phased program for improving the energy use improvement fund, through a bond issue or standards of existing buildings in California, other appropriations, to finance the conversion including replacing energy-inefficient equipment. of existing State, county, and municipal incan- Special loans and/or tax incentives should be descent or mercury vapor-type street and considered to assist in upgrading insulation and highway lighting to the HPS type or equivalent. incorporating low- or non-fuel-using technologies Funds expended could be repaid from energy that involve higher capital costs. ALTERNATIVE ENERGY SOURCES Findings 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 Non-Petroleum Energy Sources Could Provide 50% of and throughout California. (See findings "Conventional Added Generating Capacity in California by Year 2000. Demand/Supply Projections Are Pessimistic About Alter- There are advantages and disadvantages to development native Energy Sources" and "Alternative Energy Sources and use of all forms of energy. Oil and gas, however, on Could Yield Half of New Capacity Required" above, in section which California now relies for about 90 per cent of its on Electricity Supply and Demand.) total primary energy, have the potential to cause significant adverse environmental impacts at all points of the fuel sequence: extraction, transportation, processing, and con- SOLAR ENERGY sumption. There are several alternatives to continued heavy dependence on oil and gas that are environmentally superior Solar Energy Has High Potential and Fewest Environmental both for the coastal zone and for California, and that help Problems. Solar energy is unlimited in its supply and conserve hydrocarbons for more valuable uses such as petro- appears to pose the fewest environmental problems of any chemicals. These sources cannot in the short term supplant major energy source. It can make a significant and immediate a continuing fundamental dependence on oil, gas, and even contribution both on a small scale, for heating and cooling nuclear fission, in California. But with a strong policy com- individual buildings, and on a large scale, for major electric mitment by government bodies and electric utilities to high power generation. The basic technology for solar energy levels of research and development, and extensive marketing applications exists; the principal remaining barriers to broad and public education, it is possible that non-petroleum feasibility concern economics and engineering refinements alternative energy sources could provide as much as 50 per to overcome the low energy intensity of sunlight, its daily 102 � PART II: FINDINGS AND POLICIES and seasonal variability with weather and time, and the wide use in many parts of the nation by 1985and will be need for associated energy storage systems. There is also common by 1993. It is possible that an intensive development concern over the large land areas and fresh water for cooling effort could bring these dates five years closer. The National that could be required for large-scale solar energy power Science Foundation/NASA Solar Energy Panel predicted stations. California is particularly well suited for development that ultimately solar energy could supply 35 per cent of of solar energy because of its high number of hours of the nearly 20 per cent of the U.S. energy consumption now sunshine. The South Coast Region lies in a particularly consumed for heating and cooling, and that it will signifi- favorable location for mean daily solar radiation. As measured cantly reduce summer peak electricity demands. However, in units of Langleys (Ly), for comparison, the data for Seattle even if supported by energy storage systems, individual is 300 Ly, Phoenix 500 Ly, Los Angeles 463 Ly, and South solar units may not be capable of supplying total energy Coast coastal locations about 450 Ly. needs for space conditioning and water heating. In addition to the solar units, builders may have to install some con- ventional supplemental equipment. Solar active (mechanical Use of Solar Systems Can Save Fossil Fuels. Implementation heat transfer) systems - that is, solar systems using flat- of solar energy systems can be directly correlated with plate solar collectors with circulating fluid - can optimally potential savings in natural gas. In a large area of southern provide up to 90 per cent of the total water and space heating California, more than two-thirds of the natural gas consumed needs of a house in the southern California coastal area, directly in space and water heating could be saved by the with gas assistance as the back-up fuel. Solar passive (direct use of solar energy. On a month-to-month basis, the share heat transfer) systems, such as a roof-pond system, can of space and water heating provided by solar energy can optimally provide up to 100 per cent of the heating and cooling be expected to range from 50 per cent to 80 per cent. Since needs of a house. solar energy can supply the major share of energy for space and water heating on a year-round basis, utilization of solar energy can directly reduce the growth in baseload Heat Pumps Can Heat or Cool a Given Space. A heat pump demand for natural gas. A corresponding reduction in system can be operated by solar power. A heat pump is, requirements for new gas supply would also be indicated, in effect, a refrigeration machine that can work in a reverse or, alternatively, more natural gas could be burned in the cycle; thus it can either heat or cool a given space. Large South Coast Region's electrical generating plants, 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. Economic Barriers to Solar Energy Can Be Overcome. Solar energy systems for heating and cooling in new con- struction are now practical in both large commercial buildings octurnal co s ystem a th and houses. Although the capital investment required for and Cools. Roof-pond nocturnal cooling systems are tech- solar systems is higher than conventional systems (which nically feasible and practical for residential and low-load buildings in desert or valley climates such as in southern increases marketing problems for home builders), any cost buildings in desert or valley climates such as insouthern evaluation of heating systems should be done on a life- evalutionof hatin sysems houl be one n a ife-California. The operating cost would be only a fraction of cycle basis. Leasing systems, now being studied, may the cost of electrical refrigeration. This is the simplest overcome some of the marketing problems. The life-cycle system that can accomplish both heating and cooling. costs of a solar heating and cooling system in the new General Services Administration building in Manchester, Rock-Bed Regenerators Provide aCoolingSystem. Rock-bed New Hampshire, for example, are estimated to be 25 per cent regenerator (RBR) cooling systems use evaporation of water less than the costs of conventional electric resistance heating in the discharge air to chill rocks in a switched-bed rock-filled and electric compression cooling. The economic advantages recuperator, which then cools inflow air. RBRs have been of solar systems should improve as production techniques used successfully in Australia. The power consumption is an reduce the initial costs, and as the costs of conventional eighth of that needed for mechanical refrigeration. fuels increase. Economy and energy-efficiency can be further enhanced when: Both cooling and heating are accomplished through Solar Energy Conversion in Existing Houses Is Difficult. Butilization of the solar energy comllec tor; Conversion of existing houses to solar energy is more prob- lematical. No more than about 35 per cent of existing houses � The solar energy system components and the building can be retrofitted to solar energy because of shading by heating and cooling systems are compatible with each other buildings or trees, or because building orientations or other and are integrated in a total systems concept; and roof angles are not suitable collectors. Retrofitting of older � The buildings and the conventional mechanical and houses with solar systems would be difficult to justify on a electrical systems are initially designed and constructed life cycle cost basis because of the shorter remaining life of to conserve energy. the buildings. Effective Delivery System Available Soon. One of the major Solar Energy Can Heat Water and HeatlCool Buildings. obstacles to near-term implementation of solar energy systems As many as 60,000 solar water heaters are said to be in is the present lack of an effective delivery system (design, use in south Florida today, nearly all having been installed production, marketing, and installation skills). However, such in the 1930s and 1940s before the advent of all-electric living. a delivery system is now beginning to appear in California; They are also in common usage in several foreign countries several corporations have undertaken programs for producting including Japan, Australia, and Israel. With minor engi- and marketing solar units. With some governmental encour- neering developments and relatively simple architectural agement, the delivery system necessary for broad implemen- modifications, solar energy could now be used in some areas tation of solar systems could be available within a few years. of this country for both space and water heating at prices competitive with oil and gas furnaces. Commercially installed Institutional Barriers to Solar Energy Use. Other barriers solar heating and cooling in single buildings may be in to wide use of solar systems are institutional. The building ENERGY � 103 and real estate industries are slow to adopt and promote to compare this with the amounts of land required by different any new device that raises capital costs even if long-term methods of electrical energy generation, but the 2,000 Mw overall costs are lower; there are no published building coal-burning plant in the Four Corners area, for example, design guidelines for solar energy utilization; and there will require the strip mining of 40 square miles of land for are no known existing building code regulations for solar fuel during its operating lifetime. Improved technology units. In addition, although some electric utilities have resulting in better efficiency would significantly reduce made low-level research commitments to development of land use for solar plants. individual solar units, there has until recently been little or no serious commitment from electric utilities, State and Solar-Thermal Power Plants Create Heat Waste Disposal county energy planners, or legislators to this application Probemrn. The potential for waste heat disposal problems of solar energy. The Los Angeles City Council has begun would still be present in large-scale solar-thermal power a program of solar energy investigation and development, plants. Such plants would still require cooling water, and and as an initial step will heat municipal swimming pools this may be a problem since the optimal locations for solar with solar energy. plants will be arid. There is also some concern that large- scale solar collecting surfaces may upset local thermal Solar Energy Use Needs Legislative Support. New legislation balances, but the consequences, if any, are thus far expected is needed to encourage the use of solar energy systems. to be quite small. Florida has passed a measure requiring new home plumbing to be designed to facilitate future installation of solar water Solar Cells Offer Alternative to Solar-Thermal Power heating equipment. Arizona and Indiana have passed tax Generation. A second approach to production of electricity legislation encouraging installation of solar equipment. from solar energy involves the use of solar cells. Solar cells Essential to any solar energy program would be a public convert sunlight directly into electricity without the need information program. for intermediate thermodynamic cycles. Solar cells were used to power manned orbiting spacecraft. Presently, however, solar cells are too costly, too inefficient, and not Sun Rights Legislation Will Ensure Access to Solar Radiation. however, solar cells are too costly, too inefficient, and not Sun rights" legislation is also needed to ensure user's sufficiently durable to have practical application for large- "Sun rights" legislation is also needed to ensure user's scale commercial electricity production. Some scientists access to solar radiation free and clear of potential obstructions scale commercial electricity production. Some scientists on contiguous property. Appropriate regulations must con- believe, however, that solar cell technology is sufficiently on contiguous property. Appropriate regulations must con- sider the shadows, angles, and orientation of buildings far advanced that mass production of rooftop units for new sider the shadows, angles, and orientation of buildings varying with the time of day, the season, climatological housing could become competitive within three to five years, varying with the time of day, the season, climatological and that use of solar cells to power new houses may be conditions, and the slope of the building site. Setback regu- co o n ye common in 10 years. lations in zoning codes are precedents for sun rights laws. Potential for Ocean Thermal Gradient Electricity Generation Large-Scale Electricity Generation Needs Further Develop-PoetafrOcnThmlGadntetiiyeeain ment. The full potential of solar Generation Needs Further Develop- Is Small. A less-promising approach to production of energy ment. The full potential of solar energy can be realized frmslrerginovsteuefthdfeecen from solar energy involves the use of the difference in only after large-scale generation of electricity from solar temperature between the sun-warmed ocean surface and energy becomes technically and economically feasible. -electrisyse bsedos thehnitcall cono vesib. the cold ocean depths in a heat engine to produce low pressure Steam-electric systems based on the initial conversion of steam to drive a turbine and produce electricity. Ocean solar energy to heat have yet to be built on any but the smalles t scale, and the necessary techno logy for large-scale waters off the California coast, however, offer insufficient smallest scale, and the necessary technology for large-scale temperature differences. plants, though well understood theoretically, has not been temperature differences. adequately demonstrated on a commercial scale. The principal problem scientists and engineers face is making solar- generated power economically competitive with other electric WIND ENERGY power sources. The constraint of high initial costs may without government encouragement, delay the commercial testing Wind Is Potentially Important Energy Source. Wind energy of large-scale solar-thermal power generation until 1990, is pollution-free, involves no fuel costs, and is non-depletable. although unforeseen and unprecedented rises in fossil fuel If wind were actively promoted, and its problems solved, prices since mid-1973 have suddenly made solar-thermal it could become an important auxiliary energy source. power significantly more competitive. Various sources indicate that by the year 2000 wind energy could provide from 1 to 20 per cent of total national electrical High Solar Plant Potential in Southeast California. Solar energy needs. Thus far, however, no California public agency collecting equipment for large-scale solar-thermal plants or electric utility forecast for future California energy supply can be centralized for commercial production of power only includes any contribution from wind energy. in areas with high annual sunlight-hour values. Much of southern, and particularly southeastern California, receives Some Potential for Individual Windmill Units. Individual as much solar radiation and annual sunshine - up to 4,000 windmill generating units can make single buildings or small hours per year - as any other area in the U.S. building clusters wholly or partially energy self-sufficient, but such units are no longer manufactured in quantity, and Solar-Thermal Power Plants Need Large Amounts of Land, individual unit capital cost (including battery storage) is The principal environmental concern about large-scale solar- presently high. thermal power plants is the commitment of many square miles of land to collecting surfaces. The NSF/NASA Solar Problems of Wind Energy Must Be Solved. Wind is a Energy Panel estimated that at 20 per cent efficiency a problematic source of electrical energy. It is erratic, low 1,000 Mw solar generating plant - about the size of the in average velocity and density, and variable in direction, nuclear power plant units being built today - will require and its energy is not easily stored on a large scale. Wind about 15 square miles or 9,600 acres of land. It is difficult will make its most significant contributions to energy needs 104 � PART II: FINDINGS AND POLICIES only when systems have been developed that can efficiently barrel of low heat-value oil. San Diego Gas & Electric would and inexpensively convert wind to electricity or other energy burn the oil either directly or mixed with No. 6 fuel oil to forms on a very large scale. Scientists believe that these produce steam for electric power generation. A Baltimore problems are not technologically difficult. The principal pilot project newly in operation will convert 1,000 tons per environmental concern is with the appearance and noise day into gas for steam generation. of individual and large-scale wind generation equipment. Some scientists have suggested installations far offshore Hydrogenation Most Efficient System for Obtaining Oil to maximize wind potential and to mitigate environmental from Wastes. Hydrogenation involves adding steam carbon concerns. Additional wind research is required to establish monoxide and a catalyst to organic wastes in a pressurized the ultimate potential of California's coastal and inland container and applying heat to cause chemical reduction wind resource. 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 SOLID WASTES operation or are planned with commercial application expected by 1980. Solid Wastes Are a Potentially Important Energy Resource. Bacterial Conversion Can Produce Methane Gas from Solid Solid wastes represent still another resource with substantial Bacterial Conversion Can Produce Methane Gas from Solid energy potential already exploited in other parts of the world, and Liquid Wastes. Bacterial conversion is a process using although recycling of suitable waste material may result in anaerobic bacteria (which flourish without free oxygen) to greater overall benefits to society from both an energy and decompose organic wastes to produce a mixture that is a resource preservation point of view. Half of the 75 million 72 per cent methane - the principal component of gas. tons of solid wastes produced annually in California is A ton of dry organic waste can produce 10-20,000cubic feet collectable, and that refuse could furnish 10 per cent of the of methane. Commercial recovery of methane is feasible fuel oil needed by utilities at prices competitive with other at sanitary land fills. Sanitary engineering has long utilized power generation fuels, or could furnish gas for direct use anaerobic digestion, but use of this process to maximize by residential and commercial customers. Despite thesig- methane recovery has received little or no attention. Methane nificant potential of solid waste conversion for reducing the recovery from the secondary treatment of liquid wastes can demand for depletable fossil fuels and nuclear expansion make an important incremental contribution to natural in California, few efforts have been made to realize the gas supplies. potential. The State Solid Waste Management Board, esta- blished in 1972, may help overco'me institutional problems that partially impede development of State and county METHANOL programs for the recovery of energy - and materials - from solid waste. Detailed below are four principal methods Methanol Provides a Versatile Fuel for Immediate Use. of energy recovery from wastes. 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 Incineration Already in Use in Two Major American Cities. colorless, odorless liquid which can be made from practically Incineration, or direct burning, of refuse can produce recover- any other fuel - natural gas, petroleum, coal, oil shale, able heat for production of steam, which in turn can be wood, and farm and municipal wastes - giving methanol used in power plants (St. Louis), in industry, and in local practically unlimited flexibility in utilizing various energy heating and cooling systems (Nashville). Incineration systems sources as the economy and conditions dictate, and offering can present air pollution problems. a means of reducing the nation's waste disposal problems. Pyrolysis Pilot Project Proposed for El Cajon. Pyrolysis is Methanol Can Be Easily Implemented into Present Fuel a flexible method by which separated, shredded, treated Economy. Methanol use would not require any major changes wastes are heated in a kiln to cause their chemical decom- in current technology to accommodate its integration into position into various low heat-valuegaseousor liquid hydro- the present economy. It can be easily stored in tanks in the carbons. These can be utilized with other fuels in conven- same manner as conventional fuels and can be shipped or tional fossil fuel plants. SRI expects commercial systems piped, as can conventional petroleum products. More will be available in 1976-77. An EPA-funded pilot plant importantly, up to 15 per cent methanol can be added to proposed for El Cajon would process about 200 tons of solid commercial gasoline in cars now in use without requiring wastes per day, with each ton ultimately producing one engine modification. Some carburetor adjustment would be Producing Energy From Solid Waste Shredded Solid Waste Storage Classifieri S r d e o d Air~~nr Receiving Area Shredder Material [~1 Module ENERGY � 105 required. This methanol-gasoline mixture results in higher cularly from foreign sources, has increased dramatically, octane ratings (thus reducing the need for lead), improved thereby making methanol production comparatively more economy, lower exhaust temperatures, lower emissions, economical. and improved performance. Tests have shown that engine conversions to accommodate 100 per cent methanol, which HYDROPOWER cost about $100 per vehicle, result in one-twentieth the amount of unburned fuel and one-tenth the amount of carbon Hydropower's Role in Future Energy Mix Is Limited. The monoxide released to the atmosphere compared to burning percentage of California's electricity supply provided by gasoline, and would eliminate the need for catalytictreat- hydropower has declined sharply from 59.7 percent of the ment of exhaust. Even greater economy and performance total electricity supply in 1950 to about 36 percent in 1970 could be expected from engines designed specifically for (9 per cent of the State's overall energy supply). Hydropower the use of methanol. appears unlikely to meet any substantial part of an increase in the State's energy needs. There are undeveloped potential Some Adjustments Needed for Storage and Distribution. hydropower sites in California; however, their limited poten- The use of methanol in automobiles will require larger fuel tial, combined with concern about the environmental impact tanks, since specific fuel consumption of methanol is higher of such facilities, land use conflicts, and high capital costs, on a weight and volume basis than gasoline. However, may preclude significant future hydropower development specific energy consumption per mile will be lower because within the State. higher compression ratios and simpler pollution controls can be used. The storage of methanol mixed with gasoline California Imports Significant Portion of Hydroelectric Power. may present some problems because methanol is much In 1970, 23 per cent of California's hydroelectric power more soluble with water than is gasoline; where condensation was transmitted from facilities located along the lower will form in gasoline storage tanks (sometimes causing Colorado River and in the Pacific Northwest. Because of corrosion) methanol will absorb the water, keeping the tanks the expected increase of energy demand within the latter dry. Problems may arise in the storage of large quantities area, however, it is possible that export of electrical energy of methanol mixed with gasoline, unless the tanks are dried to California in future years may significantly decline. out prior to injection. Distribution systems for methanol fuel must also be more water-free than existing gasoline Pumped Hydropower May Be Used to Store Energy. A distribution systems. A further problem is the corrosive principal use of hydropower in the future may be in "pumped effect of methanol upon some kinds of metals used in fuel hydropower" projects for storing energy to meet peak distribution and storage facilities (including auto fuel tanks). demand. Such projects would permit more efficient use of base load power plants, and would help reduce the need Methanol Can Be Used in Electric Power Generation. for additional power plants otherwise necessary primarily, A potential use of methanol is for electric power generation, to meet peak demand, although in many instances such particularly in gas turbines. A recent test comparing use projects may actually require more electrical energy for of methyl fuel with use of No. 5 fuel oil and natural gas in pumping than they actually produce Present plans of electric a full-scale boiler demonstrated that use of methyl fuel utilities project 3,600 megawatts of pumped hydro capacity resulted in elimination of particulate and sulfur compound by 1991, and one source forecasts 10,500 Mw pumped hydro emissions, substantial reductions in nitrogen oxide emissions capacity by 2000. Pumped hydro projects can in some and carbon oxide concentrations; and negligible emissions instances be built at existing hydroelectric sites, but would of aldehydes, acids, and unburned hydrocarbons. Soot otherwise involve reservoir and dam construction, with deposits in the furnace from previous oil firing were burned attendant land use and environmental problems, and with off with methyl fuel, thereby allowing higher heat transfer loss of fresh water and increased water salinity due to rates and higher efficiencies. evaporation. Availability of Methanol Is the Major Problem. The principal COAL drawback to the immediate use of methanol is its availability. The technology for initial production and use on a large Importance of Coal as a Direct Fuel in California Is Minimal. scale exists. A 1972 AEC report estimated the cost of pro- Although the U.S. has an overwhelming abundance of coal, ducing methanol from lignite, coal, and natural gas to be California has no significant indigenous coal supplies. Coal slightly higher than the costs of producing gasoline from has not traditionally been an important fuel in California; crude oil. Since 1972, however, the cost of crude oil, parti- the high costs of transporting it, and the lack of large coal Sand Separator & Fluid Bed 1 st Stage Inertial Combustor 2nd Stage Inertial Se at renerator Gas Turbine Sand Ahh * Sand h ~ Ash Ah 4- :Q 106 * PART II: FINDINGS AND POLICIES deposits closer than 350-550 miles from the State's major NUCLEAR FISSION cities, have made coal a less attractive primary energy alter- native in a state relatively rich in oil and gas. Strict State Nuclear Fission Power Generation Expected to Grow; Public air quality regulations have made coal a still less desirable Safety Concerns. The AEC predicted that nuclear energy fuel in California, though desulfurization and particulate will become the dominant source of electricity in the 1990s control are available. and will account for as much as 60 per cent of the nation's generating capacity in the year 2000. The proponents of California Imports Electricity Generated by Out-of-State Coal-Fired Plants. In 1970 coal provided only 1 per cent of nuclear power point out that it is smog-free, and that its use reduces air pollution that would otherwise result from California's energy needs. By 1985 this figure is predicted fossil fuel power generation, and conserves fossil fuels. to rise to 3 per cent. Most of this increase will be accounted They also argue that nuclear energy is safe,theprospects They also argue that nuclear energy is safe, the prospects for by increases in the amount of coal-fired electricity gene- of a serious accident extremely small, and express optimism rated in Arizona, Nevada, or the Four Corners area and over the resolution of radioactive waste disposal problems. imported byhigh-voltage transmission into southern California. Opponents question the reliability and high cost factorsin SRI has estimated that 5,000 to 15,000 Mw of electric gene- nuclear reactors there is a growing public concern, also ration capacity from out-of-State coal-burning power plants over such matters as the safety hazard associated with the could be available to California users by 2000. potential for a serious accident that might permit escape of radioactive material; the possibility of acts of sabotage or Synthetic Natural Gas to be Produced from Coal and Imported radioactive material; the possibility of acts of sabotage or California. hen commercial production of synthetic terrorism using nuclear materials stolen prior to or during nato uralifornias When fommercal srodguntin tRoky Munthtin the transport of fuels or wastes; and the uncertainty as to how natural gas (SNG) from coal is begun in the Rocky Mountain to dispose safely of nuclearwastematerialsthatwillremain coal deposit areas, California will begin to receive some measure of SNG from coal by pipeline - primarily for resi- dential and commercial use. If large-scale gasification plants Nuclear Plants Require Cooling Systems. Light-water scheduled for construction and operation near mine sites reactors (LWRs), in which the U.S. has invested most heavily, in the western states should come on line as scheduled, are thermally less efficient than fossil fuel power plants, such SNG imports could begin as early as 1979-80. Though and therefore emit more waste heat. High-temperature gas- gas from these plants would amount to a very small percentage cooled reactors (HTGRs) are thermally as efficient as the of California's gas requirement, SRI has forecast thatSNG most modern fossil fuel plants. Systems for dissipation of from coal may constitute as much as 16 per cent of California's waste heat can have significant environmental and land and natural gas use by 1990. The cost of developing such sources, water use impacts. as well as the amount of water required. however, has put some of the more optimistic figures in doubt. Breeder Reactors Also Have Problems. France, England, and the Soviet Union have experimental liquid-metal fast Environmental Problems from Use of Coal. The coal mining breeder reactors (LMFBRs) in operation at this time. The and coal conversion operations in the Rocky Mountains and Federal government is committed to the rapid development Four Corners areas have severe environmental consequences and widespread deployment of this technology. Most of the in the immediate mining areas. problems associated with converter reactors also affect Nuclear Fuej D Tur b i n e ~Generator I.Electrical Power C( / - . [I Turbine ~~Generator -- In -Control Rods il Ill Transformer Nuclear Power Through Fission (Splitting) of Atoms: iReactor Vessel Control rods start or stop fissioning, which creates the heat that produces the steam that drives the turbine blades that generates the electricity. Seawater is used to cool the steam back to water, and the heated seawater Condenser Ll is discharged into the ocean (see Marine Environment Cool~ ~ sectionon Heated and Cooled Discharges). Cool Warm Water In Water Out ENERGY � 107 i Power Plant Geothermal Energy Injection Well Producing Wells ii~~i~:~ .~ ~/~//~/. ~~~~~ Geothermal Resources. In places where the earth's crust is shallow or heavily fissured, as along major earthquake faults or in areas of recent volcanic activity, hot magma may pene- trate close enough to subsurface waters or brines to heat add by �ti70 09000 / > % 0 0 :/them. The resulting hot water or steam may find its way to the surface as geysers, fumaroles, or hot springs; or it may be tapped from underground reservoirs within permeable rock or !i;i: /s//'JJ.//- in fissures using conventional oil and gas well-drilling and pro- duction techniques. At The Geysers (photo on page 109), a geothermal field under development by PG&E, dry steam is tapped and released directly through turbines to generate elec- X # W | //////�Crystalline Rocks S tricity. Most geothermal reservoirs, including those in Cali- fornia's Imperial Valley, contain hot, mineral-laden brine rather than steam, making their use for electricity production more ?'~~~~~~ /~'~'~~~~ ~problematical. breeder reactor development. In fact, because breeder Geothermal Potential Is Significant. There are 35 potential reactors require a fast neutron flux and a highly concentrated geothermal resource areas covering more than 15 million fuel, they actually present greater health and safety problems acres within California. Geologic research and activity has than conventional reactor technology. largely been confined to the three most promising sites: The Geysers, with a present capacity in excess of 400 Mw; Accelerated Breeder Reactor Program May Be Unwarranted. the Imperial Valley; and the Mono Lake-Long Valleyarea. The breeder reactor program is being accelerated because A fairly conservative range of potential generating capacities of an apparent fear of an eventual shortage of uranium, but (listed in megawatts) from geothermal sources is as follows: a California Institute of Technology study shows that even the most enthusiastic projected expansion of nuclear power (Year) The Geysers Imperial Valley Other Areas generation through 2020 could be fueled from presently 1980 1,300 0-700 0 known domestic uranium supplies. Though the cost for these 1990 1,300-3,000 1,000-4,000 0-3,000 supplies would rise, the effect on the average delivered 2000 1,300-5,000 1,000-8,000 0-3,000 cost of electricity would be minor. Other recent analyses have similarly concluded that there is not sufficient justifi- cation for an accelerated breeder reactor development pro- TIDAL ENERGY gram. The most recent Federal budget for energy research and development reflects a slight decrease in emphasis on breeder reactor development as the principal energy resource Tidal Energy Not Promising in California. Although the b reeder reactor development as the principal energy resource total potential energy in the world's tides is enormous, and represents a nondepletable source of energy, present tech- nology 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 nowhere in the U.S. Geothermal Power Is a Desirable Energy Source. Geothermal except in Maine and Alaska. The damming of an entire bay energy has great potential in California. Despite environ- or estuary for a tidal hydroelectric generating plant has mental problems of waste water disposal, soil erosion, severe environmental and ecological effects. Unless there disruption of wildlife habitat, disposal of drilling muds, is a radical redesign of existing technology for the conversion hydrogen sulfide and small Radon 222 air emissions, land of tidal energy, California should not expect tidal energy to subsidence, and noise, the geothermal fuel cycle (including make a contribution to meeting its energy requirements. mining, milling, actual use, waste processing, and disposal) is less polluting than that of fossil or uranium fuels. Geother- mal energy represents a very long-term resource that may NUCLEAR FUSION have the potential to supply up to 15 per cent of the additional electrical energy capacity required by 2000. California's only Nuclear Fusion Is Not a Commercial Reality in This Century. commercial geothermal energy is produced from a dry steam Nuclear fusion differs from nuclear fission in that energy is field called The Geysers in Sonoma County, under develop- released through fusing the nuclei of two atoms, rather than ment by PG&E; geothermal energy has non-electric appli- through splitting atoms. Nuclear fusion would use as basic cations in California for heating water and buildings and for fuel heavy hydrogen, which is limitlessly available in sea- recreation (hot mineral baths, for example). water. The various economic, environmental, and safety 108 a PART II: FINDINGS AND POLICIES advantages expected from nuclear fusion appear to make c. Work to Resolve Problems of Other Alternative it a significantly more viable long-term energy alternative Energy Sources. The Energy Commission, the than fossil fuels or nuclear fission. Even with greatly increased California Public Utilities Commission, the research and development activity, however, most experts believe that various theoretical and technical problems still Legislature, and where appropriate suchState blocking the path to electricity from fusion are so enormous agencies as the Division of Oil and Gas, the that fusion probably will not become a commercial reality or Geothermal Resources Board, the Solid Waste a significant factor in meeting California or national energy Management Control Board, and the Water needs within this century. Resources Control Board, are urged to under- take programs to determine the potential of ~~~~~ENERGY STORAGE ~alternative energy sources in California and ENERGY STORAGE to resolve technological, environmental, Energy Storage Increasingly Important in Energy Systems economic, institutional, and legal problems Planning. Energy S torage is becoming increasingly Important presently hindering their development. Such Planning, Energy storage is becoming increasingly important in planning energy systems that minimize the environmental programs shall focus particularly on developing impact of meeting energy demand. Energy storage tech- (1) the large geothermal resource present in niques can be applied to enable longer periods of operation California; (2) large-scale commercial and for base load power plants and thereby reduce the require- single-building solar and wind conversion tech- ment for additional generating facilities; to change energy nologies; (3) energy and materials recoverable from one form to another for more economical, convenient, or environmentally clean transmittal or application; and to from solid wastes (including animal wastes) make practically feasible such alternative energy sources and sewage; and (4) methanol as a more as solar, wind, tidal, and thermal gradients, which produce efficient, less polluting fuel form to substitute energy inconsistently or at avery slow rate. Significant energy for other conventional hydrocarbon forms. storage techniques include pumped hydro storage, fuel cells, storage batteries, flywheels, and conversion of energy in other forms into hydrogen. 75. Recommendation for Implementing Solar Heating and Cooling Systems. The following measures are recommended to the Energy Com- mission for its consideration in developing state- Policies wide programs for implementing alternative tech- nologies. However, if for any reason the Energy 74. Encourage Development of Alternative Energy Commission is unable to effectuate such programs 74. Encourage Development of Alternative Energy Sources. Development of alternative energy by July 1, 1977, then, because of their importance Sources. Development of alternative energy sources shall be encouraged for large-scale power- to coastal protection, the coastal agency shall be sources shall be encouraged for large-scale power- generating facilities and for new and existing empowered to require, after public hearings, that generating facilities and for new and existing small-scale developments these alternative energy measures be included small-scale developments. in local coastal plans. Until such time, where a. Require Consideration of Alternative Energy proposed developments are otherwise consistent Sources. Every proposal for a major energy with the Coastal Plan, the application of alternative installation shall include detailed evaluation of energy measures to such developments in the alternative methods for providing the same coastal agency's jurisdiction shall be encouraged. amount of energy. b. Provide Tax Incentives for Energy-Efficient a. Recommendation to Determine When Delivery and Energy Self-Sufficient Development. It is System Exists. The Energy Commission (or recommended that the Legislature enact laws the coastal agency, after July 1, 1977) should providing tax incentives (e.g., income tax determine, after appropriate public hearings, credits, reduced property tax rates) for building whether an effective delivery system for solar- owners or developers to install low- or non-fossil assisted heating or solar-assisted or nocturnal fuel energy systems, which might include solar- cooling exists in California - that is, whether assisted water and space heating, solar-assisted the professional expertise in design, manu- cooling, nocturnal cooling, evaporative cooling, facture, installation, and maintenance of solar- heat pumps, absorption refrigeration, photo- assisted heating systems or solar-assisted or voltaic electrical energy generation, total energy nocturnal cooling systems capable of meeting systems with waste heat recovery, anaerobic at least 50 per cent of the building's projected sewage generation of methane gas for energy heating or cooling needs with a high degree of use, windmill electric generators, fuel cells, reliability, and comparable to conventional energy storage systems, and other feasible systems in costs over the life of the systems, alternative energy systems. exists in the State, and whether the necessary ENERGY * 109 hardware is commercially available. Such a collection, (2) could not be incorporated in the determination should take into account the project within a reasonable period of time, or varying climatic conditions throughout the State. (3) will not provide a lower cost than the pro- b. Recommendation to Require Alternative Heating posed conventional system over the life of the and Cooling Systems. Once it has been deter- system. Such solar systems should include mined that an effective delivery system exists, adequate energy storage capability (determined solar-assisted water and space heating systems based on climatic and peak load characteristics and solar-assisted or nocturnal cooling systems of various regions) to provide heat during (where buildings require cooling systems) periods of abnormally severe weather conditions should be required on all new or substantially and to prevent use of conventional systems remodeled residential, commercial, institutional, for back-up during peak load periods. and industrial structures, and on heating c. Recommendation to Require Capability to systems for such facilities as swimming pools, Incorporate Solar Collector System. Until an except where, in individual cases, a solar system effective delivery system exists, new structures (1) is impractical because of site conditions or should (1) have the structural and design adjacent obstructions that severely limit solar capability to later incorporate, a solar collector The Geysers geothermal field, Sonoma County -44-s I~~~~~~~cr5 ~ ~ ~ ~ ~ ~ g " 110 * PART II: FINDINGS AND POLICIES system, with clear and optimum exposure to the Legislature and the Energy Commission the sun, capable of reducing by 50 percent (1) set testing and certification standards for the gas or electricity used for water and space solar systems; (2) undertake a program that heating; and (2) install the solar-assisted water will lead to retrofitting with solar heating and space heating systems upon the subsequent systems existing buildings and swimming or determination that a solar-assisted system with hydro pools that use gas and/or electricity, a life-cycle cost lower than conventional systems wherever technically and economically feasible; is available. Consideration should be given and (3) require that local government agencies to requiring performance bonds to ensure adopt "sun rights" ordinances to ensure that compliance. owners of buildings or property will have the d. Recommendation for Testing and Certification; benefits of free and clear access to sun radiation Retrofitting of Solar Heating Systems; "Sun on existing or potential collector systems at Rights" Ordinances. It is recommended that all times of the year. ENERGY FACILITY SITING AND DESIGN Findings explicitly exempted from the provisions of the Energy Act. More significantly, under its present mandate the State Energy Commission will not determine when or where explo- Warren-Alquist Energy Act Creates New State Energy ration and development of State offshore oil reserves will Commission. On January 7, 1975, the California Energy occur, or have permit authority for siting onshore facilities Resources Conservation and Development Commission associated with State and Federal offshore oil development, (hereafter referred to as the Energy Commission) came into tanker terminals, refineries, or liquefied natural gas terminal existence. This new Commission, created through passage and gasification facilities, all of which are projects of sig- of the Warren-Alquist Energy Act (AB 1575; Public Resources nificance to coastal planning and management. Code, Section Section 25000 et seq.) in the 1974 Legislative session, has a broad mandate to: Other Agencies Lack Sufficient Jurisdiction. Other State agencies, such as the State Lands Commission, the Public Asselectricitye and other forecams of e nergy; for Utilities Commission, the Water Resources Control Board, the Division of Oil and Gas, and the Air Resources Board, � Determine the need for new power plants and to evaluate all regulate activities affecting energy development in and certify proposed designs and sites either on the coast California, but none has the jurisdiction over all such facilities or inland (power plants in the coastal permit zone still that would permit a comprehensive, balanced approach to require separate Coastal Commission permit approval); energy conservation and development throughout the State. � Study and promote the development of new alternative The Coastal Commissions now have authority over power energy resources and new generation and transmission plant siting in the 1,000-yard coastal permit area. techniques; Coordination by One Statewide Energy Authority Needed. � Prescribe and carry out new and expanded energy con- Determinations of energy needs and development of an servation measures; and inventory of sites for all major energy facilities might best � Make recommendations to the Governor and Legislature be coordinated by a single statewide energy authority, with for State policies and actions for the orderly development the opportunity for intensive review and comment at all of all potential sources of energy to meet the State's needs. planning stages afforded to all concerned agencies, and with a separate, concurrent permit authority for coastal siting decisions reserved to the coastal agency. Siting Authority of State Energy Commission Is Limited. Despite its very broad mandate to act on energy issues, the Coastal Agency Can Work Closely with Other Agencies on State Energy Commission has authority to approve siting for Siting Permits. The goal of comprehensive energy planning only one of the five types of energy supply-related develop- will be best served by the coastal agency's working closely ment that could affect the coastal zone: electric power plants with the Energy Commission and other State and local and transmission facilities. Most of the new power plants agencies in developing its siting policies and evaluating presently being planned by electric utilities, however, are permit applications. ENERGY Ill1 EXISTING, PROPOSED, AND POTENTIAL COASTAL ENERGY FACILITIES *Proposed liquefied natural gas (LNG) marine terminal OEO ;~ Possible alternative LNG marine terminal Crscn CiEGOy (Both LNG identifications by Southern Cailfornia Gas Company, 1975) Crsetiy Z- *Existing refinery ~E OT o) Proposed refinery -rE OT AExisting tanker berthing failte A Offshore tanker terminal, conventional buoy mooring Eureka 'J IPotential deepwater port sites (identified In Army Corps of Engineers' West Coast Deepwater Port Facilities Study, 1973) HMBLT/ *Existing fossil fuel power plant /I OExisting nuclear power plant/ /MENDOCINO 'ISONOMA IN/ XXX AA SA RANCISCO Bosom. J(AN MATEO Moss Landing ,SANTA CRUZ ~?MONTEREY Morro Bay x0* ~ ~ ~ ~ ~ SAN LUIS OBISPO VSANTA BARBARA Pt Conception V A 1 "-VENTURA 00000 /~~~~~~~~~~LOS ANGELES A A AkA A AA A X I I 11 % WN~~~~~ORANGE ',4AN DIEGO PA~~~~~~ 112 * PART II: FINDINGS AND POLICIES Policy facilities to help meet statewide and national energy requirements. The State Lands Commission shall continue to have leasing authority over facilities proposed for location on State lands. 76. Establish a Statewide Agency to Plan and All other concerned local, State, and Federal Certify All Energy Facilities. It is recommended agencies shall have full opportunity to review and that the Legislature extend the site planning and comment at designated stages of any application certification authority of the Energy Commission before the Energy Commission. To minimize to include, in addition to electric power plants, all conflicts between the Energy Commission and major oil, gas, or other energy source production, the coastal agency, the coastal agency shall parti- processing, and transmission facilities within the cipate fully in review and comment procedures State. It is also recommended that the coastal for all initial stages of site planning, and shall agency have permit authority (concurrent with explore the feasibility of holding joint public that of the Energy Commission if its authority hearings with the Energy Commission on site is extended as proposed above) over the need, selection and facilities siting proposals. environmental, and land use aspects of any such It is recommended that the Legislature consider It is recommended that the Legislature consider facilities proposed in whole or in part within the mandating the Energy Commission to establish, mandating the Energy Commission to establish, coastal zone. Prior to exercising its permit au- in coordination with the coastal agency and all in coordination with the coastal agency and all thority over such coastal facilities, the coastal concerned California agencies, a prioritized list concerned California agencies, a prioritized list agency shall receive from the Energy Commission of predesignated, approved inland and coastal of predesignated, approved inland and coastal for its evaluation a formal finding as to the need sites for each of the various types of energy faci- sites for each of the various types of energy faci- for the facility and the availability of acceptable lities, to further reduce the time necessary for lities, to further reduce the time necessary for alternative sites. The coastal agency's permit alternative sites. The coastal agency's permit decisions on nominated sites and facilities. Until authority over coastal energy facilities shall a prioritized list of approved sites is established, be exercised consistent with approved local be exercised consistent with approved local applications for coastal energy facilities shall coastal plans. ~~~~~coastal plans. ~include designation and evaluation of at least two Preparation and approval of such local plans reasonable alternative inland or coastal sites shall, to the extent possible, anticipate and fully reasonably capable of supplying the applicant's consider the possible need for coastal energy service or market area. POWER PLANTS Findings such as solar, geothermal, and wind, will also require sites for power generation facilities. Wind development may Several New Power Plant Sites Will Be Needed. Additional require large-scale facilities sited on the coast, though there fossil-fueled and nuclear power plants may be needed in the are inland sites with equally good wind generation potential. future even if energy conservation programs are successfully Solid waste processing plants could be sited in the coastal implemented and alternative energy sources become com- zone, but are not coastal-dependent. Geothermal and large- mercially available. Under reasonable assumptions regarding scale solar plants will be located inland. Large-scale wind demand growth, and assuming 2,000-6,000 megawatts (Mw) generation units would present aesthetic and land use per site with some expansion at existing sites, seven to 20 problems, though design specifications are uncertain at this major new fossil- or nuclear-fueled power plant sites may be time. Small-scale or building use of solar or wind energy in needed by the year 2000 for California. With a particularly the coastal zone would occur as part of building construction, vigorous and successful effort to develop alternative energy and present few significant adverse environmental impacts. sources and implement conservation measures, it is possible Nuclear Power Plant Siting Concerns. The major concerns that as few as three to nine new fossil or nuclear power plant sites may be needed statewide. With successful electricity involved in nuclear power plant siting on the coast are: conservation measures, the lower ends of these ranges may � Safety hazards resulting from the high potential for strong prove attainable. earthquake events in much of the coastal zone (see Develop- ment chapter section on Geologic Hazard Areas) or from Alternative Energy Sources Will Also Require Power the potential for serious accident (e.g., loss of coolant) Generation Sites. Development of alternative energy sources that could permit escape of radioactive materials; ENERGY * 113 � Proximity of nuclear power plants to population centers Optimum Coastal on the coast and the adequacy of emergency evacuation .OREGON planning; -> Areas for Licen- *� Effects on the productive nearshore marine environment 2 , sability of Nuclear of entrainment and thermal or chemical discharges from 'DELNORTE PowerPlants the cooling systems; � The impact of plant and associated structures, such as 1 (Based on Seismicity switchyards and transmission lines, on scenic natural and Population) areas; and )3 HUMBOLDT � Alteration and permanent use of sizable quantities of land 2 / for the plant itself, cooling towers, switchyards, trans- Mosttavorable- minorto mission lines, and transportation and storage facilities, moderate earthquake in- and surrounding population exclusion areas. tensity zone; 0.1g maxi- mum probable bedrock ac- celeration. Not mapped; no Fossil Fuel Plant Siting Concerns. The major concerns 2such areas along coast. involved in fossil fuel power plants on the coast are: MENDOCINO Favorable - maximum � Public health and safety hazards from air pollution and probable bedrock acelera- the transportation of volatile fuels, ton more than 0.19 but no more than 0.30. � Effects on the marine environment, similar to those Possible-maximum pro- encountered with nuclear plants, )1 f2bable bedrock acceleration I3 more than 0.3g but no � Impacts on scenic and natural areas, and ONOMA more than 0.5g. * Land use considerations. Special Consideration - major earthquake intensity Power Plants Traditionally Located Near the Coast. Though zone;greaterthan0.5g,or a variety of factors influence siting decisions, power plants near faults classified as have traditionally been located near the coast in order to ANCISCO tive" make use of the free, abundant, and nondepletable waters Areas restricted due to of the ocean and to be close to the major load centers of i _ nearby population (Fede- the State. Ninety per cent of California's thermal power v IV1ATEO - ral standards) generating capacity is sited along the coast or in the San _ Faults with reported sur- Francisco Bay system. SNACUN. face rupture during histo- FacsomNTA CRUZ ric times (since 1759) Few Coastal Sites Are Suitable for Nuclear Power Plants. Note: Map shows broad Very few coastal sites are suitable for nuclear power plants, area separations. Suitable compared to a much larger number of potential inland sites. power plant sites may be The radiation hazard potential of nuclear power plants 2 MONTEREY tailfound sit e investigategory. De- requires that the utmost care be exercised to site them away always required. from areas of seismic risk and from population concentrations. Source: Resources Agen- Few coastal areas meet these criteria, while the areas of cy, Energy Dilemma: Cali- the State that offer the least seismic risk are located inland. fornia's 20-Year Power Studies done by the Rand Corporation and the Environmental 2Plant Siting Plan, June Quality Laboratory of the California Institute of Technology 1973. concluded that only about 50 miles of coastline may be SAN LUIS OBISPO suitable for nuclear power plants. Using less conservative 3 assumptions about safety, a study conducted for the California Resources Agency concluded that 140 miles of coastline 1 might be suitable, but no coastal areas were considered 2 optimal from the standpoint of safety compared to other A BARBARA areas of the State. The California utilities are presently V--ENTURA considering about 12 new coastal sites for power plants 3. , . _ between now and the year 2000. 3 ~"~ Add_-.~ -==2 3 Inland Areas Offer Siting Options. There are many more - - potential nuclear power plant sites inland than on the coast that meet seismic safety and population concentration LOS ANGELES 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 OR salinity concentrated by evaporation in the cooling tower). If sufficient cooling water is available, inland siting of nuclear RSAN DIEGO power plants is both economically and technologically feasible; 2 the electric utilities have proposed to build at some inland 3 sites where sufficient freshwater supplies have already been 3 ' allocated for cooling. Because of the importance of fresh / water for agriculture and other uses, however, proposals MJIEXICO - . 114 * PART II: FINDINGS AND POLICIES to use additional fresh water for inland power plant cooling but these problems can be minimized or eliminated by have been vigorously challenged. Much of the cooling water modern engineering and strategic siting. Evaporative cooling requirement inland could be met by reuse of municipal and towers using salt water are becoming more feasible as drift agricultural waste water. There may be competition between eliminators are improved, reducing the danger of contami- uses of waste water for cooling and other beneficial purposes. nating the surrounding land area. Such towers would eliminate New crop strains may be developed that could use what many of the concerns over impacts to the marine environment is now agricultural waste water. If the problem of nutrients, but would present the added problem of generating concen- and other water quality problems, can be solved, the continued trated brine that requires disposal. discharge of agricultural waste water into the Central Valley river system will reduce salt water penetration into the Delta. Viability of Dry Cooling Towers Not Established. Dry cooling Widespread use of waste water for cooling would necessitate towers, which operate like a car radiator, and dry/spray the construction of wastewater collection, treatment, and towers, which add an evaporative system in combination transportation facilities and adequate restrictions an the with dry towers, require little or no water but are larger disposal of blow down in the waters of the State. The cost and more expensive than evaporative towers. While dry of such facilities could be defrayed by the electric utilities cooling towers are technically feasible their commerical themselves. Energy conservation measures, and use of more viability for use with large-scale power plants has not yet efficient reactors such as the high-temperature gas-cooled been established. reactor (HTGR - see finding under "Nuclear Fission" in section an Alternative Energy Sources) coupled with dry or Cooling Towers Are Visually Obtrusive. All cooling towers dryispray cooling towers, would mninimize the pressures for are large structures, with resulting visual impacts, and they developing additional freshwater sources. result in some efficiency penalties in the use of energy sources. While there is some loss in energy efficiency in Power Plant Once-Through Cooling Systems Can Adversely the use of cooling towers (dry towers are less energy-efficient Impact the Marine Environment. The cooling systems of than evaporative towers), this energy cost may be necessary both fossil and nuclear power plants can have adverse to reduce depletion of other resources. environmental effects. Once-through cooling systems of the designs now used in all existing coastal power plants Reactor Types and Cooling Systems. Because of their lower (cooling water is used once and then discharged into the efficiency in converting heat energy to electricity, nuclear ocean or other water body) have multiple impacts on the light water reactors (LWRs) give off more waste heat than marine environment and have potential for ecological damage fossil fuel plants or other types of nuclear plants, and therefore caused by increased ambient water temperatures, entrainment require more cooling. The commercial feasibility of the HTGR, of marine life, and other effects as described in the Marine which has a higher efficiency and therefore requires less Environment chapter. Redesign may reduce those impacts. cooling than the LWR, has now been demonstrated. H-TGRs using dry/spray or dry cooling tower systems appear to be Use of Evaporative Cooling Towers Eliminates Many Impacts well adapted for use at inland sites where water availability on the Marine Environment. Evaporative cooling towers for cooling is a significant problem. consume 25-40,000 acre-feet of water per year per 1,000 Mw, and release heat directly to the atmosphere. Evaporative Underground Siting Is Feasible. Underground siting is cooling towers may cause localized atmospheric changes technologically feasible, but is more expensive than above- (such as fogging) and drift (fallout of particles carried in ground siting. The environmental benefits of underground water droplets) which under some conditions could be adverse; sites are considerable because of reduced visual impact, Mechanical Draft and Wet Cooling Tower Power Plant Cooling System OUTLET AIR -~~~~O AE HOT WATER ~~~~~ ~~~~INLET AIR - INLET AIR Feedwater ~~~~~~~COOLED WATER to Boiler ENERGY * 115 possible safety advantages afforded by some types of rock formations, and the potential for multiple use of the land. Offshore Nuclear Plants Are Feasible But Potentially Hazardous. It now appears technologically feasible to con- struct 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 - P fX. shore, than off the shore 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 close to shore, the potential hazard to navigation, and the likelihood that a major accident resulting in release of radioactive materials would cause 'o - 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 off- shore plant has yet been licensed by either the Atomic Energy Commission or its successor, the Nuclear Regulatory Com- mission. Siting concepts have also been developed for floating nuclear plants in manmade or dredged lagoons. Fossil Fuel Plants Adversely Impact Air Quality. Fossil fuel plants in California are expected to be primarily oil-fired Moss Landing power plant (oil storagetanks in foreground), Monterey County in the future because of the decreasing availability of natural gas. Oil-fired power plants represent large stationary sources identification processes, including the establish- of oxides of nitrogen and sulfur, and the problem of sulfur ment of a prioritized list of predesignated, approved dioxide emissions will become particularly severe if low- inland and coastal sites for power plants, as sulfur fuels become unavailable. Though significant research and engineering efforts to reduce air pollutant emissions proposed in Policy 76. The role of the coastal are continuing, fossil fuel plants at present do haveasig- agency in siting power plants shall not be inter- nificant adverse impact on air quality, particularly in critical preted as an effort to exclude all power generation air areas where pollution levels are already exceeded, and facilities from the coastal zone. Site selection and in areas especially sensitive to air pollution, such as specialty facility approval shall proceed with the goal of agricultural and coastal recreation areas (see Coastal Land Environment chapter). protecting inland as well as coastal resources, and the need for sites and facilities shall be measured by the Energy Commission within the context of a comprehensive energy conservation Policies and development program. 79. Criteria for Siting and Design of Coastal Power 77. Coastal Agency Role in Siting Coastal Power Plants. New and expanded power plants shall be Plants. Pursuant to Policy 76, the coastal agency permitted in the coastal zone when the following shall have permit authority over the need, land criteria and standards can be met use, and environmental aspects of new or expanded power plants in the coastal zone, including those a. Energy Conservation and Peak Load Reduction projects exempted by law from the Energy Com- Efforts. The applicant must demonstrate that mission permit requirement. Where the two energy conservation efforts, including concerted agencies exercise concurrent permit authority, efforts by the applicant within its service area, the coastal agency shall make its permit decision cannot reasonably reduce base-load and peaking prior to the Energy Commission's final certification requirements sufficiently to eliminate the need decision. In conducting its review, the coastal for the proposed facility. agency shall work closely with the Energy Com- b. Coastal Sites Vs. Alternative Inland Sites. mission to identify potential coastal concerns early The applicant must show that using reasonable in the application process, minimize the potential alternative inland sites or alternative techno- for conflict, and enable a final decision on applica- logies would have greater adverse environ- tions within a reasonable time. mental impacts than would be the case with a coastal site. Environmental impacts shall be 78. Coastal Agency Role in Ongoing Site Iden- those presently identifiable. In evaluating alter- tification Process. The coastal agency shall be native sites and technologies, in addition to granted a substantial ongoing role in Energy the factors included in the Warren-Alquist Act, Commission statewide policy formulation and site consideration shall be given to use of evapora- 116 * PART II: FINDINGS AND POLICIES tive, dry, dry/spray, and salt water evaporative or certification of such a site by that Commission cooling towers, and the following potential demonstrates that such suitable alternative water sources shall be considered in evaluating inland sites are available. the impact of providing cooling water at inland sites: (1) surplus freshwater supplies already c. Plant Expansions Favored Over New Coastal allocated to power generation but not presently Sites. In the case of a proposal for a new coastal being used; (2) agricultural or municipal waste site, the applicant must show that the need water; (3) freshwater supplies that can even- for new capacity cannot or should not be met tually be replaced by waste water; and (4) other by plant expansion at an existing inland or freshwater supplies, if it is determined that coastal site that has been identified as suitable there is sufficient water available after the for expansion. The primary responsibility for the reasonable needs of other priority users are identification of such sites suitable for expansion met so as not to deprive inland or coastal areas shall rest with the Energy Commission. of fresh water needed for agricultural production of groundwater maintenance. To assist in d. Conflict with Coastal-Dependent Uses at or evaluating alternative sites the utility or utilities near Site. The applicant must demonstrate proposing the coastal site shall submit acom- that the proposed power plant and the land prehensive evaluation of reasonable alternative use restrictions that may be required by the coastal and inland sites and generating tech- Energy Commission on the area surrounding nologies, including the environmental and a plant, for protection of public health and economic reasons for rejecting them in favor safety, will not conflict with other existing or of the proposed site, sufficiently in advance of planned coastal-dependent land uses at or a desired decision that an adequate and inde- near the site. pendent analysis can be made. The primary e. Nuclear Plants Must Be in Seismically Safe responsibility for the identification of such Areas. In the case of a nuclear power plant, alternative inland sites shall rest with the the applicant must show that the proposed site Energy Commission, and the identification is in an area of minimum seismic hazard in Diablo Canyon nuclear power plant, San Luis Obispo County ENERGY * 117 comparison to alternative sites reasonably air quality standards have been established. capable of serving the applicant's service area Reduction in emissions can be accomplished and that the proposed plant is designed to by modernization or retirement of existing safely withstand the effects of the most severe facilities. Priority consideration shall be given seismic activity thought possible in the site area. to reducing emissions at existing facilities that affect the specific area to be affected by emis- f. Radiation Hazard Criteria. In the case of a fr the pro e aect b ei sions from the proposed project. In addition, nuclear power plant, the applicant must show consideration shall be given to utilizing plant that the number of people and their distribution eietin apbe ge onv equipment and design capable of easy conver- within the potential radiation hazard area meets in s cle fe as ne sion to such clean fuels as methanol, when and is limited to Federal Nuclear Regulatory th ce flabe th ol e they become available, or there should be Commission and State Energy Commission commitesio and Statt pleEanberegy findings of fact that methanol is not and will criteria and that the people can be readily actedriandh the peven can eergeay not be practical for use at the particular plant. evacuated in the event of an emergency. i. Minimize Environmental and Scenic Impacts. g. Use Least Environmentally Damaging Tech- The applicant must design and locate the plant nologes. he aplicat mut sho tha theThe applicant must design and locate the plant nologies. The applicant must show that the so as to minimizeadverse visual impact on the generation and cooling systems proposed are shoreline and adverse environmental effects, the least environmentally damaging technolo- including but not limited to effects on fish and gies rojeted o beavaiableat te tie ofincluding but not limited to effects on fish and gies projected to be available at the time of wildlife and their habitats, and on scenic, schedled onstrctio. Th coolng sstemwildlife and their habitats, and on scenic, schneduled construction. The cooling system agricultural, and other resources of the coastal techntoology employed shall meet the require- zone. The plant shall not be located in a highly ments of Policy 10. Improvements in the cooling scenic area as defined in Policy 45. systems of existing facilities at the site may be weighed by the coastal agency in deter- j. Public Access Area Necessary. The applicant mining compliance with this subsection. must show that a substantial area will beesta- blished for permanent public use and enjoyment h. Fossil Fuel Plants in Air Quality Maintenance of the coast. This may include a substantial Areas. In addition to meeting the standards dedication to the public of land, which need set forth in Policy 43, new or expanded fossil not be adjacent to the plant site but shall be fuel-fired electric generating facilities shall not of the same quality and in the same general area. be built in areas of the coastal zone designated by the Air Resources Board as Air Quality 80. Remove Outmoded Power Plants from Beach Maintenance Areas or in areas where such Areas. As alternative, less environmentally coastal resources as health resorts or agricul- damaging technologies become widely available, tural lands would be adversely affected, unless so that some of the existing fossil fuel or nuclear there would be a net decrease in generating generating facilities can be phased out and system emission over the entire air basin of removed, priority shall be given to removal of those pollutants for which national or state ambient facilities that are in prime beach recreation areas. PETROLEUM DEVELOPMENT Findings California's Potentially Recoverable Petroleum Resources. to exist because of favorable geological conditions but California has two general areas of petroleum production: not yet verified; onshore and State submerged lands offshore. In addition there are Federal submerged lands offshore beyond three economic factors such as price of crude oil and cost of miles. Estimates as to how much recoverable oil remains exploration and production; in these areas vary greatly, depending on assumptions * technological factors such as capability to recover petro- as to: 1*0 a s t o: ~.....~ I.,leum at increased water depths, and improved secondary the size of known reservoirs, and of reservoirs thought recovery methods; 118 * PART Il: FINDINGS AND POLICIES the percentage of the oil in California reservoirs ultimately Existing and Proposed Offshore recoverable (average recovery efficiency). Petroleum Leasing The figures below (in billions of barrels) give a representa- tive range of estimates, each based on varying assumptions , OREGON and methodologies, of California's remaining recoverable petroleum resource: ' ' . Undiscovered Estimated TotalEL NORT Demonstrated Recoverable RecoverableDEL NORTE Reserves Reserves Reserves 2 Onshore Calif. Resources Agency ('73) 5.1 6.8 11.9 , U.S. Geological Survey ('75) 3.7 4.0to 11.0 7.7 to14.7 Natl. Petroleum Councl ('73) to110 7.7 o14.7 ,'HUMBOLDT :. State of California oil and Natl. PetroleumCouncil('73) n.a. 5.1 (5.1 +) gas sanctuary areas (no oil / Offshore or gas production) OResources Agency 0. E m Federal Outer Continental Resources Agency 0.9 5.7 6.6 Shelf (OCS) -areas under (to 1,200ft.) - consideration by the De- USGS 1.1 2.Oto 5.0 3.1 to 6.1 partment of the Interior for .) leasing in 1977-78 (to 636 ft.) /MENDOCINO leasing in 1977-78 NPC n.a. 12.4 (12.4+) Western Oil & Gas Assn. ('74) n.a. 6.0to19.0 (6.0+ t119.0+) (nodepthlimit, So. Cal. only) TOTAL (range) 10.8+ to33.7+ SNMA The degree of uncertainty in measuring the petroleum re- / source is evident. Estimates as to total recoverable reserves onshore and offshore range from about 11 billion barrels to . l about 35 billion barrels. RIN AN FRANCISCO California's historical average recovery efficiency is only F , about 25 per cent of the total original oil-in-place. If increased oil prices and improved recovery technologies should allow (SAN MATEO an improved California recovery efficiency Qf up to 35 per cent, A'A as some experts believe possible, amounts of oil substantially , SANTA CRUZ larger than those listed above will be possible both from demonstrated and yet undiscovered reservoirs. , Offshore Areas Are Future Locations of Oil and Gas Pro- '-MONTEREY duction. California's onshore petroleum resources are still very substantial, though the largest reservoirs have probably 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 onshore production will depend on ASAN LUIS OBISPO improved secondary and tertiary recovery techniques, andS 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 TA 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 off the shore of California is believed to lie beneath Federal , \ submerged lands beyond the State's jurisdiction, as much as 65 per cent of it at water depths of 1,500 feet or more. ,\ LOS ANGELES The extent and cost of developing the Federal offshore resource cannot be completely known until after exploratory , drilling has occurred. � NGE Current Offshore Production Comes from Both State and DIEGO Federal Leased Areas. Most of the present California offshore production comes from operations in the Santa Barbara SEE DIAGRAM Channel and offshore Wilmington and Huntington Beach FOLLOWING PAGE reservoirs. There are substantial production operations on Federally leased tracts in the Dos Cuadros and Carpinteria fields. According to 1971 data, there are more than 1,800 \- actual producing wells on State-owned submerged lands ENERGY * 119 between Point Conception and Huntington Beach. The State mile State jurisdiction, for lease proposals for large areas receives lease payments and royalties from any petroleum off central and northern California at a later date, and for production on its submerged lands, which are managed by increased drilling on existing Federal leases in the Santa the State Lands Commission. The vast majority of the State's Barbara Channel. (If the Department of the Interior decided submerged lands have been made State petroleum resource to proceed with its lease-sale of the southern California area, sanctuaries in which no petroleum recovery activities are the sale was to occur in November 1975. The Governor and allowed. Laws creating additional petroleum sanctuaries all concerned State agencies publicly requested that the lease have been proposed in the California Legislature and the sale be postponed until (1) California had completed its U.S. Congress. Coastal cities (e.g., Long Beach) also hold coastal planning effort, and (2) the Congress had taken contracts allowing them to receive a portion of net profits final action on draft legislation effecting numerous essential from offshore operations adjacent to their coastline; the reforms in the leasing procedures.) State Lands Division maintains operating supervisory ahiotta.TTTTTTTTTTTTTTTTTTTTTTTTTTauthority on the tracts. TNew Proposals for Separating Exploration and Production Decisions. Under present offshore leasing procedures, oil Moratorium Placed on New Offshore Drilling in State Waters. companies are granted the right to ultimately deveop and In 1969, following the blowout on a platform in Federal Inl169aiollwingthe lowut o a patfrm i pcsatlproduce offshore at the time a lease is granted, before any waters off Santa Barbara, the State Lands Commission placed produce h a shore at the ttle is n exploratory drilling has occurred, and when little is known D eaCmoratorssiumoan newdrlleng offshore drilling Statofler . about the characteristics of the possible offshore petroleum December 1973 the Commission voted to permit drilling of resource. Changes in these procedures, to separate the decision to allow exploratory drilling from the decision to allow subject to approval on a lease-by-lease basis. In late 1974 development and production, would permit public agencies to the Commission granted aprovals to several oil companies make offshore production decisions and plan for offshore and for such drilling, but in early 1975, the Commission, under the new administration, reversed these decisions pending ontu re etent on the b ffshore resource further evaluation. In mid-1975 the Commission gave ARCO drilling in huge areas of the Outer Continental Shelf (OCS) freeing capital for other purposes; off the shore of Los Angeles County but beyond the three- a Allow for royalty schedules keyed to the characteristics EXISTING AND PROPOSED OFF- SHORE PETROLEUM LEASING, t SOUTHERN CALIFORNIA LOS ORANGE SAN ~~~~/ - ANGELES DIEGO ,- SANTA / Santa Catalina I. BARBARA ',,Santa t J. v f f e Bra 1. tah rBar or san Clemente I. 3 MILE LINE '~ SA = = .,' an Nicholas I. State of California oil and gas sanctuary areas ll Existing State oil and gas leases Existing Federal OCS leases _ Areas to be offered for leasing in Federal OCS (Lease Sale No. 35, scheduled December 1975) ___ Smile limit of State jurisdiction and submerged land ownership MA A Existing petroleum production platforms and manmade islands (total in area: 21.) 120 � PART II: FINDINGS AND POLICIES of a particular reservoir, thereby guaranteeing a fair return � Complex geologic formations holding the petroleum, with to government on the sale of a public resource; and many reservoir problems; and � Provide for appropriate compensation to any company not � To a lesser degree, lack of State regulation that might permitted to produce discovered oil and gas. maximize ultimate recovery of oil and gas by regulating The changes discussed here are included in draft legislation well completion and production practices. before Congress to amend the Outer Continental Shelf Lands Act. California Has Less Stringent Regulation over Petroleum Development. Completion and production practices in many California Has No Direct Control Over Federal Offshore oil-producing states, including Alaska, Louisiana, Texas, and Drilling. Although these Federal activities may affect Wyoming, are regulated by a state agency (the Canadian California's ocean water quality, marine life, and scenic province of Alberta also regulates petroleum development). values, could possibly deplete oil reservoirs extending under California's laws do not provide for actual regulation of adjacent State submerged lands, and may directly lead to completion and production practices by the Division of Oil significant onshore developments of refineries, tanker and Gas, and the California petroleum industry isallowed terminals, storage tanks, and pipelines, California has no very wide discretion in production rates and such practices direct control over the Federal leasing plans at this time. as simultaneous production from many pools, andoptional ratios of gasloil production, which in turn can lead to low recovery efficiencies. Some other states also have require- Deficiencies in Federal Offshore Regulation and Supervision ments for public disclosure of exploratory data within some Are Being Remedied. In the past, Federal regulations period of time after filing with the state regulatory agency, governing drilling and production procedures on Federal to increase geologic investigations, stimulate exploration, submerged lands, including requirements for depth of casing promote a more competitive industry, and increase oil pro- for blow out preventers and crew training and supervision, duction; and the Department of the Interior has proposed have been less stringent than California Division of Oil and regulations for OCS lease purchasers that would require Gas regulations governing operations on State submerged public disclosure of geological and geophysical data following lands, where there have been no significant spills resulting the purchase, to be made public within six months. California from offshore oil and gas operations. Deficiencies in Federal has no such disclosure requirement. regulations led directly to the well blowout in Federal waters off Santa Barbara in 1969. Federal regulations, procedures, Secondary and Tertiary Production Methods May Improve and regulatory staff are now being greatly upgraded. It is Petroleum Recovery. Secondary and tertiary production expected that when revision of Federal regulations for the methods offer the promise of increased efficiency in recovering Pacific Coast area is completed, they will be in substantial oil and gas. California has benefited from secondary recovery conformance with those of the State. conformance with those of the State. innovations and their applications. About 15 per cent of California's present oil production comes from secondary Petroleum Production Is Declining. The leasing of lands, recovery operations. In some reservoirs, very little primary exploration, drilling, and production of petroleum is an production is possible, but secondary recovery may increase expensive and risky process. Offshore exploration and pro- production after primary recovery by 10-50 per cent of the duction operations are generally much more expensive than original oil in place, and tertiary recovery may offer the onshore activities. Exploration for petroleum has generally potential for a total recovery of 30-70 per cent. Substantial decreased in California and nationwide over the past 20 years, improvements in recovery efficiency will require improved and the success rate of finding and completing new petro- technology, greater capital investments, higher well main- leum fields has also steadily declined. Petroleum shortages, tenance costs, and a higher price for refined products. With increased costs of extraction, and the need for technological a greatly increased effortatsecondaryandtertiarymethods research continually push the price of petroleum upward, average recovery efficiency for California may ultimately go which in turn should allow increased exploration and research as high as 35-40 per cent of original oil in place. Increased toward technological advances. Over the first six monthsof primary, secondary, and tertiary production from existing 1974 exploratory and drilling activity increased. Production wells will entail substantially fewer new developments and of petroleum in the Los Angeles basin peaked in 1969; the land use conflicts than exploration and drilling for virginal same is true for production in the coastal area of the basin, reservoirs, onshore or offshore. Exploratory drilling has been at historically low levels in both the onshore and offshore portions of the coastal area. Offshore Oil Structures Are Visually Prominent. Offshore Oil production and development drilling are both likely to petroleum operations are usually conducted from manmade petroleum operations are usually conducted from manmade continue to decline, although the increases in crude oil prices platforms above the water's surface. Exploratory drilling and since 1973 may reduce the production decline rate below the some production drilling are primarily accomplished from some production drilling are primarily accomplished from approximately 10 per cent per year rate normally experienced mobile platforms, whereas most production of oil and gas is by California oil wells. It is projected that the average rate controlled from fixed platforms. There has been objection by controlled from fixed platforms. There has been objection by of decline in California production shipped to Los Angeles/ some segments of the public to their use, based primarily some segments of the public to their use, based primarily Long Beach area refineries will be four per cent per year on aesthetic grounds and concern for navigational safety. to 1985. ~~~~~~~~~~~to 1985. ~Because of their size and the elevation of coastal lands, these platforms can be seen from the coast even when located at California Has a Low Recovery Rate. The nationwide recovery great distances (12-20 miles) from the shoreline; they are effiieny ofoilhas teaily ncrasedto pproimaelygreat distances (12-20 miles) from the shoreline; they are efficiency of oil has steadily increased to approximately particularly prominent when located near the coast. The 31 per cent. California's 25 per cent recovery efficiency lags p tin dient he lae arg o e existing designs apparently have large margin for improve- behind other major oil and gas producing regions because of: ment. Some members of the public note with approval the � Generally high viscosity of much of California's oil, and beneficial effects of platforms on sport fishing. The deepest the relatively low natural pressures in the underground platform production in the world presently is in 420 feet. reservoirs to help oil and gas recovery; The Exxon Company plans to construct and operate a fixed ENERGY * 121 K.%.'~?~??.~'~?~.;';'?r.: i'?i ?< - gas to facilities on platforms or onshore, would still further reduce the need for platforms. This would reduce both the ' esthetic impacts of offshore development and the great . ;. expense of constructing platforms in deep waters. Actual experience with subsea completions and submerged pro- - duction systems in deep water is still extremely limited. The difficulties involved in servicing or repairing such systems, or re-entering and plugging a well in the event of a blowout, mean increased environmental risk. Such m l.t facilities need to be tested extensively by industry under operational conditions, with full observation afforded to appropriate government agencies, before they are utilized in deep water offshore activities, and new regulations for ......... ~.. . .~ , such systems need to be developed. .... :-.Offshore Drilling Is More Hazardous than Onshore. Oil and gas leaks in offshore drilling or production are statistically rare, and steadily improving offshore drilling technology -I - -- -~: -a and operating procedures should still further reduce the incidence of occurrence. However, the programmatic Environ- mental Impact Statement prepared by the Bureau of Land Management for the nationwide accelerated Federal offshore . .....~, - leasing program noted that major spills associated with ~':'-~:' _"-- OCS development are statistically inevitable. The California � -7: . .. 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 this somewhat reduces the environmental risks. Nevertheless, ' ',' even in California offshore drilling generally involves greater environmental hazards than onshore drilling and involves some particular hazards: People are at a logistical disadvantage in working in the offshore environment, whether on the surface or under- water. Response time to crisis is slower than onshore, and Offshoreoil platform, Huntington Beach the ability to maintain equipment and receive supplies is constrained. Offshore facilities are subjected to more danger, including platform in 850 feet of water in the Santa Barbara Channel. storms, vessel collisions, seawater corrosion, low water At present there are 12 platforms off the shore of California. temperature problems, water crrents, seismic activity, According to two environmental impact statements by the and tsunami (seismic sea wacurrents, seismic activity, Department of the Interior on southern California and Sata designed and constructed to withstand known Pacific Barbara Channel offshore petroleum activities, from 24 to d esigned and constructed to withstand known Pacific 91 additional platforms may be required to exploit the California offshore resource. � Leaks of oil and gas are more difficult to plug and oil is Platforms and Islands Have Potential for Multiple Public Uses. more quickly dispersed over a broad area. Artificial islands or platforms for offshore oil drilling facilities * Most of the California offshore resource lies beneath can provide public uses other than that of extracting oil. submerged lands that are seismically highly unstable. This would require some engineering adjustments within sound principles of industrial and marine safety on the plat- * Much of the offshore resource lies beneath submerged forms. Facilities for other uses that might be appropriate lands in water depths greater than current production for some installations are scientific research and education technology can overcome. labs; general public viewing areas for the observation of * Submerged pipeline laying and maintenance may be com- drilling operations; government installations (Coast Guard, plicated by seismic instability, extreme water depths, and weather service); facilities for aquaculture operations; and the highly uneven bathymetry of the California outer self-sustaining platform power equipment. continental shelf. Submerged Systems Reduce Costs and Aesthetic Impacts Basic Spill Cleanup Methods Help Minimize Environmental But Increase Environmental Risks. As of mid-1974 appro- Damage. If an oil spill should occur, the substances must imately 40 individual wells in shallow water on State lands be contained and recovered quickly to minimize environ- in the Santa Barbara Channel area had been completed mental damage. Present containment methods utilize floating entirely underwater rather than from permanent platforms, booms or pneumatic curtains which confine the oil. Recovery by using subsea completion systems. Such systems still methods include use of absorbing materials (e.g., straw), require support facilities on permanent platforms or onshore, suction devices, adhesive materials to remove the oil from but permit reduction in the number of platforms required seawater, and skimming mechanisms that remove oil from for the development of the offshore resource. More sophis- water. Oil may also be dispersed into the water column by ticated submerged production systems, which would permit the addition of chemicals, collected with gelling substances, clustering of numerous wells completed subsea around a forced to the sea floor by combining with sinking agents, single subsea center that would in turn pump the oil and or burned with combustion fluids. Use of sinking and burning 122 * PART II: FINDINGS AND POLICIES agents are generally forbidden by the State Department of Resources Control Board presently issues discharge require- Fish and Game. ments and the Division of Oil and Gas regulates any rein- jection of brines. Spill Containment and Cleanup Methods Are Still Inadequate. Since 1969 larger amounts of money have been spent on Offshore Production Will Encourage Onshore Development. improving oil spill prevention and containment programs Offshore petroleum production may encourage greater indus- and for cleanup equipment. Although the technology for trialization in certain areas of the coastal zone, will increase containment and recovery of offshore oil spills has improved water and land transportation, and will necessitate construc- since the Santa Barbara spill, no system is likely to be com- tion of onshore and offshore oil and gas pipelines and sepa- pletely effective. Using presently available equipment, oil ration, treatment, and storage facilities. Production off the containment and recovery can be reasonably effective in shore of California could reduce the need for additional tanker calm waters; but moderate to stormy conditions (winds of terminal capacity along the coast to service oil imports, but 20 or more knots and wave heights over five feet) will seriously may result in pressure for additional terminals for barges hinder deployment of equipment, and will spread the spill and tankers transporting petroleum from offshore wells. regardless of containment attempts. Such conditions will also act to disperse and degrade the spill. Most oil spill Impacts of Offshore Production Can Be Minimized by contingency plans, including the National Oil Spill Contin- Consolidating Facilities. With many companies involved in gency Plan implemented under the guidance of the Coast offshore petroleum development along broad areas of the Guard, and the State of California Oil Spill Contingency coast, there is great potential for unnecessary duplication Plan, have been tested under simulated conditions but have of offshore platforms, pipelines, and oil transport terminals, not yet been proven under actual crisis situation. (For further and onshore pipelines, separation and treatment facility sites, findings on oil spills and spill liability, as well as Coastal and storage tank areas. This could result in industrial sprawl Plan policy, see Marine Environment chapter.) that could change the fundamental character of lengthy sections of the coastline. Unitization (i.e., development of Oil Field Brines Can Be Disposed of by Reinjection into Oil a single reservoir spanning several leases as a single unit Producing Zones. Inadequately treated oil field brines by a single operator) results in increased production and released at sea are highly polluting. In many instances, fewer facilities offshore. Consolidation or sharing of transfer these brines can practically be disposed of by reinjecting terminals and onshore facilities can concentrate necessary them under pressure into oil producing zones. In addition support activities within a few selected areas. Both unitization to protecting water quality and decreasing odors associated and consolidation are now practiced by the oil industry for with oil production, this practice can frequently help increase economic reasons, but they also can offer environmental, oil recovery from already-developed reservoirs. The Water aesthetic, and land use advantages. Near Rincon Point, Ventura County 2ft.~ ~ ~ ~ ~~~i-- -Vol~~~ ENERGY � 123 Policies mental impact report (EIR) on the exploratory phase activities; (2) the coastal agency has 81. Basic Policy for Offshore Petroleum Develop- issued a permit for the exploratory phase ac- men81. NewBasic Policy for Offshore oil and gas development tivities; and (3) the State Lands Commission ment. New offshore oil and gas development hsapoe nepoainporm shall be permitted if: has approved an exploration program. shall be permitted if: The Federal Government (for Federal Outer b. Development and Production Phase. Develop- - The Federal Government (for Federal Outer Continental Shelf lands) or the State Energy ment and production shall proceed only after Continental Shelf lands) or the State Energy 1 h te ad omsi a pprd Commission, State Lands Commission, coastal (1) the State Lands Commission has prepared an EIR on all aspects of the development and agency, and other appropriate State agencies an EiR on al aspects of the development and (for offshore State lands) have clearly identified p roduction phase; (2) the Energy Commission development of the offshore petroleum resource has made a formal finding of need for the oil and gas resources discovered during explo- as: (1) an integral and high-priority part of a and g as resources discovered during explo- comprehensive, balanced national energy con- ration; (3) the coastal agency has reviewed the Energy Commission's finding of need, servation and development program that gives the E nergy Commission's finding of need, evaluated the environmental and land use consideration to full-scale energy conservation lae the evoment and planning aspects of the development and pro- programs, alternative energy source develop- progrms, aterntive nergysoure devlop-duction phase, and has issued a permit; (4) the ment, and short- and long-term resource availa- duction phase, and has issued a permit; (4) the bility; or (2) a necessary energy source for Energy Commission, if it is given statewide bility; or (2) a necessary energy source for authority for siting offshore and onshore oil California and Petroleum Administration for authority for siting offshore and onshore oil and gas production activities and facilities Defense District V (PAD V, consisting of Cali- and gas production activities and facilities fornia, Arizona, Nevada, Oregon, Washington, (as recommended in Policy 76), has issued its fornia, Arizona, Nevada, Oregon, Washington, certification; and (5) the State Lands Com- Alaska, and Hawaii), considering energy con- iion a d ee and o- mission has approved a development and pro- servation and alternative energy sources de- ion proe development duction program. The EIR on the development velopment measures and also considering theduction pam he one ve and production phase shall include one-, five-, anticipated inflow to California and PAD V of er a10-year plans for development, production, oil and other forms of energy from all other and all related offshore and onshore develop- sources (e.g., onshore oil production, Alaska and all related offshore and onshore develop- ment, including platforms, submerged pro- North Slope oil and gas production, production mnicunspie s, sepro duction systems, pipelines, separation, treat- in other regions of Alaska, and foreign oil and tin ste ilies, aro ment, and storage facilities, refineries, harbor gas imports) and California's projected capa- facilities, n ere s ar facilities, and tanker terminals anticipated. cities to refine and store the anticipated inflow t a ane te niced It shall also describe the economic, environ- of oil from these sources; and Te oail a y thasdtesorne than mental, and aesthetic impact on the immediate � The coastal agency has determined that the area and the entire coastal zone of offshore area and the entire coastal zone of offshore possible impacts on coastal marine, air, and and onshore facilities and operations, including onshore resources resulting from offshore all transportation and distribution facilities, petroleum development are acceptable under and all measures to mitigate any environmental the policies set forth in the Coastal Plan. hazards of onshore and offshore activities, in- cluding alternatives to the anticipated facilities, 82. Recommendation to Separate Permit Review programs for containment and recovery of of Petroleum Exploration Phase and Development/ potential oil spills, and improvements in Production Phase. In order that, prior to a decision marine traffic lanes, navigational equipment, whether to grant private companies the right to and traffic control. To the extent such infor- develop and produce publicly owned offshore and mation is not provided in the EIR, the coastal onshore petroleum resources in the coastal zone, agency shall require that it be submitted during as much data as possible can be acquired about the coastal permit review. Following sub- the resources, their value, and the offshore and mission of an application for development onshore environmental impacts of production, and production that includes complete and it is recommended that the present system for adequate information about the resource and leasing State lands for oil and gas production be all proposed activities and facilities, a decision changed to separate permit review of the explo- shall be rendered within a defined period of ration phase from the development/production time, to be set by the Legislature. It is recom- phase, as follows: mended that the Legislature also give full con- a. Exploratory Phase. Exploratory drilling on a sideration to possible alterations in other aspects lease shall proceed only after (1) the State of leasing that may be complementary to the Lands Commission has prepared an environ- proposed separation of the exploration and pro- 124 � PART II: FINDINGS AND POLICIES duction decisions, including alternative forms production facilities; (4) pipelines; (5) separa- of bidding that could reduce the size of cash tion, treatment, and storaae facilities; (6) trans- bonus bids; government sponsorship of or par- fer terminals related to petroleum production; ticipation in exploration; and appropriate com- (7) rights-of-way for transporting produced oil pensation for any company denied the right to and gas; (8) equipment lay-down areas; and produce discovered petroleum reserves. (9) port facilities to supply and service offshore platforms. c. If the Leasing System Is Not Changed. If the platforms. present leasing system is not changed as d. Use Submerged Systems Where Feasible and recommended above, the EIR preparation Environmentally Safe. Subsea completion of and permit review process proposed above wells and submerged production systems shall for the development and production phase be used where environmentally safe, as demon- shall be applied for all phases prior to granting strated through adequate testing of equipment permission for exploration. by industry, observed by the appropriate go- vernment agencies, and where technically and 83. Criteria for Siting and Design of Petroleum economically feasible. Where oil platforms or Facilities. On publicly or privately owned lands islands would have a substantial adverse envi- in the coastal zone, offshore and onshore drilling ronmental effect, including degradation of and production and related facilities shall be per- aesthetic values, no offshore drilling shall mitted where, in addition to the standards set be permitted unless and until subsea comple- forth in Policy 11, all of the following criteria are tions or submerged production systems are met. Compliance shall be required by the coastal demonstrated to be environmentally safe. agency as a condition of any required coastal e. Platforms Preferred Over Islands; Minimize permit, by the State Lands Commission as a Impact of Platforms. Where subsea drilling, condition of a lease on State-owned lands, and completion, or production is found to be in- by the Division of Oil and Gas. feasible or environmentally unsafe, thereby a. Use Best Well Sites. Proposed well sites shall making platforms or islands necessary to de- be the least environmentally hazardous and velopment of the resource, or where platforms aesthetically disruptive sites feasible. are necessary to service subsea systems, the b. Assure Geologic Safety. The geologic charac- following criteria shall apply: teristics of proposed well sites shall be ade- � Platforms shall be preferred over islands quately evaluated and determined to be con- wherever safety considerations permit. sistent with safe drilling and production. � The number of offshore platforms shall be c. Consolidate Drilling, Production, and Pro- minimized by using each platform to drill cessing Sites. Petroleum-related facilities as many wells, and/or to service as many and operations shall be consolidated (i.e., subsea completion and production systems, drilling, production, separation facilities, and as is technically and economically feasible. support sites shall be unitized - developed � The design of the platforms or islands shall and operated as a unit by a single company be consistent with the general design criteria or group of companies for the benefit of all of the Coastal Plan and shall besubjectto interested companies - or shall be shared) review and approval by the immediately land- to the maximum extent feasible and legally ward local governments as well as by the permissible, unless such consolidation will coastal agency and State Lands Commission. have adverse environmental consequences and will not significantly reduce the number The waters surrounding new platforms or of producing wells, support facilities, or sites islands shall be open to sport fishing, diving, required to produce the reservoir economically and boating, consistent with boating safety and with minimal environmental impacts. rules and practices. Unitization negotiations shall be entered into � If an island is determined to be needed, by all operators covering one producing struc- multi-purpose public interest uses, including ture, and unitization of a new offshore field small-boat landing piers and amenity public shall be carried out before commercial pro- recreation areas, scientific and educational duction is initiated. The unitization or conso- facilities (e.g., marine biology, oceanography lidation requirements shall apply to (1) all and metereology research stations), Coast types of offshore platforms; (2) submerged Guard or U.S. Weather Service station, or production systems; (3) onshore drilling and aquaculture operations, shall be incorporated ENERGY *125 Offshore oil island, Long Beach into the project to the extent technically and production, oil and gas separation, storage, economically feasible and consistent with and natural gas liquefaction that might reduce public safety and other policies of the Coastal the need for large onshore facilities). Plan. g.Prevent Subsidence; Reinject Oil Field Brines. * All water that contacts working surfaces of Liquid and gas extraction projects that could oil islands (including rain runoff) shall be cause or contribute to subsidence hazard contained and not allowed to drain in an un- (where there is a potential for significant treated state into the ocean. Treatment shall present or future damage to property or envi- be adequate to remove essentially all petro- ronment) shall be prohibited; such existing leum or unnatural amounts of chemical re- operations shall be stopped, unless it is deter- sidues from the estimated maximum amounts mined that there is no reasonable alternative. of runoff water. In such cases, the best available techniques * Platforms or islands shall not be sited where for minimizing or preventing land subsidence a hazard to vessel traffic might result from shall be utilized. Lease or unit operators con- the facility or related operations. Platforms structing new facilities shall reinject all oil f ield shall not be permitted until a navigational brines into oil producing zones unless injection safety system for coastal waters is in effect, into other subsurface zones will reduce envi- in accordance with Policy 119. ronmental risks. Exceptions to reinjection will be granted only after approval by the appro- f. Minimize Impact of Petroleum Facilities priate agencies (including the Regional Water Onshore. Drilling, production, and support Quality Control Board) of detailed plans ade- facilities onshore, including separation and quately providing for the elimination of petro- treatment plants, pipelines, transfer terminals, leum odors and all potential fresh water or storage facilities, and equipment lay-down ocean water quality problems. Monitoring pro- areas, shall be designed and located to minimize grams to record land surface and nearshore their adverse environmental impacts consistent ocean floor movements shall be continued in with recovery of the resource. Where such on- allI areas of subsidence problems and shallI be shore development would result in substantial initiated in locations of new large-scale fluid impacts on the resources of the coastal zone, extraction on land or nearshore before opera- it shall be permitted only where there is a need tions begin. Such monitoring shall continue for the project (as specifiled in Policy 81), where during and after liquid and gas extraction feasible alternatives would have agreater ad- operations until surface conditions have sta- verse environmental impact, and technology bilized. Costs of monitoring and mitigation 0 ~ ~~hat would substantially reduce such impacts programs shall be borne by liquid and gas will not be available in the immediate future extraction operations, overseen by an appro- (e.g., new technology for carrying out subsea priate State agency. 126 * PART II: FINDINGS AND POLICIES 84. Recommendations for Increasing Oil Recovery cribed above in Policy 82, and their impacts Efficiency. It is recommended that the Legislature on the California coast, shall be fully developed (1) enact legislation to require the California and disclosed. It is recommended that the Division of Oil and Gas and the State Lands Com- present leasing system be changed to separate mission to regulate petroleum completion and pre-production exploration from the decision production for individual wells, including setting to develop and produce on a lease, in order maximum efficient rates of production, as ana- that data about the OCS resource, its value, logous government agencies do in other major and the offshore and onshore environmental oil-producing states; and (2) adopt a resolution and planning implications of developing and calling for the Federal Energy Administration producing the resource can be accumulated to encourage primary, secondary, and tertiary prior to a decision as to whether private com- production from existing wells. panies should be given the right to produce. c. Provide for Public Review. Opportunities for 85. Recommendation for Disclosing Exploration effective review of proposed OCS exploration and Production Data. To improve the information and development plans shall be providedfor base for State energy planning and to encourage the general public, interested units of State, exploratory activities, thereby encouraging pos- regional, and local government, and other sible petroleum discovery and production both segments of thecommunities most immediately onshore (where petroleum activities are environ- segments of the communities most immediately mentally preferable) and offshore, it is recom- mended that the Legislature require all original d. Prevent Drainage of State Petroleum Sanctua- exploratory and production data from surveys ries. The leases in question shall be sufficiently or drilling of wells (including all logs, complete separated from the State petroleum sanctuaries well histories, cores, drilling cutting, water to prevent drainage of oil and gas reservoirs samples, chemical analyses, pressure and tem- that may lie partially on State submerged lands. perature measurements, etc., but excluding e. Establish Stringent Safety Standards. Petro- proprietary interpretive information) on publicly leum production under Federal jurisdiction off or privately owned California lands to be sub- the California coast shall be made subject to mitted within 60 days after finishing to the safety standards at least as stringent as those Division of Oil and Gas, with appropriate as- for production on State-regulated offshore surances of strict confidentiality, and to be made areas, including those contained in the Cali- public information one year after submittal, fornia Division of Oil and Gas regulations and except that where such public disclosure would the manual of procedures of the State Lands result in severe inequity to a well operator, year- Division and standards set forth in Coastal Plan to-year extensions of confidentiality may be policies. (See especially Policies 11, 83, granted by the Division of Oil and Gas. The and 119.) Energy Commission and the State Lands Com- -mission shall be allowed access to allsuchdata f. Evaluate Unitization or Consolidation Possibi- on a confidential basis for the purposes of energy lities. The possibility of unitization or conso- resource development planning. lidation of all operations and facilities both offshore and onshore shall be fully evaluated 86. Recommendations for Avoiding Adverse and required where feasible, as described in Impacts of Federal OCS Petroleum Development. Policy 83(c) for California operations. It is recommended that the Governor, the Legis- g. Consider Use of Subsea Systems. The possi- lature, the California congressional delegation, bility of use of submerged drilling, completion, and all concerned State agencies seek agreement and production systems that have been ade- from the Department of Interior and other Federal quately tested to meet rigid environmental authorities that Federal Outer Continental Shelf safety standards shall be fully evaluated as (OCS) leases will be approved by the Department a partial alternative to platforms and required of Interior only if the following conditions are met: where technically and economically feasible, a. Demonstration of Need. Need for Federal OCS except where use of platforms would not cause development off California shall be clearly any significant adverse aesthetic or other envi- determined as required in Policy 81. ronmental impact. b. Develop and Disclose Long-Term Plans. One-, h. Some OCS Revenues Should Go to States. five-, and ten-year plans for petroleum pro- It is recommended that the Federal government duction and all related development as des- provide funds to California and to other coastal ENERGY * 127 states prior to leasing, with the funds to be i. Designate Sanctuaries in Certain Areas. reimbursed either through a fee related to pro- Sites and tracts shall be designated as Federal duction volumes, or by making available a petroleum resource sanctuaries (1) if they are portion of its revenues from OCS lease sales unusually subject to the risk of oil spills due to or production royalties, or by granting funds geological seismic disturbance; or (2) if they from some other source, to assist the State and offer unusual coastal aesthetic assets or the local governments in (1) planning for and over- local economy is particularly dependent upon coming or mitigating any adverse impact of this the protection of coastal aesthetic assets. production (e.g., planning for transportation Portions of the Santa Barbara Channel, Mon- terminals, additional refineries, pipelines, sepa- terey Bay, Santa Monica Bay, and San Pedro ration, treatment, and storage facilities, and Bay would appear to be candidates for sanc- other support facilities in a way that minimizes tuary status. environmental impacts); and (2) purchasing j. Compatibility with Coastal Plan Policies. land for recreation or providing other amenities Federal OCS development and related acti- along the coast to help offset the impact of vities shall be compatible with all other policies OCS development. set forth in the Coastal Plan. REFINERIES Findings hydrogen sulfide, 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 employs, Existing Refineries Are Near Cities and the Coast. The among many other variables. Refinery air pollution emissions 37 existing California oil refineries have a total capacity of have been decreased in modern refineries by improved 1.9 million barrels per day (bid), which is expected to expand combustion technology, better operating procedures, and to 2.3 million (bid) on completion of construction projects more conscientious control efforts, but they have not been in 1976. Of these refineries, 15 are in the Los Angeles area eliminated. (1,060,000 bid), 6 in the San Francisco Bay area (585,000 bid), 11 in Bakersfield (181,000 b/d), and the remaining 5 at scat- Existing Refineries Normally Do Not Exceed Ambient or tered sites (74,000 b/d). These sites were chosen by the oil Stationary Source Standards For Most Types of Pollutants. companies primarily to accommodate the large market areas In administering the Federal Clean Air Act, the Environ- (major cities), but also, in part, to be close to supplies of mental Protection Agency, State agencies (Air Resources crude oil (both inland and waterborne). Most of the Los Board) and local Air Pollution Control Districts (APCDs) Angeles and San Francisco plants refine crude produced in- control the allowable levels of some pollutants from single State as well as foreign crude brought in by tanker. No single stationary sources (such as refineries) and also set standards State agency oversees the siting of refineries to maximize for ambient air quality. In California, existing refineries the efficient and safe location of facilities and minimize the generally do not exceed ambient or stationary source environmental impacts. standards for emissions of sulfur oxides, nitrogen oxides, particulates, and carbon monoxides during normal operations. Three Refinery Expansions Are Proposed in the Coastal Zone. Under the Clean Air Act, major new stationary sources There are 11 projects for additional refinery capacity proposed are to be prohibited if they would interfere with the attainment in California. Only two of these are at sites in the coastal or maintenance of ambient air quality standards. It is possible zone. The one major coastal zone site expansion - El that a new refinery might be capable of meeting the stationary Segundo - was approved by the Coastal Commission in source emission standards, but not be permited because it June 1974. Another coastal project is a new 100,000 bid would interfere with attainment of national ambient air refinery proposed near Carlsbad, set back one to two miles standards or with other more rigorous air quality goals. from the coast and designed primarily to provide low sulfur (See also the Coastal Land Environment section on Air fuel oil to San Diego Gas and Electric's Encina power plant. Quality regarding current air quality degradation standards.) A third project, a new 60,000 bid refinery proposed in 1974 near Ventura, has apparently been postponed or Hydrocarbon Emissions Are of Special Concern. Of particular dropped altogether. concern are refinery hydrocarbon emissions. Reactive hydro- carbons combine with oxidants and sunlight in a photo- Refineries Emit Air Pollutants. Petroleum refining produces chemical reaction to produce photochemical oxidants. The emissions of particulates, sulfur oxides, nitrogen oxides, Federal ambient hydrocarbon standards are a guideline to olefins (reactive hydrocarbons), aldehydes, ammonia, help achieve the ambient photochemical oxidant standard. 128 * PART II: FINDINGS AND POLICIES At least one major study, however, disputed by the oil Refinery Siting Is a Complex Problem. The degree to which industry, questions the technological ability of any refinery states can allow air quality to be "degraded," even if it to meet the Federal standards for hydorcarbon emissions, would still meet Federal ambient air quality standards, is and cites the need for further study of this critical issue. presently the subject of intensive review by the California A 1975 informational report of the Air Resources Board Air Resources Board. Further refinery capacity may be staff concludes that hydrocarbon emissions from storage forced to move outside Air Quality Maintenance Areas if tanks represent 40-80 per cent of refinery hydrocarbon it interferes with attainment of air quality goals; but, on emissions, and that the floating roofs used on new tanks the other hand, refineries may not be permitted to signi- can very substantially reduce, but not eliminate, hydrocarbon ficantly deteriorate the air quality of areas that do not emissions. Two recent studies by the National Academy violate air quality standards. Air quality regulations and of Sciences and the University of Southern California School their implementation are extremely controversial, and are of Medicine suggest a relationship between hydrocarbons presently in a state of flux. emitted by certain refinery processes and a higher incidence of lung cancer mortality in populations exposed to the hydro- Physical Siting Criteria For Refineries. Although small carbon in question. These studies are still incomplete, and refineries can be built on tracts no larger than 200-300 acres the conclusions are admittedly extremely tentative. Refineries in size, major new refineries typically require as much as can, however, contribute to the deterioration of the overall 500-1,500 acres of land, including a surrounding landscaped quality of an air basin, which in turn can cause eye and buffer area. They require water supplies for cooling, and lung irritation and aggravate respiratory and cardiac ailments. treatment facilities adequate to handle large waste volumes. There are presently no comprehensive State or local regu- They are large-scale, visually intrusive industrial develop- lations governing the residential use of land within specific ments. Even the most modern refineries may occasionally distances from refineries. emit noise and odors, and they represent significant single sources of air pollutants. Refinery Pollution Impacts Elsewhere. Refineries can also have adverse effects on agricultural activities and flora Remote Siting of Refineries Is Feasible With an increase generally, and on property. (See Coastal Land Environment in Product Costs. Primarily because refined products must section on Air Quality.) be kept segregated during shipping and storage operations, the transportation of refined products is more costly than Refinery Emissions May Be Offset by Reduced Emissions transportation of crude oil; therefore, proximity of refinery From Its Products. While even the most modern refineries sites to market areas is a greater industry priority in siting will produce some emissions, the production of "cleaner" decisions that proximity to tanker terminals. For example, petroleum products can result in a net reduction of air Standard Oil of California would be willing to pipe crude pollutant emissions in an area. This can occur when these oil a distance of 277 miles from its proposed (now postponed) "cleaner" products replace more highly polluting products Estero Bay superport to its Richmond refinery. Thus, presently in use. Maximum restorative benefit to an area refineries are not "coastal-dependent." Added transportation that already has air quality problems can be achieved by costs resulting from remote siting would presumably be siting the refinery outside of the problem air area, while passed on to consumers as product price increases. Other utilizing the cleaner products within the area. factors that must be addressed in remote siting considera- tions are the availability of properly zoned land, pipeline California Lacks Adequate Desulfurization Refining Capacity. easements, water supply for cooling, and net energy and One of the beneficial products that refineries can contribute materials requirements. Siting of refineries away from market is low sulfur fuel oil. Low sulfur fuels or natural gas must areas (in California, away from air quality maintenance areas) be burned in fossil fuel-powered electricity-generating power is feasible, and would help restore air quality in such areas; plants in order to meet air pollution emission standards. but it would raise the cost of refined products by as much The demand for low sulfur fuels has increased greatly in as one to three cents per gallon. the past two years with the decrease in availability of natural gas for use in power plants and industry. California presently Refineries Have Impacts on Nearby Developments. Refineries lacks sufficient desulfurization refining capacity to meet this can encouragethe nearbyconstruction of petroleum-associated demand. California has therefore had to rely on importing industries (petrochemical, plastics), which can lead to rapid large volumes of low sulfur crude oil and residual fuel oil, industrial growth and increased population. In the short term, both of which are expensive and hard to obtain on the refineries enlarge the tax base of the host community; in the world market. longer term, they very substantially increase municipal services requirements and may ultimately lead to a decline Additional Desulfurization Capacity Offers Advantages. in residential and commercial property values. Many of these If desulfurization capacity is constructed in California, refinery potential impacts can be mitigated by rigorous planning and costs will be significantly increased. The import requirements new technology; but they cannot be eliminated. for hard-to-get low sulfur crude oil, however, will decrease, and although the total volume of crude oil needed in California Safety Considerations in Refinery Siting. Refineries havea will not be reduced, the ability to utilize high sulfur fuel large potential for fire and explosion. State and Federal oil will provide greater supply flexibility and reduce crude regulations and the considerable efforts of refineryowners costs. New desulfurization refining capacity is now under can minimize this potential. Optimal safety considerations construction at the Standard Oil of California's Richmond require siting refineries away from seismic areas and and El Segundo refineries (175,000 bid at each site); and separatingthemfromsurroundingpopulationsbyabufferarea. the new Macario refinery proposed near Carlsbad would also have direct residual fuel oil desulfurization capability. Water Quality and Solid Waste Disposal Affect Refinery Siting. California could benefit from additional refinery desulfuri- The EPA has identified a wide range of water pollutants zation capability. which are emitted by oil refineries in either their process ENERGY * 129 or cooling water streams. At presently used levels of treat- Commission shall have found, that there is a ment, additional oil refinery capacity discharging wastesto public need for such facilities, determined in the marine environment would degrade the waters of the coordination with determinations of need for IsO coastal zone to a degree not consistent with the objectives offshore petroleum production in Policy 81 and of the Coastal Act. Modern water treatment technologies offshore petroleum production in Policy 81 and can reduce these emissions, and once-through cooling tanker terminals in Policy 89. The coastal systems, sometimes used to dilute pollutants to meet dis- agency, in consultation with the Energy Com- charge standards, can be eliminated. Removal of pollutants mission and other concerned State and local from the air and water discharges from refinery systems agencies, shall consider the need, land use, will result in accumulations of solid or semi-solid waste products, for which proper disposal must be provided. and environmental aspects of the proposed project and determine that there is no identified, reasonable alternative inland or coastal location Policies where siting would result in less environmental degradation. 87. Coastal Agency Role in Refinery Siting. The coastal agency shall have jurisdiction over the b. Design and Site Facilities to Minimize Adverse coastal agency shall have jurisdiction over the Impacts. The applicant shall demonstrate that need, land use, and environmental aspects of new Impacts. The applicant shall demonstrate that or expanded refineries proposed in the coastal the project is designed and sited to minimize or expanded refineries proposed in the coastal any adverse environmental effects, including zone, in accordance with Policy 76. For the pur- any adverse environmental effects, including posesofPolicybelow, theEnergyprovision of a sufficient buffer zone to minimize poses of Policy 88(a) below, the Energy Com- impacts on surrounding property. In no event mission shall determine the availability of pre- sa n oi rpert n e n shall a new oil refinery be permitted in a highly ferred alternative coastal sites. The coastal agency sh ae o efine i n ay scenic area (as defined in Policy 45), on any shall participate with the Energy Commission of the Channel Islands, or in or near environ- and all other concerned State, local, and Federal of the Channel Islands, or in or near environ- mentally sensitive areas. agencies in statewide refinery siting policy develop- mentally sensitive areas. ment, as proposed in Policy 76. c. No Degradation of Air Quality. In addition to meeting all applicable standards set forth in 88. Criteria for Siting and Design of Coastal Policy 43, new or expanded refineries shall Refineries. New refineries or expansions of be permitted in Air Quality Maintenance Areas existing refineries shall be permitted in the coastal and in areas where such coastal resources as 0~ ~ zone when the following criteria and standards health resorts or agricultural lands would be can be met. adversely affected only if the negative impacts a. Need and Best Location for Facilities. The of the project upon airqualityaremorethan fully offset by reductions in gaseous emissions applicant shall demonstrate, and the Energy i ofe byeuseueson in the area by the users of the fuels or, in the case of an expansion at an existing site, total site emission levels, and site levels for each emission type for which national or State ambient air quality standards have been esta- blished (i.e., hydrocarbons, sulfur dioxide, oxides of nitrogen, carbon monoxide, and '~--? ~, ~particulates), do not increase. d. Site and Design Refineries to Protect Public Satety. Refineries shall be sited and designed to minimize exposure of surrounding property 7d . 4l~~~and population to the consequences of possible EL2- ~large fires and explosions, and shall be sited away from areas of substantial seismic risk. e. Encourage Construction of Desulfurization and Methanol Capacity. Applicants for addi- tional refinery capacity in California (but not necessarily in the coastal zone) shall maximize the addition of desulfurization capacity designed to produce low-sulfur fuels, unlessthe Energy Commission determines some greater public need outweighs the advantages of such a is0~~~~~~~~~~~~~ ~~requirement. Consideration shall be also given 130 * PART I/: FINDINGS AND POLICIES to providing for the production and storage cooling facilities to replace once-through faci- of methanol and synthetic fuels. lities and new water treatment plants designed f. Minimize Use of Once-Through Cooling. New to reduce the discharge of pollutants into the f. Minimize Use of Once-Through Cooling. New marine environment shall be permitted when or expanded refineries shall minimize the need consistent with other Coastal Plan policies. for once-through cooling by using air-cooling (Once-through systems in new or expanded to the maximum extent feasible and by using refineries are permitted only according to the treated waste waters from in-plant processes standards set by Policy 10.) for cooling tower makeup. Construction of new TANKER TERMINALS Findings and Hawaii). In recent years, California's role in supplying these states has declined, as the Pacific Northwest and Hawaii have developed their own terminal and refinery Petroleum Imports and Tanker Size Have Grown. As capacities. Some experts have forecast that by 1985 exports California has increased its importation of crude oil and from California to other PAD V states will ceaseentirely, refined products over the past 20 years, tanker size and and that California's "regional role" will be, in effect to numbers have increased to handle the expanded import supply its own very large demand. It is more likely, however, volume. The search for improved efficiencies and economies that California will continue to account for some relatively in transporting large volumes of crude oil has led to the development of supertankers (tankers over 100,000 dead- Growth of Tankers Worldwide weight tons) and Very Large Crude Carriers (VLCCs. i.e., 1945 17,000 DWT tankers larger than 200,000 dwt). Supertankers now use some of the State's tanker facilities, but the deep drafts of Very Large Crude Carriers cannot be accommodated in California tanker terminals. The need for more tankers and | 170m any new tanker facilities will be based on future import levels 558 ft to meet the State's refinery needs and utility company imports. 1955 50,000 DWT Several Variables Affect Tanker Import Levels. Variables that will affect tanker import levels are: � General economic conditions in California and the West; -- I 225 m 1 � California's in-State petroleum production; 738 ft � Possible reduced petroleum demand through energy conservation and increased prices; 1965 200,000 DWT � Possible reduced petroleum demand through development of alternative energy sources; I, � Energy export and import levels to and from other states 330m (i.e., oil and gas to the Midwest, electricity from Four 1,082 ft Corners, natural gas from Alaska, etc.); and 1975 500,000 DWT � Federal energy policies affecting Outer Continental Shelf (OCS) production, production at the Elk Hills (California) and ''Pet 4" (Alaska) Naval Petroleum Reserves, import levels, interstate shipment of oil, and siting of tanker terminals. 411 m All of these factors will combine to determine the need 1,348ft for importation of petroleum by tankers. 1985 1,000,000 DWT 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 for Defense District Five (PAD V, consisting 475 m of California, Arizona, Nevada, Oregon, Washington, Alaska, 1,558ft ENERGY * 131 small amounts of petroleum exported to other states in the and filling for both the berthing area and land storage tanks, region, and planning for tanker terminals should reflect with potential for significant adverse environmental effects this fact. on marine life and tidal action (as discussed in the Marine Environment chapter). California's National Role in Supplying Energy Is Not Defined. In recent months, at least two major oil companies have Tanker Terminals Encourage Related Development. Tanker begun to consider plans to ship Alaskan oil to California terminals and related onshore facilities do not themselves terminals for subsequent pipeline transshipment to the require large amounts of land except for tank farms, but Midwest. Despite oil industry assertions that planning for they can encourage related development that need notbe tanker terminals in California should accept this State's situated near the coast. The presence of major refining national role in supplying energy, such a possible role has capacity frequently leads in turn to the development of not yet been clearly defined by any Federal agency as a part associated secondary industries (e.g., petrochemical, plastics) of any comprehensive national program for energy conser- in the same immediate area. Tanker terminals that encourage vation and development. refinery construction nearby onshore could, therefore, pro- mote the use of valuable coastal land for purposes accom- Most Alaskan Oil to Come in Tankers of 165,000 DWT or Less. plished just as well at inland sites, could contribute indirectly It appears that California's increased petroleum import needs to increases in air pollution in coastal areas, and could also may be met by Alaskan crude oil when the Alyeska pipeline induce growth of related commercial and residential areas. begins operation in late 1977 or 1978. Because export of Tanker terminal siting strategies can be effectively coordi- Alaskan crude oil to Japan is prohibited by the Alaskan Pipe- nated with broad regional or State planning for growth. line Act unless mandated by presidential proclamation, the Alaskan North Slope crude is expected to be transported Several Deepwater Terminals Have Been Proposed For by ship to the Pacific Northwest and California. Most oil California. Oil companies and utilities must by economic companies report that the vast majority of the 1.2 to 2.0 million necessity look beyond the immediate future when investing barrels per day volume of Alaskan oil expected to come to millions of dollars for future tanker terminals. To reduce the West Coast will be transported in tankers under about transportation costs, one oil company proposes to use VLCCs 165,000 dwt. 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 Foreign Low-Sulfur Crude Oil May Continue to Come in Indonesia, and to build a California terminal facility that Tankers under 150,000 DWT. Low-sulfur crude oil will could accommodate tankers of these dimensions. However, probably continue to be imported from foreign sources, unless foreign imports into California from the Middle East but this oil can be transported to California in conventional and Indonesia, or from places similarly distant, are very draft tankers of about 150,000 dwt or less, rather than VLCCs, high, the frequency of use of a California deepwater terminal with only minimal increase in consumer prices. Increases in might be insufficient to justify the cost of terminal construc- California's direct desulfurization refining capacity will tion and the commitment of coastal resources to such a reduce the amount of low-sulfur crude oil imported. project. If such imports totaled 170,000 bid, for example (as some experts have estimated), all brought in supertankers Existing California Tanker Terminals Are Below 150,000 of about 200,000 dwt, a supertanker terminal facility would DWT Capacity. No existing California tanker terminal can be in use only about one-sixth of the time. accommodate conventional tankers larger than 138,000 dwt (Port of Long Beach), although, with only minor dredging Oil Companies and Utilities Have Proposed New or Expanded and expansion of onshore pipelines and storage tank facilities, Tanker Facilities. To meet their projected needs for increased this limit could be increased to about 150,000 dwt for ships volumes of oil from outside California, oil companies and of conventional draft. With some modifications to existing utilities have proposed new or expanded tanker facilities facilities the Port of Long Beach could berth three tankers at Estero Bay (up to 400,000 dwt, Standard Oil of California; of up to 200,000 dwt of the wide beam configuration now now indefinitely postponed), Moss Landing and Morro Bay being proposed. The Port of Los Angeles facilities can (up to 130,000 dwt, Pacific Gas & Electric), and Long Beach accommodate loaded tankers of about 90,000 dwt. And El or Los Angeles Harbor (less than 200,000 dwt, Standard Segundo offshore buoy systems can serve tankers of about Oil of Ohio), with further proposals likely to follow. Standard 130,000 dwt. San Francisco Bay facilities at Richmond allow Oil of Ohio has proposed to ship Alaskan crude oil to the berthing of light-loaded tankers of 130,000 dwt. Although Los Angeles area in 165,000 dwt tankers for subsequent under unusual conditions a fully loaded 104,000 dwt tanker transshipment to the Midwest through a yet-to-be-approved- was able to cross the sand bar outside the Golden Gate, the or-constructed pipeline. ARCO is considering a similar plan, bar normally prohibits the entry of any fully loaded tankers probably using tankers of up to 150,000 dwt. Presumably larger than 85,000 dwt. such transshipment proposals would be economically feasible only if there were a surplus of crude oil available in California. Tanker Terminals Can Be Sited Away from Refineriesand Market Areas. Tanker terminals have usually been sited in close proximity to refineries and power plants, which in No State Agency Coordinates Tanker Terminal Siting. At turn have been located near product markets (metropolitan present no single State agency oversees and coordinates areas). Extensive pipeline systems are capable of reducing the siting of tanker terminals to maximize efficient siting the need for this traditional clustering, however, allowing and minimize environmental risks and impacts. tanker terminals to be sited away from refineries, power plants, and product markets. For example, Standard Oil of Multi-Company Sharing of Facilities Reduces the Need for California's proposed (now indefinitely postponed) Estero More Facilities. Most existing tanker terminals are owned Bay terminal would have required about 280 miles of crude and operated by single companies, or by port jurisdictions oil pipeline. that lease specific berths to single companies. Multi- company sharing of tanker facilities would reduce the need for new Tanker Facilities Pose Potential Environmental Impacts. or expanded tanker terminals. Terminal efficiency (i.e., Harbor or nearshore tanker facilities may require dredging maximum volume with minimum waiting time and high use 132 * PART II: FINDINGS AND POLICIES of facilities) increases with the number of berths available environmental siting considerations for new or expanded to any ship. Thus, with multi-company use, more volume facilities offshore are as follows: could be handled by existing facilities, reducing the need Offshore versus Nearshore Areas. Newoffshoreareaswith for new or expanded facilities for deep draft vessels. Such "common carrier" practices are being analyzed by the anti- trustcommon carof the Juspractices Depar tme being analyzed bythent- for pipelines, could locate the tankers away from areas of critical biological concern in nearshore areas, and could Existing Tanker Terminals Are Under-Utilized. Existing be sited away from busy vessel traffic lanes so as to Existing Tanker Terminals Are Under-Utilized. Existing l argminimize the risks of oil spills. Offshore facilities, however, tanker facilities are under-utilized, largely because many would be subject to greater wind and wave action and of them are operated by single companies which do not would be more difficult to greater windcontain. New fill berth capacity. If terminal facilities were utilized to or expanded tanker facilities in nearshore areas would their maximum extent, it appears that California's petroleum most likely involve more environmentally damaging needs could be accommodated in existing facilities for some dredging and filling, and pose reater risks of oil spills time, given the following conditions: dredging and filling, and pose greater risks of oil spills that could affect vulnerable marine life. Harbors, however, � California receives and refines the vast majority of Alaskan are sheltered from wind and waves and can provide better crude oil production; spill containment capability. � California's demand for petroleum does not exceed � Physical Constraints to Siting. Tanker terminals must be projected levels and California does not become a major sited with careful attention to meteorological (wind, fog, exporter of crude oil to states outside of the region; storms), hydrographic (waves, tides, tsunami), and ocean- * Tanker size does not exceed about 150,000 dwt of con- ographic (bathymetric and distance to shore) factors that will ventional draft (or slightly larger, wide-beam vessels of dictate the optimal sites available to serve onshore areas. comparable draft), with some existing facilities expanding � Offshore Offloading. VLCCs can be unloaded into smaller to accommodate such tankers where only minor dredging "shuttle" tankers while remaining in deepwater areas is required; and offshore. This practice has already been used off California, * Minor expansion of onshore pipelines and storage facilities but involves increased congestion of smaller tankers near occurs. onshore facilities and appears to present greater risks of operational oil spills. When done under benign weather A representative of the U.S. Army Corps of Engineers conditions, this practice can be carried out with little stated in late 1974: "We agree that existing tanker facilities additional risk; however, the lack of experience with this can accommodate Alaskan import volumes not only until at practice precludes any complete risk analysis based on least 1985, but possibly to the year 2000. However, this operational experience. alternative, where feasible, may not be the most economical. The need for deepwater terminals is a relative need and not Monbuoys versus Conventional Buoy System. Tanker an absolute need. The consequences of deferring offshore facilities used throughout the world include piers, floating deepwater terminals could mean the loss of economic advan- barges, platforms, island, and offshore conventional buoy tages and greater environmental hazard due to increased (multi-point) mooring systems and monobuoys (single traffic at inshore harbors." point mooring systems). Offshore sites in California employ pier berths or conventional buoy systems (usually five to Siting Considerations for Offshore Tanker Terminals. seven buoys) which have thus far proven satisfactory for California may eventually require expanded tanker terminal tankers up to 130,000 dwt. Recent proposals have advocated capacity to accommodate increased crude oil imports. The using monobuoys. Monobuoys allow a tanker to freely Supertanker Single Point Mooring System (Offshore Tanker Terminal) Rotating se Mooring Arm Rotating Cargo ,L Manifold Floating Hoses Underbuoy Hose ' Underbuoy Hose Floats ..p ioorelng tChains Pipeline End Manifol Pipeline to Shore ENERGY * 133 swing around the berthing facility and appear to involve fewer environmental hazards than conventional buoy systems, which hold tankers rigid, and thus fully exposed Analysis of 269 O to wind, wave,and current action. Maintenance of hose Tanker Polluting lines is particularly important in any offshore system that nidents Groundings Collisions is exposed to wind and wave action. (70) 26.0% (81) 30.5X Other (3) 1.2 ; Supertankers Offer Several Economic Advantages. Super- Breakdowns (4) 1.5 tankers reduce the transportation costs of crude oil roughly Structural in proportion to the size of the ship and distance traveled. Explosions (16) 5.9 / ructures While the transportation costs to shippers may be substan- Fires (20) Z4_-/ (51) 18.6X tially reduced through use of larger vessels (e.g., tankers Rammings (248.9 of between 70,000 dwt, which carry about 450,000 barrels of crude oil, and 200,000 dwt, which carry about 1.5 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 figurations that provide separate oil tanks and water ballast from Alaskan oil, and about twoandahalfcents per gallon tanks; twin propellers and twin rudders for added maneu- of gasoline from Middle Eastern crude, with no guarantee verability and operational backup; and auxiliary power that industry's cost savings will be passed on to consumers). systems (e.g., boiler or diesels) to propel the vessel if the Some of the savings from use of larger vessels results from primary system fails. Development by the U.S. Coast Guard reduced tanker fuel consumption per unit of oil transported. of minimum performance standards for maneuverability and stopping capability would further encourage safe tanker design. Coast Guard studies indicate that double bottoms Oil Spill Severity Is Related to Tanker Size. A major study de sign. Coast Guard studies indicate that double bottoms fo, t, A , C, reduce the overall risk of spills. Standard Oil of California for the Army Corps of Engineers concludes that "alth ough for. the Army, Cor, is building tankers with double bottoms for use in the coastal larger tankers are, per unit of oil transported, lesser sources of pollution through casualties, it is also undoubtedly true trade. Improvements navi gational safety systems are that the potential for an incident of higher severity exists."g radar and other monitoring techniques to Regarding terminal operations involving supertankers, the determine vessel positions and warn vesselsagainst poten- same report concludes that "although the frequency of tial collisions. 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 Policies comparisons of tanker size to operational safety may be premature, however, until more data becomes available. 89. Basic Policy for Tanker Terminal Planning. Other factors directly related to frequency and size of oil Planning for tanker terminal facilities in California spill are vessel age, design, single or double hull construction, shall be sensitive to State and national energy and degree of compartmentalization; prevailing weather conditions, and regulations governing operations in severe needs. As soon as possible, the Federal govern- weather; and degree of a crew's operational experience in ment, the State Energy Commission, and other particular waters in harbors, among other human factors. (See concerned State agencies shall clearly define findings in Petroleum Development and Oil and ToxicSpills (1) the nation's energy needs and supply and sections for conclusions regarding oil spill containment, distribution policies; and (2) California's role cleanup, spill liability, and damage potential.) in a comprehensive national energy conservation Tanker Design Criteria Need Upgrading. Tanker design, and development program. Until such time, equipment, and operational procedures have steadily planning shall proceed, as before, on the basis improved over the past 20 years, allowing larger volumes of the petroleum needs of the Petroleum Adminis- of petroleum to be shipped, and reducing the risks of oil tration for Defense District V (PAD V, consisting spills. Such improvement is due in substantial part to the of California, Arizona, Nevada, Oregon, Washing- work of classification societies, international conventions, and the U.S. Coast Guard, which set minimum standards ton, Alaska, and Hawaii). Federal, State, and for structural strength, machinery design, maximum load, private industry energy planners shall give serious and equipment requirements, and which promulgate regu- consideration to providing for crude oil needs in lations that address pollution control, vessel safety, and other regions of the United States by encouraging vessel design and operation, and navigation. Such regulation oil companies to exchange volumes of crude rather notwithstanding, oil spills have consistently occurred that might have been prevented or mitigated had the vessels than by shipping Alaskan crude by transcontinental had the safest tanker design features now available. pipeline through California (e.g., exchange Alaskan crude volumes needed in the Midwest for Several Improved Design Features and Operational Pro- Middle Eastern oil otherwise destined for California cedures Are Now Available. Such features are still not fully markets, so that Aiaskan oil could remain in implemented in all new tankers, primarily because industry PAD V, and Middle Eastern oil could be shipped .questions whether they are "cost effective." They include: 10 1 design features that aid "load-on-top" procedures, which over shorter routes to East Coast and Gulf ports allow oil and water to be effectively separated and reduce to service the Midwest through existing pipelines.) the flushing of oil into the ocean; segregated ballast con- If national policy determines that petroleum must 134 * PART II: FINDINGS AND POLICIES be moved through California to the Midwest or (3) the proposed project will minimize the total East, tanker terminals and associated development volume of oil spilled in normal operations and shall be approved if they can be designed, built, accidents; (4) the location, design, and construc- and operated in accordance with all applicable tion of the new capacity minimize the risks of Coastal Plan policies. other adverse effects to the environment, including the risk of collision from movement of other 90. Coastal Agency Role in Tanker Terminal Siting. the terminal will have ready access As proposed in Policy 76, the coastal agency shall (1) have jurisdiction over the need, land use, and to the finest state-of-the-art containment and recovery equipment for oil spills; (6) the terminal environmental aspects of new or expanded tanker will be operated as a multi-company use facility; will be operated as a multi-company use facility; terminals in the coastal resource management (7) where operationally required, the terminal area, (2) determine the availability of preferred (7) where operation ally required, the terminal alternative coastal sites, and (3) participate with will have onshore deballasting facilities to receive alternative coastal sites, and (3) participate with the Energy Commission and all other concerned any fouled ballast water from tankers; and (8) the loc yand FederalC ag enci es in statewide onshore expansion of pipelines and of storage tlocal, State, andrFederal developmesinstatewie and pumping facilities associated with the new capacity is compatible with other Coastal Plan 91. Maximize Use of Existing Tanker Facilities. policies (particularly Policy 43) and with local land 91. Maximize Use of Existing Tanker Facilities use and environmental goals. In addition tothe use and environmental goals. In addition to the Existing tanker facilities shall be utilized at foregoing criteria, new tanker terminals outside maximum feasible berth occupancy, and multi- of existing port areas, or terminals to accommodate company use of existing facilities shall be encou- vessels larger than about 150,000e vessels larger than about 150,000 dwt of conven- raged, except where such policies would result in increased tanker operations and associated tional design or tankers of comparable draft, shall be sited in deepwater areas (greater than 80 feet) onshore development incompatible with land use sufficiently far offshore and so situated as to avoid risks to environmentally sensitive areas and shall use monobuoy offloading systems unless an alter- 92. Criteria For New or Enlarged Tanker Ter- native type of system can be shown preferable minals. New tanker terminals or expansions in an existing port area shall be permitted when (1) there is a need for new capacity that cannot 93. Recommendations for Improving and Enforcing be met with less risk or adverse environmental Tanker Technology and Operating Procedures. impacts through more effective use of existing It is recommended that the Legislature petition terminal sites and facilities; (2) the facility is Congress and the U.S. Coast Guard to (1) strictly intended to accommodate tankers no larger than enforce load-on-top design and operation on all about 150,000 dwt of conventional design, or larger petroleum tankers entering U.S. waters; capacity, wide-beam tankers of comparable draft; (2) require that all tankers carrying crude oil and Oil tanker Marcona Voyager arriving at Long Beach Harbor A s _N Am . . t_~~~~~~~~~~~~~~~~~~~~~~~~~�~- ENERGY * 135 refined products to U.S. ports have segregated formance standards ultimately requiring optimum ballast tanks; double bottoms; twin propellers and maneuverability and operational back-up for all rudders, unless it can be demonstrated that such tankers; and (4) strictly enforce such requirements design features do not add significantly to opera- by increasing the number of vessels the Coast tional safety or that a substitutable design feature Guard actually visits for inspection and by main- provides better maneuverability and operational taining radar or other monitoring control over back-up; auxiliary power equipment (e.g., double vessels operating in and immediately around boilers) for propelling the vessel in case of engine California ports and oil terminals. Outside port breakdown; and state-of-the-art navigational aids and terminal areas, the navigational safety system maintained in functional condition; (3) set per- proposed in Policy 119 shall be established. LNG FACILITIES Findings causes to hang close to the ground until its temperature increases to make the gas lighter than the air. Unconfined, Importation of LNG Requires Ship Terminals and Onshore the vapor mixed with air is not explosive, but in a mixture Facilities. Natural gas is considered to be the cleanest- of 5-15 per cent vapor and air it is highly flammable. Within Facilities. Natural gas is considered to be the cleanest- enclosed spaces, if thus mixed with air in the presence of burning fossil fuel and the most efficient for heating purposes. enclosed spaces, if thus mixed with air in the presence of an ignition source, it can explode. The primary danger The most significant potential sources of natural gas for an ignition source, it can explode. The primary danger California are in Alaska and Indonesia and other foreign present in a large-scale LNG spill is a very intense fire at California are in Alaska and Indonesia and other foreign nations. To be transported economically by ship, natural the spill site; a more remote hazard is that the vapor plume gas must first be liquefied by cooling it to -259� F. to reduce could drift into enclosed spaces adjacent to a spill site and explode or catch fire. its volume by a factor of 600. After shipment to areas near explode or catch fire. existing markets or pipelines, liquefied natural gas (LNG) is stored in large tanks and vaporized in a plant as it is LNG Spill on Water Presents Fire or Explosion Hazard. needed. With present technology, terminal and associated The greatest danger of serious fire or explosion would facilities for LNG must unavoidably be situated immediately occur following a major spill of LNG on water; the con- on the coast. sequences would be most serious in an active harbor area. The heat of the seawater and large spill surface area promote Gas Companies Have Proposed Three Coastal Sites. Western very rapid vaporization. The FPC staff has stated that if LNG Terminal Company (subsidiary of Pacific Lighting in a "worst case accident" an entire shipload of LNG (about Company) is already seeking Federal Power Commission 130,000 cubic meters) were released instantaneously without (FPC) approval for LNG terminals and facilities at Oxnard being ignited, it would evaporate in about 37 minutes, (Ormond Beach) to handle LNG from Indonesia, in Los forming a very large, cold, dense vapor cloud. Scientists Angeles Harbor to handle LNG from southern Alaska, and disagree as to how far downwind a vapor cloud might drift at Point Conception for LNG produced as gas on the Alaskan and remain flammable if not immediately ignited and if North Slope and piped to southern Alaska for liquefaction. there are conditions of very light wind and stable air; for Final FPC action on these three proposals is not expected a 100,000 cubic meter spill, studies have variously predicted prior to early 1976. PG&E has stated that the feasibility of limits of flammability from as little as 3 miles to as much locating such facilities in the San Francisco Bay Area is also as 125 miles and for a 5000 cubic meter spill, from as little currently being studied. as one mile to as much as 22 miles. Experts believe it very unlikely that a vapor cloud of any size could form and drift FPC Is considering Canadian Pipeline Alternative. The very far without encountering an ignition source and causing Point Conception proposal is part of an alternative to a a fire that would burn back to the site of the spill. One pipeline proposed through Canada that would serve California likely such ignition source would be the collision itself. along with the western and midwestern U.S. and eastern The chances of an accident causing any spill can be reduced Canada. A decision by the FPC is pending on the choice by special safety features for LNG carriers and by the of the alternatives, but reportedly will not be forthcoming Coast Guard's use of strict traffic control procedures during before late 1975 at the very earliest. passage of loaded carriers into a harbor. LNG Is a Hazardous Substance. LNG is difficult to handle Safety Measures Needed to Reduce Risk of LNG Spill on because the extremely low temperature at which natural Water. Because of the potentially disastrous effects of a gas is liquefied causes unique stresses on normal contain- large-scale LNG spill on water, particularly near a developed ment materials and requires special alloys to avoid such area, the Coast Guard prescribes and implements measures stresses; and in the event of an escape of LNG, there is very to ensure safe passage of LNG carriers into berthing facilities. rapid formation of a vapor plume, which the low temperature Safety measures are determined according to conditions 136 � PART II: FINDINGS AND POLICIES at each particular site. Measures presently required by the Methods of LNG Regasification Involve Problems. Regasifi- Coast Guard for bringing LNG carriers into New York and cation at a receiving facility is typically carried out in one Boston Harbors, for example, include: near-harbor escort of two ways: using gas-fired vaporizers; or using seawater of the LNG carrier by a Coast Guard vessel; controlling or at ambient temperature as a heat source for vaporization. halting other marine traffic in the area during loaded LNG Gas-Fired Vaporizers Pose Air Pollution Problem. The carrier operation, depending on the circumstances; use of disadvantages of gas-fired vaporizers for baseload use tug boats; special arrival notifications; and restrictions on are that one to two per cent of the plant's output would proceeding under specified visibility conditions. be used to fire the vaporizers and that there would be LNG Spill on Land Also Dangerous. The most significant continuous air pollution emissions. potential for serious fire at LNG facilities on land would � Use of Seawater Adversely Affects Marine Life. Use of occur following complete or partial failure of a storage tank. seawater in LNG vaporization presents problems of This potential can be minimized by use of the highest quality entrainment of sealife as water is drawn into the system structural and insulating materials, proven tank operating and discharge of cooled seawater at below ambient temper- and rigid maintenance procedures, use of proven technology atures after its use in the system. (See Marine findings for tank venting, and construction of a containment around regarding the effectsof entrainment and thermal discharges.) each tank sufficient in capacity to hold the entire tank volume Chemical biocides periodically added to the seawater for in the event of complete failure. When a containment is alefouling of the water pipes also have the potential to filled with spilled LNG, a relatively small amount of LNG defouling of the water pipes also have the potential to adversely affect marine life if they are not neutralized. surface is exposed, and rapidly frozen ground acts as an adversely affect marine life if they are not neutralized. insulator against a continued flow of ground heat; therefore These effects would be subject to regulation by the Regional insulator against a continued flow of ground heat; therefore vaporization occurs much more slowly than in the case of Water Quality Control Boards on a case-by-case basis to vaporization occurs much more slowly than in the case of ~~~~~~~a spill on water. ~prevent adverse effects on beneficial uses of receiving waters. a spill on water. High Containment Dikes Will Confine Flammable Plume. Physical Criteria for LNG Facility Siting. Selection of a site High Containment Dikes Will Confine Flammable Plume. best-suited physically to accommodate LNG port and plant Under conditions of light wind and stable air, flammable best-suited physically to accommodate LNG port and plant facilities involves at least the following considerations: vapor mixtures resulting from the failure of an LNG storage facilities involves at least the following considerations: tank may initially extend downwind as far as a mile. LNG � Control of Nearby Development. Facilities will require proponents, however, believe that in most instances, after sites that minimize the exposure of population and property the initial period of "flash" vaporization, the flammable zone to the possible effects of a major accident. Land use will be as little as 200-400 feet downwind, and that if the controls, including purchase of surrounding lands, must containment is a high dike around each tank, as planned be sufficient to prevent new development within the for facilities near populated areas, the flammable plume hazard zone around the LNG plant in the future. will be confined within the facility's property limits even Avoidance of Seismic Hazard Areas. Facilities require �Avoidance of Seismic Hazard Areas. Facilities require under worst-case conditions. sites away from areas of significant seismic hazard, and Danger Greatest at the Site. If the vapor is ignited, the wherever sited, must be designed to withstand fully the flame will burn back to the LNG pool, where the resulting maximum credible seismic risk at the site. fire could create intense radiant heat capable of igniting � Deep-Draft Port Facilities. Port facilities require navigable combustible materials within 500 feet, and endangering waters deep enough to accommodate LNG carriers (40 feet exposed personnel within 2,000 feet (with high dikes, these or greater draft) and sufficiently sheltered for year-round distances can be substantially decreased). Automatic and operation. Significant dredging might be required. individually activated remote control devices around the � Sufficient Acreage for Land Facilities. Land facilities plant site that release appropriate materials can help control require sufficient acreage for: storage tanks up to 125-150 feet LNG vapors and extinguish LNG fires. high and 240-270 feet in diameter; space between tanks to permit dikes, runoff, and catch-basin facilities; additional Accident Probability Is Low But Not Eliminated. Statistically space to reduce the potential for radiant heat from a fire the probability of a very large accident involving LNG is at one tank igniting another tank; space for vaporization very low. Except for its very low (cryogenic) temperatures facilities capable of regasifying peak loads at rates of as and propensity to form a flammable vapor cloud that can much as five billion cubic feet or more per day; and drift downwind off the site of an accident, the problems space for a buffer area. Total acreage for land facilities and risks connected with LNG handling and storage are may be as much as 100-200 acres. thought to be similar to those associated with handling and storage of such accepted hydrocarbons as gasoline and liquid Location Near Market Areas. Land and port facilities storage ~~~~~~~~~~~~need not be all in one contiguous parcel and the land propane. Improved LNG technology can now address the need not be all in one contiguous parcel and the land normal safety problems; however, the potential for serious facilities need not be immediately adjacent to the port; accident caused by human errors, or by such events as earth- however, piping gas in its liquefied form outside of the quake, tsunami, disaster at a neighboring facility, a major facility is extremely expensive and increases exposure of act of war, sabotage, or airplane crash can be partially life and property along the pipeline corridor to some risk. designed against, but not entirely eliminated. There are also economic advantages in siting LNG facilities near major market areas, although piping the regasified LNG Spill Harms Plants and Animals. Plants and animals natural gas relatively long distances is clearly feasible. subjected to a dense cold vapor cloud of LNG would probably � Gas Transmission Systems. Facilities must have adequate be killed. Birds might be able to evade the vapor cloud. gas transmission systems. The effects on marine populations of an LNG spill on water are not well known. The thermal shock caused by chilling Potential Siting Alternatives: Rural, Industrial, Harbor, and of the surface water would presumably cause some measure Residential. Very generally stated, a site selected in a rural of mortality, but probably would not have significant long area will pose the greatest impact upon the natural environ- term effects on marine populations. ment, but in the event of a major accident would expose ENERGY * 137 a minimum number of people to danger. Siting in a rural dence on LNG are substantial enough that an area could open the area to further port and industrial interruption of service from a single LNG facility development, which in turn could encourage the growth would cause substantial public harm. of new residential communities. Industrial locations in developed harbors would tend to have a minimum impact b. Human Health and Safety Paramount Con- on the natural environment, but would pose greater risk sideration. Until the risks inherent in LNG to human safety in the event of an accident. Harbors - terminal operations can be sufficiently iden- particularly those with large industrial areas - will have tified and overcome and such terminals are heavier ship traffic, superior traffic control systems, calmer waters, and less exposed berths. Location near a residential found to be consistent with the health and area will have a moderate impact on the natural environment, safety of nearby human populations, terminals could present social and economic impacts on the community, shall be built only at sites remote from human and would expose the population to the risks, however slight, population concentrations. Because of the of a major accident. public safety concerns and the goal of pro- Several Agencies Will Regulate Environmental and Safety tecting against unnecessary development in a Features of LNG Facilities. The Federal Power Commission remote, pristine area, other development in must approve projects for LNG imports from other states the vicinity of such an LNG terminal site shall or foreign nations. It is the lead agency for such projects, be prohibited. At such time as LNG marine and is responsible for preparation of environmental impact terminal operations are found consistent with statements under the National Environmental Policy Act (NEPA). It is not yet clear whether FPC jurisdiction will public safety, terminal sites in developed or preempt the right of State and local agencies to regulate industrialized port areas may be approved. the site location aspects of LNG facilities. Safety aspects will also be regulated by the Coast Guard (shipping-related), the c. Restrict Dredging and Filling. Where per- Office of Pipeline Safety (land facilities), the Occupational mitted, new LNG port facilities shall not involve Safety and Health Agency and the State Division of Indus- dredging or filling of wetland areas unless there trial Safety (employee safety), the Federal Aviation Agency is no less environmentally damaging alterna- (aircraft safety), and the applicable local fire, harbor, and tive. Any such dredging and filling shall con- building and safety departments. Other environmental aspects will also be the concern of the designated lead agency under form to Policies 15-18 of the Marine Environ- the California Environmental Quality Act (CEQA), the Army ment chapter. Corps of Engineers (marine facilities), the Regional Water d. Minimize Adverse Environmental Effects. Quality Control Board (RWQCB) and the local Air Pollution Control District (APCD). The NEPA and CEQA environmental Where permitted, LNG facilities shall be located impact review, and the RWQCB review, will also include and designed to minimize adverse environ- review by other interested agencies as applicable. mental effects. The applicant for an LNG marine terminal and onshore facilities shall submit a comprehensive evaluation of alternative coastal sites, including the environmental, economic, Policies and operational reasons for rejecting them in favor of the proposed site, sufficiently in 94. Coastal Agency Role in LNG Facility Siting. advance of a desired decision that an adequate The coastal agency shall have jurisdiction over and independent analysis can be made; such the need, land use, and environmental aspects material shall be included in any environmental of new or expanded liquefied natural gas (LNG) impact report required. Special consideration facilities in the coastal zone, in accordance with shall be given to Marine Environment Policy 10 Policy 76. The coastal agency shall determine the regarding heated and cooled discharges. availability of preferred alternative coastal sites, with the participation of the Energy Commission 96. Require Safety Measures During Marine and all other concerned State, local, and Federal Operations. All possible measures shall betaken agencies, including the Federal Power Commission. to maximize the safe passage of LNG carriers into berthing facilities. Such measures shall include, 95. Criteria for Siting and Design of LNG Facilities. where appropriate, application of measures pre- It may be desirable to locate some LNG facilities senty used for LNG carriers in New York and in the coastal zone. Any proposed LNG facility snl sdfrLGcrir nNwYr n in the coastal zone. Any proposed LNG facility Boston harbors: control or halting of other marine shall meet the following criteria: traffic by the U.S. Coast Guard during operation a. Limit Number of Terminals Until Safety is of loaded LNG carriers or during inclement Assured. Only one LNG marine terminal shall weather conditions; near-harbor escort of LNG be permitted in the California coastal zone until carriers by a Coast Guard vessel; use of tug boats (1) engineering and operational practices can in harbor areas; and safely designed berthing eliminate any undue risk, or (2) guaranteed facilities sufficiently removed from other traffic supplies of LNG and distribution system depen- flows and of sufficient size to permit maneuvering. 138 * PART II: FINDINGS AND POLICIES Outside port and terminal areas, the navigational shutdown of the entire pipeline system could safety system proposed in Policy 119 shall be be effected. established. * Protection Against Rupture. To guard against storage tank or pipeline rupture, provide 97. Require Safety Measures at Onshore Facilities. adequate and continuous monitoring, alarm, Any proposed LNG project in the coastal zone shall and process shutdown measures employ the following measures, unless safer feasible design, engineering, or operational * Standby Power. Provide independent standby measures are developed: power system to maintain essential operational and emergency systems during a power failure. � Storage Tanks. Use the highest state-of-the-art engineering design and technology, proven * Earthquake and Fire Protection. Locate and alloys, double-wall tank construction (now design all LNG-related facilities to withstand standard in the industry), engineering design the maximum credible seismic event for the and operation that preclude sudden formation area; provide all LNG-related facilities with the of a large quantity of vapor not adequately best available fire protection and fire-fighting ventable by the pressure relief valve system, technology, including adequate fire response and sufficient spacing between tanks to mini plans, equipment, and personnel to control any mize the possibility of an accident at one tank major fire. affecting another tank. � Containment Around Tanks and Pipelines. 98. Establish Liability for Accident Damage. It is Provide sufficient containment around each recommended that the Legislature establish strict tank to hold the entire contents of the tank with liability for damage occurring as a result of LNG a minimum surface area pool; near populated shipping or plant operations, except acts of war, or developed areas, provide containment that and consider creation of a safety indemnity fund, includes a dike designed for maximum feasible financed by levy of a fee on LNG imports, to reduction of vapor-plume travel, protection ensure that all damages and costs resulting from against severe weather or radiant heat from an LNG accident are quickly compensated. It is adjacent tanks in the event of a major fire, and further recommended that sufficient research protection against airplane crash or sabotage and development pertaining to LNG safety issues attempt; around exposed LNG pipelines, pro- be pursued by the Legislature, the Public Utilities vide dikes or other containment structures Commission, and the Energy Commission to deal capable of containing the maximum credible adequately with safety issues posed by LNG im- spill that might occur in a major rupture before portation projects in California. TRANSPORTATION TRANSPORTATION PLANNING AND THE COAST Findings � Workday rush-hour congestion in metropolitan regions; Parking and local traffic congestion in coastal communities; State Transportation Planning. Planning for all modes of *Decreased roadway capacity and safety resulting from transportation in California is conducted by the Department conflicts between different types of traffic; and of Transportation (in the Business and Transportation Agency) and by statutorily designated regional transportation planning *Increased air and visual pollution caused by slow-moving agencies (RTPAs). A statewide California Transportation traffic. Plan, prepared by the State Department of Transportation, In addressing these problems, coastal transportation policy is being considered by the State Transportation Board and and planning must deal with the characteristics and limitations is to be submitted to the State Legislature by January 1,1976. of automobile traffic in a high-use recreational area (including special recreational peak travel periods, longer average trips, Emphasis on Vehicular Transportation. Current State and recreational trips where the experience of driving along transportation planning still heavily emphasizes vehicular the coast is an important part of the trip) as well as the transportation facilities and, to some extent, airports. Port, effects of commuter traffic. railroad, and public transit planning are still not given the emphasis necessary for truly comprehensive transportation Coastal Access Improvements Must Be Strategically Planned. planning. ~~~~~~~~~planning. ~Transportation systems are needed to improve public access to coastal resources. But certain kinds of improvements to Inter-Agency Coordination Needed. The relationship between the transportation system may change the character of existing local and regional transportation and planning agencies is natural resource areas and may lead to the expansion of a source of conflict in some areas, creating a need for urban centers or the creation of new ones. Coastal access interagency coordination. Additionally, local municipalities improvements of all types - roads, transit services, bike- with State or Federal assistance, or through their own capital ways, and footpaths - must be strategically planned to serve improvement programs, carry out their own Street and the following goals: highway improvement programs. In coastal areas, such improvements (by creating developments that increase traffic o Provision of public access to the oceanfront; and parking) can often adversely affect coastal accessibility � Service to residential, recreational and commercial areas; and to resources of regional or statewide significance as well as * The protection of manmade and natural resources of the the mobility in and among coastal communities. coastal zone. Factors Influencing Inter-Regional Policy Decisions. The level of urbanization, type of terrain, the traffic mix, and the influence of corridor traffic between major metropolitan Emergency Transportation Needs Are a Special Problem. areas (e.g., San Diego-Los Angeles) are crucial factors in The coastal zone has experienced blockages of roads and making inter-regional policy decisions. railroads because of slides and severe flooding. In 1964 the coastal area of Mendocino County was isolated for several Traffic and Parking Congestion Problems in Coastal Zone. days. Adequate airport facilities are important for search- A pressing transportation problem in the coastal zone is and-rescue and forest fire-fighting operations. The Coast traffic and parking congestion. Congestion is actually a cluster Guard provides boats and helicopters for emergencies along of problems appearing in many forms: the coastline and harbor police and fire departments serve the port areas. Bus systems are an important means of Weekend, holiday, special events, and summer recrea- evacuation. Communication among the operators of all tional traffic and congestion along urban and intercity emergency transportation systems is essential. Existing icoastal routes; facilities are considered adequate for expected situations. 140 * PART II: FINDINGS AND POLICIES Policies transportation modes to the maximum extent possible. It is recommended that the Legislature 99. Consider Coastal Concerns in Transportation require the Circulation Element of local General Plans. The coastal agency shall participate directly Plans to include a section on bike paths in ongoing local, regional, and State transportation and lanes. planning to ensure that all transportation concerns c. Consider Emergency Transportation Needs. (e.g., weekend travel) and resource protection Transportation plans shall include consideration goals (e.g., air quality, energy conservation) of of emergency transportation needs. the Coastal Plan are considered in regional and State transportation plans. Principal concerns ioo. Review Transportation Plans Affecting are as follows: Coastal Resources or Access. The coastal agency a. Give Special Attention to Weekend, Holiday, shall review and approve or disapprove those and Special Events Travel. It is recommended aspects of State, regional, and local transportation that State laws now requiring local, regional, plans within the coastal zone that affect coastal and State agencies to prepare transportation resources or coastal access (e.g., roads and transit plans be modified to require the addition of a systems to and along the coast, ports, airports). weekend, holiday, and special events travel a. Coastal Agency Authority Over Projects Included component to the plans as they affect access in Approved Plans. Where a State, regional, or to and within the coastal zone. This component local transportation plan has been approved by shall be prepared by a technical study group the coastal agency, the agency's authority over composed of representatives of the coastal specific projects (within the coastal agency's agency, the State Department of Transportation, jurisdiction) shall consist of requiring conformity regional transportation planning agencies, to coastal policies through mitigating measures and local jurisdictions. The study group shall and shall not extend to denying projects where determine the compatibility of Coastal Plan they otherwise conform to the approved plan. policies with existing transportation plans and b. Authority Over Projects Not Part of Approved make recommendations for modification of Plans. Until such transportation plans are transportation plans and the Coastal Plan, prepared and approved, the coastal agency shallI where necessary to ensure consistency, be empowered to review and approve or dis- b. Encourage Energy-Conserving and Non-Air- approve proposals for transportation construc- Polluting Transportation Forms. Transportation tion and development that directly affect coastal plans shall include provisions for bicycle lanes resources and coastal access within the coastal and paths and for public buses, trains, and zone and all transportation proposals within other energy-conserving and non-air-polluting its area of jurisdiction. LA ND TRANSPORTATION HIGHWAY 1 AND COASTAL ROADS Findings Roadway Capacity and Traffic Flow. Increased road capacity can initially work to reduce congestion on coastal roads, Multiple Types and Modes of Traffic on Coast. Along the increase traffic flow, and improve the level of service. In urbanized coastline are many different types of traffic many cases, however, expanded road capacity is absorbed (commuter, recreational, local) and a variety of traffic modes by traffic generated by additional developments, so the (cars, buses, trucks, motorcycles, bicycles) that all use the resuing soverl leelofservc is ofedogetyiminished. same road facilities. This combination of types and modes adi oecssi iiihd causes conflicts that greatly increase traffic congestion. Adverse Impacts of Roads on Coastal Resources. The automobile is the principal means of transporting people to TRANSPORTATION * 141 Coastal Transportation 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 con- struction. Auto-generated air pollution can beasignificant . )DEL NORTE \. problem in coastal valley areas. High noise levels create Iz/;EL N ORTE an unpleasant experience for people and can also be harmful to wildlife. Some of the natural beauty of coastal areas can ' U.S. Highway 101 - thus be destroyed by the construction of roads. California Highway 1, and . 'HUMBOLDT lateral roads to coast / Roads Induce Growth, Impede Access in Some Coastal Areas. * Major airports Development is most likely to follow highway construction * Major ports when a new or improved road is provided in a desirable area /- ~ /of the coast near a growing metropolitan region. Where / - , road improvements spur development by placing thecoast MENOCINO AXwithin commuting distance of urban employment centers, /MENDOCINO mu , such development can impede coastal access for all users in ( i-- / ,two ways: by decreasing the amount of potential recreational land available while increasing demand for recreational use I| r ,' in the immediate area; and by increasing traffic loads on i / coastal roads, causing traffic and parking congestion pro- ,s, ) .blems. On the other hand, new or improved roads are not as \ t\<iISONOMA / likely to spur additional development in congested already- /s , , developed areas, or distant rural areas, or where growth is A'\ t',( effectively managed through direct land use controls. _ARIN ' Coastal Scenic Roads Need Protection. The State Scenic FRA NCISCO Highway Program was established in 1963 to protect viewshed corridors along State scenic roads. In 1965, the California Legislature passed the California Parkway Act to complement MATEO the Scenic Highway Program but it was never funded. The Parkways serve as "ribbon parks" giving access to a number ANTA CRUZ 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- MONTEREY ' between type of parkway is necessary, and could be encouraged by amending existing legislation or drafting new programs for parkways serving all the various parts of the coast. ,SAN LUIS OBISPO Policies 101. Relate Land Use Decisions to Transportation gig;SANTA BARBARA Capacity. Development controls should be the VENTURA principal means of relating land use, access and coastal resource protection decision policies to transportation capacity. However, development controls. are not always effective. Therefore, where As_* the road system capacity is or should be limited ,LOS ANGELES based on coastal policies, a system of budgeting the remaining or planned capacity should be * h *8 ORANGE developed (1) so that public recreational and scenic uses of the coastal road system will not 'SAN DIEGO be limited by new private residential and commer- cial developments; (2) to reduce the costs to the public of extensive road construction; and (3) to reduce damage to coastal resources that might otherwise result from road construction. To this -.. .... end, the coastal agency in cooperation with the 142 � PART II: FINDINGS AND POLICIES California Department of Transportation shall 102. Criteria for New or Expanded Coastal Roads. assign uses for the remaining capacity of road The construction or expansion of coastal roads systems in the following manner: shall be allowed where the following criteria are a. Determine Traffic Demand and Identify Problem met: Areas. Present and projected weekday and a. Prevent Adverse Land Use Impacts. The pro- recreational traffic demands shall be determ i ned posed project shall not open coastal rural areas for each major through-road segment both along for development nor allow for increased develop- the coast and intersecting with the coast. Parti- ment except in accord with Coastal Plan policies; cular attention shall be focused on those areas where a necessary increase in road capacity where the road network is approaching or could encourage development inconsistent exceeding capacity during peak-demand with the Coastal Plan, appropriate land use periods, or where increased road capacity restrictions shall precede any road construction. would result in significant adverse impacts b. Justify Project Need. The project is determined on coastal resources. to be necessary (1) because existing roads are b. Determine Remaining Capacity. For these road carrying traffic volumes in excess of their segments, the difference between the road's assigned service volumes (capacity) and no design capacity at an acceptable level of service alternate route is available or alternative means and the current traffic load shall be determined of transportation is feasible; (2) to provide - i.e., the amount of road capacity that could increased public access to the coast consistent be available for new traffic demand beyond that with coastal resource protection and other generated by existing developments. means of meeting this goal (e.g., public transit, c. Assign Remaining Capacity (Capacity Budget). diverting non-coastal traffic) have been found The remaining capacity shall be allocated to be infeasible; or (3) for unquestionably according to the following priorities: first, needed traffic safety improvementswhereno coastal-dependent land uses, essential public other safety measures are possible. services, and basic industries determined by c. Eliminate or Minimize Adverse Environmental the coastal agency to be vital to the economic Impacts. Road construction shall eliminate or health of the region, State or nation; second, minimize adverse impacts on sandy beaches; public recreation, commercial recreation, and environmentally sensitive areas, including but visitor-serving land uses; and third, other private not limited to coastal wetland or estuarine areas, and non-coastal-dependent uses. The capacity historic or archaeological sites; and other allocations shall be the "capacity budget" for significant manmade resources. Mitigation the road segment, and shall be the basis for measures shall be employed in planning, design, allowing any additional development that is and construction of new or expanded roadways, otherwise in accord with Coastal Plan policies including minimizing interference with natural (e.g., the capacity allocated to recreational use drainage patterns and the need for cutting, shall be based on the environmental carrying filling, and grading for roadway construction, capacity of the coastal resources). Existing in accordance with Policy 53. (See also Policy 43 developments that account for existing traffic regarding freeway construction affecting coastal demand are thus not a part of the "capacity air quality.) budget" and are presumed to continue inde- finitely. If the analysis in paragraph (b) deter- 103. Develop Alternatives to Prevent Excessive mines there is no remaining capacity to be Use of Coastal Routes. Except where greater budgeted, no further substantial individual adverse environmental impact would occur, major or cumulative development that would be transportation routes and public transportation dependent upon the deficient road segment systems shall be located sufficiently far inland to shall be allowed. The capacity allocations protect the scenic quality of the coastal road system arrived at in accordance with these priorities and to reserve Highway 1 primarily for recreational shall be used until public transit service or road use. Inland and lateral routes shall be improved capacity expansions approved in accordance and properly signposted to attract non-recreational with Coastal Plan policies provide sufficient through traffic away from coastal areas, consistent additional capacity to permit a readjustment with the State Department of Transportation of the allowable level of development. (See planning concept that "traffic which is not speci- North Central Coast Regional Summary Ap- fically oriented toward use of the coastal zone pendix for example of how capacity budgeting will be encouraged to use other nearby traffic could work.) corridors." Coordinated bus services, bus tours, TRANSPORTATION ' 143 Highway 1 near Cape Mendocino bus lanes, carpooling, and segregation of heavy applicable, the Scenic Parkway Program shall vehicles from regular coastal traffic shall also be be instituted. Particular emphasis shall be encouraged to reduce excessive traffic loads, as placed on protecting the highway corridor in well as to reduce air pollution along coastal roads. scenic areas. c. Use Shoreline Land Acquisition Law. It is recommended that: (1) the State law (Streets 104. Maximize Recreational and Scenic Value of nd hat ) that e and Highways Code, Section 880) that gives Highway 1 and Other Coastal Roads. The recrea- the State Highway Commission the authority tional use of coastal Highway 1 and other routes the State Highway Commission the authority to acquire shoreline property, between the along the coast shall be maximized and their value to acquire shoreline property, between the mean high tide line of the ocean (including bays as scenic roads, especially along the rural coastline, mean high tide line of the ocean (including bays and estuaries) and a State highway up to shall be protected. New and existing roads along and estuaries) and a State highway up to 300 feet, be vigorously utilized where appro- the coastline with expansive views of the coastal ft e i sl e aee ab priate; and (2) this law be amended to enable waters shall be regarded as scenic routes. Toward te an ( th a be en te this end: the acquisition of all the area between the highway and the mean high tide line if more a. Preserve Rural Highway 1. Highway 1 in rural than 300 feet is needed to protect ocean views areas of the California coast shall be kept a or shoreline recreational opportunities. scenic two-lane road. b. Establish a Coastal Scenic Parkway Program. d. Provide Roadside Recreational Amenities. It is recommended that a Coastal Scenic Park- Funding shall be provided for additional road- way Program be established in conjunction with side parks, information centers, vista points, the State Scenic Highway Program, as provided and rest stops, including picnic grounds, for in State law. Highway 1 and all eligible drinking water, rest rooms, and overnight State highways and county roads within the camp spaces where appropriate. Where safety coastal zone shall be designated as part of and feasibility permit, parking shall be on the the Scenic Highway Program, and, where inland side of the road, with safe pedestrian 144 � PART II: FINDINGS AND POLICIES access provided to the coastline. To protect lighting fixtures, directional signs, street the visual experience of traveling along coastal furniture, and landscaping materials shall also roads, as adequate off-road parking and road- be designed to visually identify coastal roads side view areas are provided, parking shall and to help orient coastal viewers. be prohibited along the seaward shoulder. Provisions shall be made where feasible along f. Regulate Development Along Scenic Routes. all such scenic routes for pedestrians, eques- Viewshed and roadside controls shall be trians, and bicyclists. required to protect the scenic qualities of roadway scenic corridors. (See also Coastal e. Design Standards for Scenic Coastal Roads. Appearance and Design chapter.) New and existing scenic routes, including roadways along the coastline with expansive g. Promote Coastal Highway Tour Bus Service. views of the ocean, shall be designed, con- To reduce automobile traffic on parkways and structed, and maintained with the highest scenic routes, it is recommended that the regard for aesthetic considerations. Bridges, California Department of Transportation vigo- overpasses, parking areas, guardrails, and other rously promote attractive tour bus service, on such transportation and roadside facilities shall the model of the European tour bus system. be integrated into the natural landscape so as (See Policies 107-111 regarding public transit.) to complement and enhance the surrounding area, and to retain scenic views and vistas. h. Provide Public Information on Scenic Routes. These facilities shall be harmonious with the It is further recommended that information scale and character of the existing road and/or on the scenic corridors be made availableto any improvements suggested in other Coastal automobile clubs, bicycle clubs, YMCA, YWCA, Plan policies. Small-scale elements such as tourist organizations, etc. PARKING Findings Shuttle Systems to Reduce Shoreline Parking Needs. Shuttle systems, by acting as collectors from remote parking Adverse Impacts of Parking Facilities. The demand for areas or transit transfer points, can greatly reduce the need parking facilities is high along the coastline, but additional for parking along the immediate shoreline. Shuttles can parking facilities would generally have negative environmental also be used to provide exclusive transit access to areas impacts and consume scarce coastal land. Encouraging that are environmentally fragile or overused. Care must be automobile traffic as a form of local transportation may be exercised, however, for it would be possible for the remote detrimental to the overall quality of the coastal zone environ- parking reservoirs themselves to have detrimental environ- ment, causing air and noise pollution and the loss of visual mental impacts. and environmental amenities. Where parking is inadequate, however, cars spill over into surrounding streets and neigh- borhoods, or onto the shoulders of highways, causing congestion and impeding public access to the shoreline. Policies Humboldt County 105. Minimize Impact of Parking Facilities. The adverse impact of parking facilities upon coastal visual resources shall be minimized while allowing for increased public access for the enjoyment of these resources. a. Use Shuttle from Remote Parking Areas if Possible. Public transportation to coastal beaches shall wherever possible be provided from existing centralized parking lots (such TRANSPORTATION � 145 as at schools, shopping centers, drive-in improved on-grade parking lots are permitted, theaters, or offices) when available during peak in addition to similar berms or buffers, they recreational use periods. It is recommended shall generally have trees planted throughout that public transit authorities investigate means the lots. and scheduling to implement such systems. Where it is physically possible to do so, upland 106. Require Adequate Parking in New Develop- parking facilities shall be provided, linked to ments. New, intensified, or expanded coastal coastal recreational facilities by trails, shuttle development shall be required to have either buses, or trams. New shoreline parking facilities (1) adequate parking facilities to meet the demand shall be allowed only if none of the foregoing' generated by the development (standards shall be alternatives is feasible. determined in subregional or local coastal plans b. Design Standards for Parking Facilities. based on the particular needs of the area); or Where feasible, parking shall beconsolidated (2) reasonably assured access by public trans- for joint use by surrounding businesses and portation to replace the need for private vehicles neighbors, and shall be below grade or under- and parking spaces to accommodate them provided ground, or in multi-story structures to prevent a sum equivalent to the cost of providing the large, obtrusive lots, and shall be attractively parking facilities that otherwise would be required designed and buffered with landscaping, berms, is advanced to the local transit district for improve- or other attractive screening materials. Where ment of transit facilities and services. PUBLIC TRANSIT Findings of vehicles not equipped to carry recreational equipment; High farebox charges, especially for groups and families; and More Coastal Transit is Needed.Transit systems are presently * Lack of personal mobility at the destination. used very little to gain access to and through the coastal While it is clear that transit operations cannot always zone, especially for recreational trips. Coastal transit systems substitute for coastal automobile travel, transit improvements could help reduce congestion and pollution and help provide - e.g., improved capability for handling recreational gear coastal access to those without cars and those who wish to and expanded schedules - could increase transit use. 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 Need for Funds for Transit Operations. Mass transit generally public demand for recreation is generated within two hours cannot pay for itself with fares alone. Although it has long driving time of metropolitan areas, which have the greatest been established practice for government to encourage need for public transportation. Existing bus systems could automobile travel systems through highway construction, provide service in metropolitan coastal regions through government support for mass transit has been limited. While weekend use of idle vehicles. Present service is currently transit's major financial need is for operating costs, State limited and/or inadequate in most coastal areas. and Federal subsidies provide primarily for planning and capital expenditures. Labor costs constitute the major portion Rail Passenger Service on Coast Is Increasing. Railroad of costs for bus transit, and the problem is compounded passenger service to and along the coast, now provided almost by the need for weekend service when labor costs are higher. exclusively by Amtrak, was on a steady decline from the 1920s and 30s but has been increasing since 1971 along with Possible Source of Transit Funds. Transit funding programs the public's desire for effective mass transit. New coastal could include: passenger railroad service is being proposed but limited � Placing responsibility on major traffic generators (e.g., by funding is available. requiring contributions to transit service), Problems of Coastal Transit Travel. Problems of transit travel * Assumption of some costs by other agencies that have on the coast, including recreational travel, include: jurisdiction in coastal areas (e.g., park and recreation * Inconvenience due to time requirements for home to agencies), or destination trip, frequency of transit service, inflexible * Subsidizing transit through charges on automobile travel schedules, difficulties in traveling with children and the use (e.g., gasoline taxes, license fees, parking taxes). 146 * PART II: FINDINGS AND POLICIES Policies service could be improved to provide increased access to and along the coast; or (6) where critical 107. Provide New Funding for Coastal Zone air pollution levels either exist or are projected. Transit. It is recommended that new sources of funding for the necessary expansion of public 109. Expand Transit in Urban and Air Quality transit in the coastal zone be provided, with Maintenance Areas. Public transportation in emphasis on subsidies for extensions or upgrading urban areas and in Air Quality Maintenance Areas of such service and providing operating costs and shall be developed, improved, and expanded in increased user conveniences (e.g., bus shelters). order to lessen dependence on the automobile High priority in the allocation of transit funds by for access to the coastline and in order to reduce transportation agencies shall also be given to air pollution levels. To this end: (1) feasibility studies for alternative transportation a. Improve and Expand Bus Service. Coordinated systems in the coastal zone; (2) seed money for bus service and tours, bus lanes, dial-a-bus the establishment of new transportation services service, jitney service to and from the coast, to serve the coastal zone; and (3) demonstration and intracity shuttle loops shall be developed. projects for new service, with emphasis on inno- Commercial recreation and support facilities vative approaches that will maximize access while shall generally be clustered into multi-use protecting coastal resources. complexes that can be served by public transit facilities. 108. Establish Priority of Transit Over New Roads b. Design Bus Service for Recreational Users. for Cars. Public transit shall be given priority Public transportation shall include accommo- over new or expanded roads for automobiles, dations for the physically handicapped, bicy- particularly (1) where public transit is most econo- clists, surfers, divers, and others with bulky mically feasible, because of high population con- or specialized equipment, and weekend sche- centrations and concentrated recreational uses, dules shall be established with specific stops and/or where existing transit districts or facilities and pickup points designed to serve recrea- could expand weekend service; (2) where present tional users. highway or parking facilities are congested and public transit could provide additional access 110. Encourage Expanded Rail Service. Amtrak without the adverse effects of new roads and and the rail companies shall be encouraged to parking; (3) to provide exclusive access to fragile expand intercity passenger rail service along coastal areas, in order to limit the amount of use; appropriate existing rights-of-way in the coastal (4) to link all coastal communities currently lacking zone. An inventory of all coastal railroad rights- such connections, especially northern California of-way shall be made and all rights-of-way poten- coastal communities with the San Francisco Bay tially usable for railroad passenger travel shall Area; (5) where existing rail right-of-way or be preserved for future rail service. No use shall Amtrak train out of Gaviota, Santa Barbara County ;- ;PB JS �~t TRANSPORTATION * 147 be made of these rights-of-way that would preclude in areas where people are likely to use transit their use for some form of transportation, including facilities to the coast (e.g., San Jose, Salinas, mass transit. The long-term goal shall be the Riverside) and especially to schools and senior connection of passenger rail service with public citizens' centers since the young and old are transit to provide door-to-destination service. particularly dependent on public transit. Trans- portation agencies shall also cooperate with 111. Encourage Transit Usage. Regional trans- education agencies at all levels and the public portation agencies shall work with the variety of media to promote broader public consciousness public and private companies (e.g., Greyhound, and acceptance of mass transportation as a Peerless, Amtrak, local bus lines) to encourage practical means of personal transportation, coordinated, integrated systems and to draw up particularly as it serves public objectives of unified and convenient schedules showing access environmental protection, energy conservation, to the coast. These schedules shall be distributed and reduced costs for total transportation service. AIR TRANSPORTATION Findings Policies Airports Consume Large Amounts of Coastal Land. By their 112. Policy on Future Airport Siting. Because no very nature, and especially with new requirements for noise new airports or airstrips are proposed by airport buffer areas, airports consume large amounts of land. Satellite planning agencies in coastline or offshore locations, business and industry also can consume large amounts of land, especially at the larger airports. the Coastal Plan makes no provision for them. If a substantial need for a new airport in a coastal Airport Noise Has Severe Impacts. The most severe environ- or offshore location should arise in the future, mental impact of airports and air travel is their noise impact, the coastal agency shall develop siting criteria particularly on residential and recreational coastal areas. in cooperation with the California Department This is most severe in the cases of Los Angeles International Airport and Lindbergh Field in San Diego, where there is of Transportation and other appropriate State intense urban development. To mitigate this impact, the agencies addressing the possible adverse impacts State Department of Aeronautics has established Community airports can have on coastal lands, residents, and Noise Equivalent Level (CNEL) standards with target dates other coastal users (e.g., noise, consumption of for their attainment. For new airports, no residences may large amounts of coastal land, generation of be located within 65 CNEL contour projected for such airports; existing airports must reach the same standard by 1985. On airport-related surface traffic). The coastal agency the other hand, airports located on or near the shoreline do shall adopt the criteria, after public hearing, before offer overwater takeoffs and landings, which reduce noise considering any specific airport siting proposals. impacts on the adjacent urban areas. Even small private air- strips consume large amounts of land and can have some of 113. Limit Expansion of Coastal Airports. Landfill the foregoing effects. and other land expansion of existing coastal airport Airports Generate Surface Traffic Congestion. During peak facilities shall be permitted only if the applicant periods, airport-generated surface traffic congestion can can demonstrate that (1) there is a need for compete with coastal recreational traffic. expansion that cannot be met through more efficient use of existing facilities, or through Airports and Airstrips Could Be Located Inland. Considering efficie n t use of existing facilities, o r through airports' land requirements, the scarcity of coastal sites, and other transportation systems; and (2) all other the nondependency of airports and airstrips on coastal loca- means of expanding have been evaluated and tions, there appears to be strong justification for locating air- are unacceptable because of economic, environ- ports away from the coast in favor of more coastal-dependent mental, and social costs. or -related uses. No new coastal airports are now foreseen by airport planning agencies, with the possible exception of a In the San Diego region, because the future of site at Pebbly Beach on Catalina Island. Lindbergh Field and Ream Field is somewhat 148 * PART II: FINDINGS AND POLICIES uncertain, expansions of these existing coastal airports shall be allowed only as interim measures to ensure their efficient operation, pending final . decisions on San Diego regional airport planning ^ and the maximum feasible consolidation and elimination of non-coastal-dependent military air operations. Any proposed interim expansions shall (1) not increase the total area encompassed by the airport boundaries; (2) not intensify the adverse ^/.,: .- . ' environmental impacts of the existing airports; (3) increase airport efficiency and accommodate larger, quieter aircraft, reducing the total number of flights; and (4) be easily amortized over the useful life of the airport. The replacement of Lindbergh Field with a new regional airport at a site less damaging to the coastal environment is strongly urged. 114. Provide Public Access in Some Airport Buffer Los Angeles International Airport Land. Coastal airports with large amounts of adjacent buffer land that may contain areas suitable for recreation and/or enviropmental preservation in conjunction with coastal waters (such as Los existing or proposed airports shall not be permitted Angeles Airport, Lindbergh Field, and Santa to lower the level of service or budgeted recrea- Barbara Airport at Goleta) should provide public tional capacity of surrounding street, highway, or access, where feasible, and recreational amenities, freeway systems that serve the coastline. Further, including bike paths, hiking trails, scenic turnouts, mass transit systems, regional airline bus ter- and viewpoints. minals, jitney service, and park-and-ride lots shall be encouraged to provide transit alternatives, 115. Reduce Impact of Airport-Related Trans- replacing the need for the private car, and to portation and Parking on Coastal Access. Airport reduce traffic congestion and vehicle emissions ground transportation and parking facilities serving at coastal airports. WATER TRANSPORTATION the jurisdiction of the San Francisco Bay Conservation and Development Commission (BCDC). Statewide port policies could have an impact on the relative competitive positions Economic Importance of Ports. The ports of Californiaare of all of the State's ports, including the San Francisco Bay major economic enterprises that serve major import, export, ports. The BCDC is presently involved in a regional port and domestic waterborne commercial needs of California planning effort with the Metropolitan Transportation Com- and the nation. Directly and indirectly they provide a signi- mission (MTC). Coordination of these efforts with coastal ficant proportion of the jobs and income of the State. Because agency planning is necessary to ensure the development of the economic importance of port facilities, necessary port of compatible regional port policies. growth and development should proceed, but in a manner that minimizes damage to the coastal environment. Competition Between Ports Can Result in Overbuilding. The major California ports are public agencies that compete San Francisco Bay and California Coastal Zone Planning. with each other for cargo and business. Such competition The California Coastal Zone Conservation Act of 1972 can result in overbuilding and underutilization of port (Proposition 20) excluded from the jurisdiction of the California terminals, as each port tries to capture the most cargo and Coastal Commission the San Francisco Bay region, one of to keep pace with changes in shipping technology. Renewal the State's major port areas (including the ports of San of existing port areas and increased efficiency of port operation Francisco and Oakland), because this area was already under could offset some of the need for expansion of port land area. TRANSPORTATION � 149 Unnecessary Port Development Results in Avoidable Environ- in some California harbors, but they are not yet being used mental Damage. While the present system has resulted in as efficiently or economically as they were intended. The competitive rates and modern facilities for shippers, it is use of currently available (though expensive) high-speed not able to adequately take into consideration the environ- vertical stacking equipment could also reduce the need for mental impacts that may result from unnecessary port port expansion; acreage requirements for storing standard- development. As explained in detail in the Marine Environ- ized containers can be reduced from more than 35 acres per ment chapter, dredge and fill operations to develop or maintain berth to less than 8 acres per berth. ports can have significant adverse environmental impact on marine resources. Marine Traffic Control. Economics of scale and improvements of ship design have combined to produce ships of ever- Analysis Needed to Determine Future Port Development increasing size. Planning is now underway fordaily tanker Needs. An updated analysis of future Californiacommodity trips from Alaska to Los Angeles, the development of facilities flows is necessary to adequately assess the need for port for offloading of liquefied natural gas (LNG), drilling rigs on development. The Army Corps of Engineers is presently the outer continental shelf and within the channels and bays conducting such an analysis for the entire West Coast as along southern California, as well as projected increases in well as a more detailed study for the Los Angeles-Long Beach amount of commodities flowing through the ports of California. and San Francisco Bay port areas. Navigation will be in ever-larger vessels over morecongested waters with a large number of obstacles around which the Existing Ports May Be Underutilized. Although there are superships must pass. Should an accident occur with the no generally agreed upon estimates of the capacity and collision or grounding of a large-capacity oil tanker, a ship present degree of utilization of California ports, one major shearing off a drilling platform or an LNG tanker colliding study method (Frator, 1960) suggests the existing major port with anything and exploding, major adverse environmental complexes on San Francisco Bay and San Pedro Bay (ports impacts would result. Every effort should be expended to of Los Angeles and Long Beach) and Port Hueneme appear reduce the possibility of a navigational accident to a minimum. able to handle much more traffic than they do currently. While ground control over air capacity is widely accepted as The Maritime Administration in the U.S. Department of essential to safety in air transportation, similar controls do not Commerce is now making a two-year study of ways to now exist over ships even in hazardous coastal waters or adequately determine port capacity. those sailing with extraordinarily dangerous cargoes. No New General Ports Are Needed. No new general port Rail Use at Ports. An efficient land transportation system areas are required in California for the foreseeable future. is a major consideration in port design and operation. Studies Present projections of commercial shipping needs (Water being done by the California Department of Transportation Resources Council, 1971) indicate that most general and bulk and regional planning bodies will deal with the land trans- cargo port requirements for California can be handled at portation requirements of existing ports. Rail transportation, existing port complexes with modifications such as renewal while less flexible than truck, generally requires less land, (i.e., more intensive use) of port land and equipment generates much less air pollution and uses less fuel. However, modernization. trucks are required for short hauls. Coordinated Planning Could Maximize Ports' Efficiency, Lack of Coastal Water Passenger Service. The highest coastal Capacity. Distributing commodity flows among a region's population concentrations in California are located around the ports on the basis of available and planned facilities, and San Francisco Bay Area and from Los Angeles southward to planning port development projects according to projected the Mexican border. Despite these high population concentra- commodity flows, could maximize the yield from public funds tions, the only existing water passenger service is from Long and minimize the need for additional port development. Beach to Catalina Island and from San Francisco to Sausalito and Tiburon. 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 Policies or traffic distribution between ports, even for ports within the same bay or harbor. Currently, the BCDC in conjunction with MTC is involved in a regional ports planning effort 116. No Additional Major Port Areas Are Required. for the San Francisco Bay Area. Although the California No new port areas shall be developed outside Department of Transportation is required by its enabling legislation to prepare a California Transportation Plan (for existing port cities except for possible specialized submission to the Legislature by January 1,1976) that will facilities such as petroleum or liquefied natural include regional maritime transport elements, the Department gas (LNG) tanker terminals and naval facilities. has completed a survey indicating there should be a State role Ports within existing port cities may be expanded in maritime transportation planning, but no policy has yet been adopted as part of the Transportation Plan. in accordance with the following policies. New Cargo Handling Technology. New methods of hand- 117. Maximize Use of Existing Ports. To make ling cargo may reduce some of the need for port expansion. maximum use of existing ports, a master plan Lighter-Aboard-Ship-Handling (LASH) vessels were speci- f each po rt shall be prepared, taking into account fically designed to on- and offload barges near ports lacking sufficient draft to accommodate deep-draft vessels and to potential traffic conflicts between oil tankersor permit unloading at congested ports. Use of these vessels LNG carriers and other vessels and giving the would effectively eliminate the need for extensive dredging highest priority in the use of existing land space 150 � PART II: FINDINGS AND POLICIES within harbors to port purposes, such as navi- for port development or expansion shall be gational facilities, ship-berthing and materials- permitted if the following conditions are met: handling facilities, shipping industries, and necessary support and access facilities. Other uses a. Need Based on Projected Types of Cargo and necessary support andacessfacilities.OthersVessels. There is a need for the project based consistent with the public trust and otherwise onhea o a d t the ac bene such as recreation and wildlife habitat, on the amount and type of cargo and the charac- shall also be provided to the extent feasible. Rail trsiso esl rpsdt ehnldb beneficial, suchasrecreationandwildlifehabitat, teristics of vessels proposed to be handled by shall aervicde d to t he extent feasible. Rail the new development, taking into account the service to port areas shall be encouraged. significance of the economic efficiencies that might be obtained thereby. Where available, 118. Criteria for Port Development Involving or where required by the coastal agency prior Filling or Dredging. Because filling and dredging to approval, regional commodity flow studies, for major port development or expansion may be such as those presently being conducted by required to maintain the high economic values of the Army Corps of Engineers, to be reviewed California's ports, but because such development and accepted by the coastal agency, shall be or expansion can adversely affect the marine consulted in determining the need for such environment and can displace recreational boating development; also a detailed examination of from important harbor areas, major filling and berth occupancy, port tonnage, and other dredging for port purposes shall be allowed only relevant port performance indices, such as when there is a clear need for it and when its those presently being drafted by the U.S. adverse environmental effects have been mini- Maritime Administration, shall indicate that mized to the greatest extent feasible. Evaluation the proposed development is needed to accom- of the need for a project shall be executed coopera- modate amounts and types of cargo for which tively by the coastal agency and the California there are no existing adequate and available Department of Transportation and/or the Depart- terminal facilities. ment of Navigation and Ocean Development (as b. Regional Facilities at Capacity or Unavailable. the relative roles of the two agencies are clarified All regional terminal facilities capable of accom- by the Governor and the Legislature) but the modating the projected commodity flow will be coastal agency shall makethe final determination utilized to their maximum practical capacity. of need in the case of major dredging or filling Regions for this purpose are San Diego, Los projects. Specifically, major fillingand dredging Angeles-Long Beach, Port Hueneme, San Los Angeles Harbor looking south beyond Federal Breakwater TRANSPORTATION * 151 Francisco Bay-Stockton-Sacramento, Humboldt equipment and handling methods. Bay, and Crescent City. Factors to beconsi- dered in determining the capacity of a port are: (This policy does not apply to minor in-harbor (1) landside movement of cargo into and out dredging, which shall be allowed in existing ports of the port; (2) storage of the cargo while in to maintain existing or previously constructed port;(3) movement of the cargo onto and off water depth, in accordance with Policies 16and 18.) the ships; (4) navigation requirements of oceangoing vessels; and (5) the integrity of 119. Recommendations for Navigational Safety. major ocean carriers' operations. Where any It is recommended that the Legislature petition apparent surplus capacity is obsolete but is Congress to authorize and fund the Coast Guard restorable for port use and is under the opera- to establish appropriate systems for determining tion of another port operator in the same region the position of all ships (those greater than 300 who is unable to effect the restoration, the fea- gross tons) at any time in coastal and ocean waters sibility of lease and management of the surplus of the United States. A communication system capacity by the port applicant shall be evaluated shall be implemented to advise all ship com- before additional filling and dredging is allowed manders of the presence of other vessels in the for new facilities that might have otherwise area with which a course conflict could occur or used that surplus capacity. of the presence of other obstacles to navigation (especially drilling platforms) that lie along the c. Port Master Plan and EIR Completed. A port projected course of the ship. master plan has been completed and a final environmental impact report of the port master 120. Study Feasibility of Expanded Coastal Ferry plan carried out as prescribed by the California Service. An in-depth study shall be conducted as Environmental Quality Act. part of the State Transportation Plan to determine d. Existing Areas Used Efficiently. Wherever the feasibility of implementing inter- and intra- feasible, the required back-up land area has regional recreational and commuter ferry service been minimized and existing areas more in- along the coast. Existing ferry service shall be tensively used through the use of improved vigorously promoted and expanded. 0 PUBLIC ACCESS TO THE COAST� Findings demand on the shoreline. 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 Constitutionally Guaranteed Public Access Is Being Lost. not possible. (See also the Recreation chapter.) Of the 1,072 miles of California coastline, only 508 miles are in public ownership, and 75.3 miles of the publicly owned High-Cost Housing and Tourist Facilities Are Restricting shoreline are along military lands generally not available Coastal Access. Because of rising land and construction costs for public recreation. However, the right of public access and high property taxes, the limited amount of land available to all coastal tidelands is guaranteed by the California on the coast, and the demand for higher-priced housing Constitution and has been expanded in scope by various and visitor accommodations, few housing and tourist facilities statutes and court decisions. In addition to the publicly-owned for persons of low and moderate income are now being built coastal recreational facilities, much of the coastline has in many parts of the coastal zone. Moreover, existing housing historically been used by the public for recreation. In recog- and tourist facilities serving low-and moderate-income nition of similar public use, Texas and Oregon have enacted persons are being replaced by higher cost apartments, "Open Beaches"'' laws to guarantee public access to larger condominiums, and motels. This trend, begun several years parts of their coastlines; similar legislation has been con- prior to the passage of the Coastal Act, is in several coastal sidered by the U.S. Congress. Despite legal guarantees and areas changing the character of the population near the coast. historical public use of the California coastline, much access Many elderly and low-income people, for example, can no to the shoreline has been lost by the erection of fences, longer afford coastal living and are forced to live elsewhere. buildings, and other structures. Condominium Conversions Displace Low-and Moderate- Ways to Provide for Public Access. Public access to the Income Persons. The process of converting rental units to coastline can be provided by strengthening the public's condominiums often causes the elderly and other moderate- existing legal rights in a number of ways such as the following, and lower-income persons and families to move away from Existing powers that enable regulatory agencies to require the coast because of difficulties in obtaining mortgage public access as a condition in the approval of subdivisions financing, their lack of savings to coverthe down payment or developments (or where public access is not feasible or requirements and their inability to afford monthly payments desirable, the payment of "in lieu" fees for the acquisition of access elsewhere) could be more fully utilized. The Del Mar, San Diego County Subdivision Map Act could also be amended to make such requirements more explicit. Experience indicates that access can be required without undue hardship to private property 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 bringing 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. Private Development in the Coastal Area Can Impede Coastal Access. Along the immediate shoreline, homes, businesses, and industries have often cut off existing public access to the coastline, have used up available road capacity and off-street parking, and have precluded use of the coastline area for recreation. Development 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 transportation systems serving the coast, development can reduce upland recreational opportunities that would otherwise relieve .0 PUBLIC ACCESS TO THE COAST * 153 higher than apartment rents, and the reduction in the amount rights of property owners. Fully achieving this of rental housing caused by the cumulative effect of con- goal, especially in urban areas, may require many dominium conversions elsewhere in the coastal zone. years of concerted public and private measures. Expensive Recreational Facilities Can Exclude Equal Access. a. Width of Oceanfront Area Available for Public Some areas of the coastline have been used for recreational Use. The width of the oceanfront area available activities involving expensive items such as second homes, large boats, and exclusive clubs that are limited to a relatively for public use shall be related to local conditions small portion of the general public. Unless these and other and to the possible public uses. In some places such costly recreational resources are made available to the the width might be quite small; in others, general public through rental programs, many people will several hundred yards or more. The goal shall be precluded from enjoying certain areas. be the provision of areas large enough to permit Institutional Facilities Provide Public Access Opportunities. significant opportunities for public use and Because their peak use times do not generally coincide with enjoyment of the oceanfront. peak coastal recreational use, and because of their public b. AchievingPublic Access. Insomecases,public service orientation, certain institutional facilities such as libraries, city halls, and colleges, if properly planned, can purchase of lands will be necessary to achieve provide substantial opportunities for greater public access this public access policy. In others, public pur- and enjoyment of the shoreline, and can complement the chase or dedication of scenic easements across protection, enhancement, and restoration of coastal resources. agricultural lands will be adequate to provide visual access to the shoreline. Private develop- Military Lands Have Potential for Providing Public Access. ment of visitor-serving and commercial- Military bases located on the coast have often served to protect coastal resources. However, many such bases also recreational facilities in suitable nearshore have the potential of providing additional significant oppor- areas shall have priority over other types of tunities for public coastal access that would be consistent development in these areas. Such private with both military uses and resource protection. developments shall be designed to maximize the provision of public access to the coast. c. Special Effort Is Needed in Urban Areas. In Policy metropolitan areas, an active program of public acquisition shall be initiated to preserve re- 121. Basic Policy: Provide Access to the Coast maining open oceanfront areas for public use for All People. A major long-term goal of coastal and to provide city dwellers access where conservation and development shall be the pro- development currently precludes effective vision of maximum amounts of oceanfront area access to the shoreline. Where large public for public use and enjoyment. Access to the coast open spaces cannot be provided (such as within for persons of all income levels, all ages, and all existing port facilities, downtown areas, or social groups shall be the goal, consistent with built-up neighborhoods) public access through the need to protect coastal areas from destructive and around the areas that connect with other overuse and to protect both public rights and the public open spaces shall be provided. THE RIGHT OF PUBLIC ACCESS Pol icies ~~~~~~Policies ~a. Prevent Development from Encroaching on Public Use Areas. Development shall not be 122. Guarantee Legal Rights of Public Access permitted to interfere with the public's right, to the Coastline. The rights of public use of the where acquired through historic use and coast, protected by the California Constitution, custom, to use dry sand and rocky coastal recognized by the courts of California, and ac- beaches to the first line of terrestrial vege- quired through historic use and custom, shall tation. In an area subject to public rights of be effectively guaranteed. To this end: access, development shall not be allowed to 154 * PART It: FINDINGS AND POLICIES proceed in a manner inconsistent with those 123. Provide Public Accessways to the Coastline. rights. Where evidence of extensive public Public access from the nearest public thoroughfare use exists, determination of public rights shall to the shoreline and along the coast shall be pro- be made by the coastal agency in advance of vided in new developments as specified below. development proposals, and for sections of the a. Require Access Through New Developments. coast including several properties rather than New developments shall provide public access- on a lot-by-lot basis. This policy is intended to ways to the shoreline except in those individual define and protect existing public access rights, cases where it is determined that public access and shall not be used or construed to allow a is inappropriate, such as where (1) adequate taking of private property in violation of the access exists nearby, (2) the topography makes U.S. and California Constitutions. access dangerous, (3) the proposed develop- b. Enforce the Public's Rights. The Attorney ment is too small to include an accessway, General's Office, the Resources Agency, or (4) the coastal resources are too fragile to another appropriate State agency shall be accommodate general public use, (5) public adequately funded and directed to survey and to safety or military security precludes public use, more actively enforce the public's existing or (6) the public accessway would adversely rights, under the implied dedication decisions, affect agricultural uses. In developments where to have access to and use of the coast, and to the provision of a public accessway is deter- take all necessary steps to protect the public's mined to be inappropriate, the project sponsor rights including bringing suit on behalf of shall pay "in lieu" fees(tobeestablishedin the public. regulations by the coastal agency, after public hearings, or in approved subregional or local c. Restrict Signs That Discourage Access. No coastal plans) to a fund for the acquisition, signs shall be posted that would discourage the maintenance, and operation of public access public from exercising its legally guaranteed at a suitable location elsewhere. To the maxi- rights of access to the coast except under the mum extent feasible, in-lieu fees shall be spent provisions of Policy 124. in the general area in which they are collected Seascape Shores (private), Solana Beach, San Diego County ! - 1; -A 'rP r .. 'I . f~~~~~~~~~ PUBLIC ACCESS TO THE COAST � 155 and in areas where access is called for in sub- three years to ten years; and (3) continue the regional and local coastal plans. access dedication requirements of the Coastal b. Guarantee That Access Is Permanent. In Act (Public Resources Code, Section 27403[a]) public, semi-public, commercial recreation, and make such requirements for access dedi- and visitor-serving developments (such as cation, where applicable, a condition of local colleges, museums, restaurants, and hotels) government permits for development. that allow public access to their grounds as e. Authorize State Agency to Acquire and Maintain a part of their normal operations, public access Accessways. A State agency (e.g., Department to the shoreline shall be guaranteed by the of General Services, State Lands Division, recording of a restriction covering the reserved Department of Parks and Recreation, or a accessway. In private developments, public coastal conservancy agency) shall be authorized access shall be ensured (1) either by dedication to (1) receive and adequately maintain and of fee title or an easement for the reserved police public accessways and to hold liability accessway to a public agency, or (2) by the for these areas; (2) receive the payment of a recording of a deed restriction, at the owner's fee in lieu of the dedication of access if actual option. Dedicated accessways shall not be access is not appropriate; and (3) exercise the required to be opened to public use untila power of eminent domain and expend the public agency or private association agrees in-lieu fees to acquire, maintain, and operate to accept responsibility for maintenance and public access in areas where access cannot liability for the accessway. otherwise be secured. c. Provide Blufftop Paths and Linear Parks. A 124. Manage Public Access Areas. Areas to which coordinated system of paths and linear parks the public has the right of access shall be managed, shall be provided on coastal bluffs, where con- maintained, and controlled by public agencies. sistent with other Coastal Plan policies, linking These areas shall include (1) tidelands, dry sand these areas with community trail and park and rocky beaches, and those portions of the systems, such as the Coastal Trails System oceanfront area historically used by the public; recommended in Policy 145. recommended in Policy 145. and (2) accessways through coastal developments d. Expand Enabling Legislation for Requiring provided pursuant to Policy 123. General public Dedications. It is recommended that legislation use of an area may be closed or limited by the be enacted to (1) amend the Subdivision Map government agency managing the area, upon Act (Government Code, Section 66410 and concurrence of the coastal agency, where necessary following) to provide for review and approval to prevent deterioration of natural resources, con- by the coastal agency of local determinations ditions unsafe to the public, threats to military that "reasonable public access is otherwise security, or uncontrollable public nuisance causing available within a reasonable distance from damage to adjacent properties. The legal right of the subdivision;" (2) extend the statute of public access shall not be surrendered because limitations on government acceptance of coastal of the presence of any of these conditions, and access dedications in the Subdivision Map Act areas closed to general access shall be reopened or other appropriate statutes from the present as soon as the condition can be resolved. EQUALITY OF ACCESS (including campgrounds, hotels, youth hostels, ~~~~~~~~Policies ~recreational vehicle parks, etc.) for low- and moderate-income persons shall be provided in the 125. Provide Lower-Cost Tourist Facilities in the nearcoast area through the use of all available Nearcoast Area. To increase recreational access to financing techniques, including the tax increment the coast for the general public, tourist facilities obtained from high-cost coastal housing and tourist 156 � PART II. FINDINGS AND POLICIES facilities. Lower-cost visitor facilities such as approval of the demolition of any such existing campgrounds, rustic shelters, ranch housescon- housing in the nearcoast area. The replacement verted to inns, bed and board in private homes, housing shall be in the same general area and summer home rentals where several families can shall be of a size and in a price range similar to share the cost, and new tourist accommodations the housing to be demolished. This requirement that provide some moderately priced units and shall not apply to single-family homes occupied short-term rentals of other recreational facilities by the owner of the home or the owner's (e.g., boats) shall be given priority over exclusively immediate family. expensive facilities (e.g., private residential b. Provide New Low- and Moderate-Income developments, some yacht clubs). Recreational Housing. A significant percentage of new vehicle campgrounds - provided both by the public housing within the nearcoast area shall serve and private sectors - shall be encouraged where low- and moderate-income persons to the consistent with other Coastal Plan policies (see extent that funds are available from State and especially Recreation chapter). Where possible, Federal sources, such as the Community vehicle camping areas shall be designed separately Development Act of 1974. State and national from tent camping areas. Such facilities shall be programs to assist low- and moderate-income located well back from the water's edge and housing, such as the bills (pending in the State shoreline pedestrian access provided. Legislature) to provide increased mortgage funds, shall be encouraged and expanded. 126. Increase Coastal Access for Low- and . Regulate Condominium Conversions. Condo- Moderate-Income Persons. Housing for persons minium conversions in areas which provide of low and moderate income shall be adequately significant rental opportunities for low- and provided to increase access for all people to the moderate-income persons, the elderly, and coast. New developments that provide some oea-icm rsn t ldly d coast. New developments that provide some families with children (as determined by the percentage of moderately priced units shall be 1970 census fi gures) shall beapprovedonlyif given priority over exclusively expensive facilities (1) proposed units are or wll be brought into to theexten possble, s proided elow:(1) proposed units are or will be brought into to the extent possible, as provided below: substantial conformance with current code substantial conformance with current code a. Do Not Decrease Low-and Moderate-Income standards; (2) other rental units are available Housing Opportunities. An important goal shall in the immediate coastal area at similar rental be to protect and, where necessary, rehabilitate rates (e.g., the rental vacancy rate in the coastal existing low- and moderate-income housing in area of the local jurisdiction has remained above coastal neighborhoods. To the extent that public three per cent for the preceding six-month time or other funds are available to build low- and period); (3) first option to purchase is provided moderate-income housing, new replacement to present tenants; and (4) 90 days notice of housing shall be required as a condition of conversion is provided to present tenants. ACCESS THROUGH MULTIPLE USE OF COASTAL LANDS Policies and 162) or shall be approved by the coastal agency as consistent with the Coastal Plan. 127. Retain Surplus Lands in Public Ownership. If publicly owned land and water areas are declared 128. Encourage Institutional Development That surplus, they shall be retained in public ownership Provides Public Access to the Coast. Institutions for public use except where such use would be that have the potential for encouraging public use inappropriate. Any leasing or development of and preserving coastal resources (e.g., marine such areas shall be in accordance with an approved laboratories, libraries, museums, city halls, and subregional or local coastal plan (see Policies 161 colleges) shall have priority for location in the PUBLIC ACCESS TO THE COAST � 157 oceanfront area over residential and other uses that would exclude public access (except for agri- cultural and coastal-dependent developments). Approval of such institutional developments shall depend on (1) the amount of public access gene- rated (e.g., public spaces, not private offices, on the ocean side of a building); (2) the degree - to which the proposed development takes ad- ; vantage of a coastal location by providing coastal amenities; (3) the way it combines public use with the protection of natural resources; and (4) its visual impact and the relationship to . ';- surrounding uses. Em 129. Maximize Public Use of Federal Lands. Maximum public use of Federal lands, consistent with national security, public safety, and resource protection, shall be encouraged. Specifically, the Federal government shall be encouraged to open suitable areas of military land for public recreation (as has been done for parts of the Golden Gate National Recreation Area and at San Onofreon Camp Pendleton in San Diego County). 130. Include Multiple Uses in Major Facilities. Each application for a major coastal energy or public service facility shall evaluate the potential for multiple, public-oriented uses of the site pro- posed, and shall incorporate such uses to the extent feasible and consistent with security, public safety, and resource protection. * . S~ ;vl~~~~~~~~~~~Malibu RECREATION l Recreational Pressure Will Increase with Further Develop- Findings ment. Large-scale urban development in the coastal zone that does not include adequate internal open space or is Coast Provides Variety of Recreational Opportunities. The not balanced with provision of public recreational areas away California coast provides an almost endless variety of from the coastline increases congestion and limits access recreational opportunities for people to play, to be refreshed, to coastal recreational resources for all Californians as the and to be inspired: wide sandy beaches for cooling off from local residents use the remaining coastline for all their the heat of the city; rocky headlands for exploring; high recreational needs. At the same time, the rapid development bluffs for watching the ever-changing ocean; waters for of large open spaces inland from the immediate shoreline swimming, boating, surfing, and fishing; and tidepools, destroys the scenic open space qualitiesoftheseareasand sea caves, and coastal wetlands for nature study. In short, precludes use of these upland areas for recreation (picnic the coast is a major provider of recreation important to grounds, golf courses, recreational vehicle campgrounds), the quality of life in California. transportation (parking lots, roads, bus stations), and multi- use commercial services (restaurants, hotels, amusements) Shortage of Recreational Facilities Persists. The coast is that could be linked to the shoreline by trails, shuttle buses, heavily used for recreation because 85 per cent of California's or trams. population lives within 30 miles of the ocean and because the coast provides many year-round recreational opportunities Coast Subjected to Conflicting Recreational Use Demands. not found at inland areas of California and other states. The coast makes significant contributions in satisfying the Many public and commercial recreational facilities exist along recreational demands of the State's 20 million inhabitants. the coastline, but a shortage of facilities persists for almost However, to meet the desires of an ever-increasing population, every popular recreational activity. The exact demand for this irreplaceable natural resource is being subjected to specific types of recreational facilities is difficult to project, increasing and sometimes conflicting demands for recreational but there will probably be a continued high demand for use. When there is a demand for recreational activities that traditionally popular coastal activities such as fishing, are not compatible with each other, the result can be an sightseeing, beach use, skin diving, boating, camping, intensive activity (e.g., dunebuggying) taking over the use hiking, bicycling, and general day use. of the area from more passive activities (e.g., sunbathing, PUBLIC RECREATIONAL FACILITIES ON THE COAST (ILLUSTRATIVE AND APPROXIMATE)a North North Central South South San Diego Coast Central Coast Central Coast Coast Boat Access Sitesb 1,203 3,308 1,188 1,023 19,922 6,378 Picnic Tablesc 454 399 1,587 1,915 1,231 933 Developed Camping Sites Auto Accessd 679 78 414 1,465 272 397 Walk Ine 6 48 0 25 0 0 Miles of Trailf 131 139 216 40 16 11 a Facilities available at shoreline and up to 5 miles inland. b Public and private berthings, moorings, or parking spots associated with launching ramps; data from Department of Parks and Recreation, 1969. c Parks and Recreation, 1969. d Tent and trailer sites at Federal and State areas; data from parks and Recreation, 1971, and National Park Service and Bureau of Land Management, 1973. e National Park Service, 1973. f Foot and horse trails shown on Parks and Recreation Inventory, 1969, plus additions at Federal areas since 1969. RECREATION � 159 Laguna Beach beachcombing). Conflicting demand for recreational facilities the continuation of existing low-intensity uses. However, can also result in the alteration of the coastal environment recently enacted legislation (AB 4107, passed in 1974) re- for one activity (e.g., filling shallow waters for a park) at quires that the effect of governmental development restric- the expense of another activity (e.g., preserving the water tions must be considered in the assessment of land values. area for boating). Moreover, the construction of roads and parking lots along the immediate shoreline uses up potential recreational areas. Often these support facilities could be Beach Maintenance Costs Need Reevaluation. When local located back from the shoreline area. communities are responsible for maintaining beaches used by the general public, the cost of maintenance may be inequi- tably borne by the local taxpayers if public costs exceed Coastal Recreation and Tourism Benefits State Economy. the "return" to the local economy. Although there are no absolute data available that quantify the economic benefits of recreation and tourism along the coastline, they contribute, according to the California De- partment of Commerce, 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 Commerce (A Study Policy 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 131. Basic Policy: Increase Coastal Recreation the world. Compatible with Resource Protection. Increased Many Potential Coastal Recreational Areas Have Been Lost. opportunities for coastal recreation shall be Potential recreational areas for active use by the general provided, consistent with protection of natural public and scenic open spaces (such as agriculture, forestry, resources, by (1) buying some additional ocean- and grazing lands) that enhance the recreational quality of front property for public beaches and parks; the coast have been lost because the assessment of land for (2) giving high priority to private development property taxation purposes has often been based on the land's speculative value (e.g., for residential or commercial development) rather than its present use value (e.g., for commercial-recreational facilities on privately agriculture). High property taxes can economically preclude owned property in appropriate areas; (3) reserving 160 * PART II: FINDINGS AND POLICIES some oceanfront areas for swimming, boating, in new developments near the coast, to insure that diving, and other water-dependent recreation; they do not exert undue pressure on publicly (4) using areas upland from the oceanfront for owned beaches and parks; and (6) managing parking, restaurants and snack bars, and other coastal beaches, parks, reserves, and other such recreational support, thus freeing the oceanfront areas to protect them from overuse and to offer itself for maximum recreational use; (5) requiring a wide variety of forms of recreation - e.g., adequate open space and recreational amenities swimming, hiking, nature study, etc. RECREATION AND THE COAST Policies (but not over agriculture or coastal-dependent industry). Private residential, general industrial, 132. Consider Recreational Potential Before or general commercial developments shall be Allowing Other Uses of Oceanfront Land. Upon permitted in oceanfront locations only if com- application for a change in use of an oceanfront mercial recreation would be inappropriate (due property, a prompt evaluation shall be made as to location, surrounding land use, accessibility, to the property's potential for recreational use etc.) or is already adequately provided to meet before other uses are allowed. Generally, however, present and foreseeable demand in the area. advance determination shall be made on an area- (See also Policy 125 regarding equality of access wide basis as part of local or subregional planning to such facilities.) and reevaluated as part of subsequent plan re- Bardwalat ieren'sVllae, views and amendments. Especially critical are I those areas recommended for public acquisition by any Federal agency, by the State Department of Parks and Recreation in the California Coastline Preservation and Recreation Plan and in the 1974 f State Park Bond Act program, in city, county, and regional plans, and in the Coastal Plan, and. aids any additional areas such as coastal Federal- 1 surplus lands found to be of high recreational value. In potential recreation areas, private devel- opment that complies with all other Coastal Plan - policies may be delayed only in accordance with the provisions of Policy 157, and shall be allowed to proceed immediately if it is determined that that present and foreseeable future demand for A the public recreational activities that would be accommodated on the property is already ' adequately provided for in the area. (See also Public Acquisition of Coastal Land chapter.) 133. Give Priority to Commercial Recreation Over Private Development. The use of private lands for visitor-serving commercial recreation (e.g., resorts, restaurants, hotels, and campgrounds) and their support facilities, designed to enhance public opportunities for coastal recreation, shall have priority over private residential, general industrial, or general commercial development RECREA TION � 161 134. Reserve Shoreline Areas for Recreation Activities That Need Access to Water. To achieve a wide range of recreational opportunities, and to avoid conflicts among incompatible activities, the use of coastal recreational areas shall be determined according to the following priorities: a. Coastal-Dependent Recreation. Coastal areas suited for surfing, SCUBA diving, and other specialized recreational activities that cannot readily be provided at inland water areas shall be protected for these uses. b. Water-Dependent Recreation. Where they would not conflict with coastal-dependent activ- ities, swimming, fishing, waterfowl hunting, boating, and other forms of recreation depen- dent on the water shall have priority over recreational activities that do not require I direct access to the water. c. Other Recreation. Ball diamonds, golf courses, Santa Monica off-road vehicle areas, and facilities for other recreational activities that do not require coastal sites shall be permitted on the coast if they ment that otherwise would require substantial would not conflict with, displace, or prevent shoreline alterations, and (2) for commercial meeting the present or foreseeable demand for recreation facilities that would otherwise coastal-dependent and water-dependent uses. infringe upon or displace public recreational, educational, or scientific areas on the shoreline. 135. Restrict Substantial Alterations Along the b. Priority for Public Recreation in Upland Areas. Coast for Recreation. Recreational uses of the Acquisition and development of such upland coast that do not require extensive alteration of areas appropriate for public recreation shall the natural environment (e.g., tent campgrounds, be given high priority. walk-in campgrounds, picnic areas, hiking trails) shall have priority in intertidal and oceanfront areas over recreational uses that would result in 137. Provide a Variety of Recreational Facilities substantial alteration of the natural environment near Metropolitan Areas. A wide variety of faci I- (e.g., hotels, vehicle campgrounds, parking lots). ities to accommodate heavy recreational use and Substantial alteration of land and water areas intensive activities along the coast shall be pro- along the coast (by dredging, filling, paving, vided in areas convenient to population centers. grading, etc.) to accommodate a specific recrea- The few remaining large open spaces in southern tional use shall be permitted if (1) the proposed California (e.g., Camp Pendleton, Santa Monica use is clearly water- or coastal-dependent (e.g., Mountains, Channel Islands) shall be reserved boating, swimming, fishing); (2) there is no less for predominantly low-intensity recreational use environmentally damaging alternative to accom- by clustering the parking lots, campgrounds, picnic modating the use; and (3) the alteration is in grounds, and other facilities necessary to accom- accord with Coastal Plan policies. modate concentrations of people in limited areas where it can be determined that the sites have the capacity to withstand more intensive use. 136. Reserve Upland Areas for Recreational (See section on Controlling Recreation to Protect Support. Wherever possible, recreational activ- Resources.) ities and support facilities that do not have to be in the oceanfront area shall be upland, connected to the shoreline by trails, bicycle paths, shuttle 138. Expand the Statewide System for Overnight buses, or trams. Reservations. The centralized statewide reserva- a. Upland Location for Developments That Would tion system for overnight recreational facilities, Degrade Shoreline. In subregional and local used by the California Department of Parks and coastal planning upland support areas shall be Recreation, shall eventually be expanded to reserved (1) for intensive recreational develop- include all major public and private facilities. 162 * PART II: FINDINGS AND POLICIES 139. Ensure Equity in Cost of Maintaining Coastal shall assume greater responsibility for paying Recreational Facilities. Because in extreme some of these costs in communities where it can situations local taxpayers can inadvertently be be established that this inequity exists. It is penalized when a municipality is responsible for recommended that legislation such as AB 3611 maintaining coastal recreational facilities (e.g., (introduced and passed in the 1973-74 legislative beaches, trails, parks, services for commercial session but not signed into law), which would have recreational facilities) used heavily by inland provided funds to help rectify this inequity as it residents, county, State, or Federal governments applies to beach maintenance, be reintroduced. RECREATION AND DEVELOPMENT Policies for the purchase and improvement of public recreational areas adequate to (1) fully meet 140. Balance Development with Open Space and the standards of paragraph (a) above in newly Recreation Facilities. To avoid undue local developing areas and (2) substantially reduce pressure on coastal recreational facilities because any deficiencies in existing areas. of insufficient alternative recreational facilities c. Phase Intensified Development with Programs for nearby residents, the amount of new develop- to Reduce Recreation Deficiencies. New devel- ment in the nearcoast area shall be correlated with opment proposed in already developed areas precise open space acquisition and recreational with existing recreational and open space use plans prepared and adopted by local agencies, deficiencies shall be permitted only if consistent and with provision of on-site recreational facilities with an approved program that includes imple- determined to be sufficient to serve the new mentation procedures and timetables to sub- development. Specifically: stantially reduce these deficiencies. a. Open Space, Recreation Requirements. Open 141. Require Sufficient On-Site Recreation in New space and recreational requirements shall be Development. To help alleviate pressures on based on standards adopted by the National public beaches and parks, and to ensure that those Recreation and Parks Association unless other areas have room to serve people from inland as standards are determined to be more appro- well as coastal areas, new residential developments priate for specific coastal areas by the near the coast shall be required to have adequate coastal agency. open space and on-site recreational provisions. b. Cities and Counties Should Assure Adequate In addition, public amenities such as pedestrian Public Open Space. As part of local government walkways, bicycle paths, equestrian trails, open coastal plans (see Part III), acquisition tech- space, and parking areas shall be provided in new niques and a timetable shall be established developments large enough to accommodate them. CONTROLLING RECREATION TO PROTECT RESOURCES Findings of all living organisms by people collecting specimens. Some areas, such as marshes and dunes, may be damaged by excessive foot traffic. Islets and offshore rocks that provide Coastal Areas May Be Misused. Excessive recreational use protected sanctuary for seabirds and sea lions are disturbed can damage the fragile resources of the marine and land by human intrusion. In some areas, selective hunting and environment. Many tidepools have been virtually stripped fishing of certain species can deplete these resources. With RECREATION * 163 adequate protection, public education, and in some cases, of marshes, traffic on dunes and bluffs, etc. The restoration, most disturbed areas can recover. controls shall seek to ensure continued productivity Carrying Capacity Should Not Be Exceeded. To protect the and recreational enjoyment of those resources and environment of the coast as well as the quality of recreational to protect public safety. Where information is experiences, recreational use should be controlled according available to determine the environmental carrying to the carrying capacity of each area. In urban areas where capacity of a coastal resource, the level of use of there is road access to much of the coast, it is likely that coastal roads, parking areas, and other support facilities recreational facilities will be intensively used by large shall be kept within this capacity. Where feasible, numbers of people so that fragile resources can be adequately protected only by on-site measures such as limiting parking other appropriate natural areas shall be made or erecting fences. In rural areas where access to the coast available to reduce overuse of existing areas. It is limited to that provided by Route 1, the extent of recreational is recommended that enforcement of regulations use can be limited by the capacity of the road system, which regarding the carrying capacity of an area be must also serve additional commercial, industrial, and strengthened and consolidated and that State residential development along it. and Federal funding be provided to assist local Recreational Carrying Capacity of Coastal Areas Needs or State agency programs to carry out this policy. Investigation. Recreational carrying capacity, defined as "the character of use that can be supported over a specified 143. Restrict Off-Road Recreational Vehicles along time by an area developed at a certain level without causing the Coast Off-road recreational vehicle (ORV) excessive damage to either the physical environment or experience of the visitor," depends on the interrelationship use in the intertidal and oceanfront areasshall of three factors: be permitted only in (a) that portion of Pismo � The environmental or physical capacity, which is the amount Beach in San Luis Obispo County where such use and character of use beyond which the natural resource will be unacceptably altered; * The social, psychological, or visitor capacity, which is a subjective level beyond which individuals feel the recrea-- . tional experience is not fully satisfactory because of over- crowding, noise, loss of privacy, etc.; and _ -- * The facility capacity, which is the maximum level of use the manmade facilities (parking lots, roads, trails, campsites) can accommodate. Facility capacity is not affected by natural constraints and is determined entirely by manage- " ment decisions. 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 iS presently permitted and controlled by the do not exist at inland locations. A model similar to the California Department of Parks and Recreation, State Department of Parks and Recreation's Allowable Use Intensity Program could be developed for other carrying and (b) such other coastal areas where ORV use capacity assessments. Overuse, environmental degradation, iS presently permitted and where all of the follow- and native flora and fauna declines have occurred in some ing standards are met: (1) the ORV use shall not coastal areas due to the lack of access control suitable adversely affect coastal plant or animal life, water to the circumstances. quality, air quality, or other natural resources, Recreational Capacity of Coastal Areas Varies. Although and shall not conflict with other recreational uses; each coastal area must be analyzed separately to determine (2) the ORV use shall not result in noise levels its optimum recreational use level, the recreational capacities that exceed 65 dBA at a distance of 50 feet from of tidepools, sea caves, and coastal wetlands are most the noise source; (3) adequate support facilities often determined by theirfragile ecological conditions while shall be provided (e.g., rest rooms, holding tank the recreational capacities of sandy beaches, bluffs, headlands, bays, and nearshore waters are more often determined by dump stations, first aid facilities); and (4) a private access and the quality of the recreational experience than operator or public agency shall assume responsi- by the environmental qualities of the sites. bility for the management of the area to ensure that the ORV use is limited to the area designated for such use, and that the area is closed to ORV use if the above standards are not continually met. Policies 144. Establish Long-Range Program to Protect 142. Limit Access and Recreational Use Where Recreational Resources. A long-range program to Necessary. Use of the coast for recreation and protect coastal recreational resources from overuse education shall be controlled where necessary to shall be established jointly by the coastal agency prevent significant damage to natural resources by and other appropriate public agencies. This pro- tidepool collecting, underwater fishing, trampling gram shall coordinate the planning of coastal 164 * PART II: FINDINGS AND POLICIES access with the desired recreational use intensity (6) the area's value as an isolated and relatively along the coast, and shall ensure that public low-intensity recreational area; (7) the area's recreation areas are adequately managed and ability to accommodate intensive recreational maintained to achieve this end. This program use; and (8) the need for a variety of recreation should include effective controls of recreational facilities. use at peak weekend or seasonal times and b. Distribution of Use Zones. Except to the extent incentives for use at off-peak times. that natural features determine zone desig- a. Criteria for Coastal Use Zones. The foundation nations, the three types of coastal use-intensity zones shall be relatively evenly distributed of this program shall be the designation of three zones of use-intensity: Heavy Use Zone, Moderate Use Zone, and Light Use Zone. Cri- c. Improving Analysis Techniques for Use Levels. teria for the designations shall include, but Research shall be undertaken on ways of not be limited to, the following: (1) the area's improving analysis techniques for determining environmental uniqueness or fragility; (2) the recreational site carrying capacity; once devel- present and potential use; (3) the coastal oped, these techniques shall be used to evaluate recreation demand in the region; (4) the area's all coastal recreational sites, and management proximity to major population centers; (5) the action shall be taken to adjust recreational use availability of major transportation corridors; levels accordingly. COASTAL TRAILS SYSTEM Findings with the protection of agriculture, fragile natural resources, coastal-dependent developments,and Increase Accessibility to the Coastal Zone Through Coastal land-owners' property rights, according to the Trails System. A system of coastal trails (including water- planning concepts, design standards, andsafety ways valuable for rafting, canoeing, and kayaking) and criteria developed by the California Department overnight shelters for hikers, bicyclists, and equestrians of Parks and Recreation. Ideally, the trails system would make more of the coast accessible to more people, would link population centers with recreation facilities, and should be continuous and located near the shore- would allow people to enjoy the scenic qualities of the line, but it may be necessary for some trail seg- coastline. Coastal trails being planned and developed by public agencies will be coordinated and linked into a State Near Point Arena, Mendocino County coastal trails system as part of the California Recreational Trails and Hostel Plan prepared by the State Department of Parks and Recreation, which will coordinate the overall trails system with local and regional agencies and organizations. Increase Bicycle Riding Facilities in the Coastal Zone. Bicycle riding is inexpensive, does not harm the physical environment, i and provides both transportation and recreation. Although i bicycles can be used on existing roadways, mixed bicycle-auto traffic is often dangerous to riders and can adversely affect . - traffic flow. Increased bicycle use in the coastal zone can 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. (See also the Transportation chapter.) Policy 145. Establish a Coastal Trails System. A hiking, bicycle, ana equestrian trails system shall be i established along or near the coast, consistent RECREATION * 165 ments to be away from the oceanfront areato as bicycle paths shall be separated from roads meet the objective of a continuous system. To where possible, but bicyclists shall not there- this end: upon be barred from the road. Overpasses, underpasses, or other safe means of bike a. Public Responsibility for Trail Development. crossing shall be provided where necessary. The Department of Parks and Recreation shall Where bicycle trails must share roadways be adequately funded to coordinate the imple- with autos, there shall be a maintained bike mentation, maintenance, and policing of the lane on each shoulder of adequate paved width, State coastal trails system, and shall be and unsafe storm drain grates shall be replaced; empowered to use eminent domain to acquire bikes shall have exclusive use of this lane except the trail rights-of-way where all other means when motor vehicles are pulling off the road or of securing access fail. Individual trail segments making turns. Special trails, such as Braille trails shall be connected over State coastal trail routes and paved paths for wheelchairs, shall be de- to be designated by the State Department of veloped to provide access to various coastal Parks and Recreation after consultation with habitats for physically handicapped persons. other State agencies, in accordance with State law. Public agencies shall develop coastal d. Provide Campgrounds and Other Facilities. trail segments through areas along the coast Campgrounds with water, sanitary facilities, within their ownership or jurisdiction. and other basic amenities shall be provided at appropriate intervals along the coastal trails b. Best Locations for Coastal Trails. Priority shall system, and camping shall be restricted to these be given to establishing trails systems inand near designated areas. A well-planned hostel system urban areas, with connecting links established shall be included in the trails system. Coin- as demand and resources dictate. Where appro- operated lockers, bicycle racks, or other safe priate, the coastal trails system shall use exist- means for storing bicycles shall be provided ing public rights-of-way and features such as and maintained at designated areas along the ridgetops, wide beaches, abandoned railway trails system. beds, and unused roadways, and shall connect existing inland and beach access trails, parks, e. Secure Rights-of-Way. Where appropriate, and historic sites. To protect agricultural lands, trail rights-of-way shall be secured in accord- 0 trails shall not interfere with agriculture. Trails ance with the provisions of Policy 123 as con- shall generally be located along existing public ditions for proposed development. roads or other public rights-of-way and sepa- rated from the agricultural lands by a fence f. Management of Trails. Designated trail routes where appropriate; adjacent agricultural land- shall be opened to public use only afterthe owners shall be permitted to post no-trespassing public agency that owns or operates the trail signs. segment accepts full responsibility for the management, maintenance, supervision, and c. Design of Coastal Trails. The trails system shall liability for the trail and trail activities. The be designed to accommodate only hikers, bicy- trails segment may be closed or public use clists, and equestrians. Trails used primarily limited under the provisions of Policy 124. MARINAS Findings by extensive alteration of the marine environment, especially by dredging and filling coastal wetlands. In boat maintenance areas where sanding and scraping of paints takes place, Demand for Coastal Boating Facilities Is High. Boating is harmful pollutants may drain into coastal waters. (See Coastal important along the coast, both for recreation and for fishing. Water Quality section.) And boating facilities can limit access The demand for boating facilities is so great that the berths to the coast for the general public. planned for construction over the next 10 years would, if built, barely cover the existing demand. Increased Boating Can Be Accommodated Without Adverse Effects. It appears possible to accommodate increased Boating Facilities Can Be Environmentally Damaging. boating activity without serious environmental damage Boating facilities can cause serious environmental damage by encouraging more thorough use of existing boats and 166 � PART II: FINDINGS AND POLICIES -B' -A i :.: and for maintenance dredging in conformance ..~, - ~: :f ~ with Policy 16. However, dredging or filling coastal wetlands to accommodate new or expanded recreational boating facilities shall be ! prohibited. Each proposed alteration of the coast- line for a recreational boating facility shall require a careful analysis,with the final determination of whether to permit the facility made on the basis of the long-term environmental effects of the project. 147. Maximize Use of Boating Facilities. The present and future need for new coastal boating opportunities shall be met in ways that would not '~~ .~' ,,~ ,have significant adverse effect on the environ- mental quality of the coast. Such methods may include (1) developing dry storage areas and - i""'1' ~ stacking devices with nearby public launching in new and existing harbors; (2) increasing the Shelter Island (manmade), San Diego number of public launching facilities; (3) providing additional berthing space in existing harbors; boating facilities, by developing more dry storage and (4) limiting nearby non-water-dependent land launching facilities, and by building any new marinas in uses that congest access corridors and overtax areas less fragile than coastal wetlands. boating support facilities; and (5) maximizing the use of each boat by encouraging the multiple ownership of boats, by giving priority for slip rental Policies in existing small-craft facilities to boats available for rent to experienced boaters (i.e., those indi- 146. Accommodate New Recreational Boating viduals who have successfully completed U.S. Facilities Without Degrading Coastal Resources. Coast Guard-recognized boat operation courses), Increased use of coastal waters for recreational and by giving priority for the use of public funds boating shall be provided by maximizing the use for the expansion or development of small craft of existing boating facilities, providing harbors of harbors to facilities that have devised acceptable refuge at appropriate locations along the coastline, systems for encouraging more rental and multiple and developing new facilities in a manner that ownership of boats. does not degrade coastal resources. New recrea- tional boating facilities may be permitted where they would not have significant adverse effects, 148. Provide Public Access to Marinas. The in natural harbors (e.g., sheltered areas in the maximum recreational value of existing and future open waters of bays, estuaries, and coves) or in marinas shall be achieved by providing the general new protected water areas (e.g., areas created public with greater access to in-water marina by the dredging of existing low-level dry lands facilities (e.g., piers, floats), consistent with or by the placement of wave barriers that are in necessary security and public safety precautions. conformance with other Coastal Plan policies). (Appropriate agencies and leaseholders shall be Dredging in coastal waters for recreational boating provided with the opportunity to participate in facilities shall be limited to the minimum necessary resolving safety and security problems.) Designs for new entrance channels to reach basins dredged for both new marinas and expansion projects out of existing dry land areas, for deepening water shall include in-water facilities designated for use a few feet in existing and proposed berthing areas, by the general public. EDUCATIONAL AND SCIENTIFIC USE Findings Many Coastal Resource Areas Need Special Protection. Many of the resource areas identified in the Coastal Plan can best be protected by public ownership. Some natural Resource Areas Offer Opportunity for Study as Well as and historical areas are already owned by the public - for Recreation. The coastal land environment is composed of example, in military lands, wildlife refuges, and parks - complex, interrelated ecosystems that are as yet not fully but many unique and valuable areas of the coast are not. understood. Their study can be a source of great enjoyment Without special protection, these irreplaceable, fragile, as well as benefit to man. In the marine environment, rocky and outstanding examples of the coastal environment and and sandy intertidal areas, islands, islets, offshore rocks, its historic features may be lost. kelp beds, reefs, and wetlands support rich and often unique marine life. Many coastal sites, such as the Channel Islands, A Coastal Reserve System Can Protect Resources While have been designated by local, State, or Federal agencies as Providing Public Recreation and Education. One of the having special biological or natural resource values. Both problems involved in effective management of the fragile these areas and the coast's many historical and archaeological resources of the coastal zone is the lack of public awareness resource areas offer important recreational, educational, and concerning the coastal environment. Public awareness can be scientific opportunities. increased through education and limited recreation programs Klamath River mouth, Del Norte County -.. .~~~~i; 168 * PART II: FINDINGS AND POLICIES carried out in coastal reserves. A comprehensive coastal turally valuable structures may be destroyed because uf reserve system can also provide sites for research on envi- insufficient protective measures but could be appropriately ronmental carrying capacities and other valuable informa- protected if maintained in use under private ownership. tion for use in the management of coastal recreational areas. Even those historic areas that are designated or under active consideration as National Historic and Natural Landmarks Archaeological Resources. Thearchaeological sites resulting (being sites of national significance) are, due to lack of from the thousands of years of human settlement along the protective State statutes, now subject to adverse development coast are among the most fragile nonrenewable resources at the pleasure of the owner. The same problem is apparent in the coastal zone. Prehistoric California Indians kept no at sites of State and local significance. For instance, although chronicles of their rich and varied cultures that spanned the San Francisco Bay Discovery Site above Pacifica is now 100 centuries or more. Knowledge of their ancient heritage much more likely to receive sensitive treatment since its can be gained only from the detailed study of archaeological designation as a National Historic Landmark, Santa Cruz's remains, the only source of information for more than McHugh-Bianchi building was recently demolished even 95 per cent of California's cultural history. Also valuable though it too was listed on the National Register. 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 Policy 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 149. Encourage Education on the Coastal Environ- many historical buildings and sites along the coast. Many ment. Appropriate courses of natural resource other buildings may have historical value as significant study focusing, at least in part, on the environ- examples of architectural styles. ment of the California coast as a valuable resource to be maintained, preserved, and enhanced shall Protection for Archaeological Resources. Historical, paleonto- logical, and archaeological sitesareprotectedtosomeextent be encouraged in the public school system at by existing laws. But prehistoric sites are often destroyed elementary and secondary levels. County Offices because their precise locations are not always known and of Education shall be consulted to recommend because construction may be carried out without concern development of educational components when for their protection. On the other hand, public knowledge recreational areas are being planned. Signs and of archaeological sites often leads to their destruction by vandals when they are not properly protected. interpretive programs shall be provided in access- ible natural areas to increase public awareness Protection for Historical Resources. Historic and architec- and encourage proper use of resources. COASTAL RESERVE SYSTEM Policy with appropriate sites selected from the follow- ing lists having the highest priority: areas re- commended in the California Coastline Preser- 150. Establish a Coastal Reserve System. A coastal vation and Recreation Plan (California Depart- reserve system shall be established to coordinate ment of Parks and Recreation), in Appendix the management of all coastal reserves to (1) pro- IX,-Education and Research,-of the Com- tect valuable natural, historic, and archaeological prehensive Ocean Area Plan, and by the State resources of the coast and (2) promote recreational Department of Fish and Game; all islets, off- and educational use of the coastal environment shore rocks, and other special marine features consistent with resource protection. Specifically: (such as submarine canyons and banks, kelp a. Areas to Be Included. The system shall include ,beds, etc.) as identified in the Coastal Plan or all coastal reserves, preserves, and reservations by other State and Federal agencies; historical currently operated by public agencies, educa- sites identified by the Department of Parks tional institutions, and private organizations and Recreation in the California History Plan for the purpose of protecting coastal resources and the second-phase inventory of Cultural for scientific, educational, or recreational use. Resources, or in the Coastal Plan; and other Additional sites shall be added to the system, ecologically significant areas identified in the based on the criteria in paragraph (b) below, Coastal Plan. EDUCATIONAL AND SCIENTIFIC USE * 169 b. Criteria for Additional Sites. Additional desig- maintaining reserves, explore means for finan- nations of coastal reserves shall be made in cing the acquisition program, and monitor the accordance with the evaluation called for in management of the reserves. paragraph (d) below and based on whether the e. Manage Reserves for Resource Protection. All areas are or include (1) restricted natural com- designated existing and proposed reserve areas munities - ecological areas that are scarce, shall be managed for optimum natural resource involving only limited area; (2) rare and endan- and habitat protection restoration, and en- gered wildlife species habitat; (3) rare and en- dangered plant species range; (4) specialized wildlife habitat; (5) outstanding representative natural communities; (6) sites with outstanding educational value; (7) fragile or environmentally sensitive resources; and (8) wilderness or pri- mitive areas. (Areas meeting more than one criterion may be especially important.) Sites shall be large or numerous enough, and appro- priately located, in an attempt to ensure that vegetation and wildlife will not only survive but thrive, that the genetic health and diversity . ''Pals . of plant and animal species will be sustained, and that the catastrophic effects of a major fire or flood would be minimized. hancement. Every effort shall be made to c. Provide Funds for Acquisition and Manage- provide public access for educational and re- ment. Adequate funds shall be appropriated to creational purposes and resource utilization (1) inventory natural habitat areas and establish where complementary with resource protection. the acreage needed to support the resident However, resource utilization (e.g., fishing, population of plants and animals so that ad- hunting, and the harvesting of renewable ditional reserve areas can be appropriately resources), public access, and recreational uses designated; and (2) acquire and operate the shall be restricted and controlled as necessary designated sites. to protect the natural or historical resources. d. Establish a Coordinating Committee to Review Information and interpretation programs shall Acquisition and Management Programs. A be initiated or expanded where appropriate, coastal reserve coordinating committee, with with supervised or self-conducted tours, public membership that includes representatives of education and school instruction, and signs to public and private organizations and agencies encourage proper use and enjoyment of marine involved in acquiring and managing reserves, and coastal land natural resources. County shall be formed to assist in the establishment Off-ices of Education shall be consulted to and management of the reserve system. This recommend development of educational com- committee shall review the sites recommended ponents in the planning of reserve areas. Unique for the coastal reserve system, suggest areas and fragile biological communities shall be to be added or deleted based on its own studies, protected as scientific and educational reserves, develop plans and strategies for acquiring and with limited public access. HISTORICAL AND PREHISTORICAL RESOURCES Policy sites shall be permanently preserved through public acquisition or other means and shall be integrated with recreational and other cultural 151. Protect Historical and Prehistorical Resources. facilities where appropriate. To this end: Representative and unique archaeological, paleon- a. Make Systematic Survey of Coast. The State tological, and historical features shall be identified Historic Preservation Officer (in conjunction and protected from destruction and abuse. These with qualified professionals) shall draw up a 170 * PART II: FINDINGS AND POLICIES program for the systematic archaeological and d. Strengthen Laws Protecting Prehistorical paleontological survey of the coastal zone. The Resources. It is recommended that existing program shall include a system of ranking site laws pertaining to protection of archaeological importance and level of protection necessary and paleontological resources be amended to and shall give highest priority to surveying the ensure effective preservation, protection, and following areas: (1) those areas where sub- management of significant resources and that stantial information has been recorded but still new legislation be enacted declaring significant require a systematic overview; (2) those areas archaeological and paleontological resources to of high "sensitivity" where suspected re- be in the public domain (i.e., the resources sources are endangered by proposed develop- themselves, not the land in which they are ment; (3) those sites most likely to yield signi- located). The Legislature, or an appropriate ficant new information; and (4) those unsur- State agency designated by the Legislature, veyed areas located within areas zoned and is urged to (1) formulate criteria for deter- designated for near-future development. mining which resources are "significant" and b. In Interim, Require Professional Survey in therefore within the scope of the law; and Areas of Probable Value. Until the State (2) develop a program for the protection and, Historic Preservation Officer's survey is com- where appropriate, professional excavation pleted, parcels proposed for development in and study of the resources. an area identified by the State Historic Pre- e. Provide Tax Relief for Owners of Historic Places. servation Officer or other appropriate public Pursuant to Article XXVIII of the State Con- official as likely to have significant archaeo- stitution, it is recommended that legislation be logical or paleontological value shall be syste- enacted whereby cities and counties can contract matically surveyed by a qualified professional with owners to preserve historic buildings and at the applicant's expense. features in return for reduced tax assessments. c. After Survey, Require Protective Measures at Sites of local, State, and national historical Resource Sites. Where development would importance shall be nominated to the National adversely affect identified archaeological or Register, and if designated for public acquisition paleontological resources, adequate mitigation shall receive interim property tax relief and measures (e.g., preserving the resources intact development protection. (Historic areas of high underground, fencing the resource area, or scenic value are covered by Policy 45; see also having the resources professionally excavated) Policy 150 regarding inclusion of appropriate shall be required. sites in a coastal reserve system.) RESTORATION OF COASTAL RESOURCES Findings Policies Incompatible and Adverse Coastal Developments Can Be 152. Restore Degraded Coastal Resources. Eliminated. Many parts of the coast have been degraded Degraded or misused coastal resources shall by past development, both public and private. Incompatible be restored or enhanced wherever feasible. or harmful, unwise coastal developments can generate air S ecificall and water pollution, degrade or reduce wetland areas and coastal agricultural lands, block important views of a. Restoration Measures Desired as Part of New or access to the coast, cause beach erosion, adversely affect marine life, and degrade coastal neighborhoods. Already degraded resources can be restored through several sible, restoration shall be included in new courses of action, including: developments. Developments that include the substantial restoration of significant coastal * Public purchase and restoration of natural areas andt the creation of public recreation areas; resources (e.g., restoration and replenishment �Consolidation of existing small lots into parcels compa- of wetlands and wildlife areas, removal of da- maging developments, improvement in public recreation) shall have priority over other devel- * Phasing out developments that are inconsistent with the Coastal Plan; opment wherever the option exists. � Encouragement of new development that is consistent b. Restore Visually Degraded Coastal Areas. with the Coastal Plan; and Coastal areas that have been degraded by - Rehabilitation and redevelopment. alterations of the natural landforms and vege- tation, by signs and billboards that block views Small Lot Coastal Development Can Impact Coastal Access and create visual clutter, and by development and Resources. In many areas, coastal lands have been out of character with the coastal environment subdivided into small lots and sold to many individuals. The piecemeal development of these lots can have a cu- mulative effect on coastal access and coastal resources quality. The coastal agency, working with local comparable to large subdivisions developed at one time. municipalities and citizens, shall prepare a long-range plan for the restoration of the Some Blighted Coastal Areas May Require Redevelopment. desired visual quality and character of de- Rehabilitation efforts can restore many blighted areas of the coast. If efforts to rehabilitate blighted areas are un- successful, the redevelopment of such areas can: criteria consistent with the policies of the Coastal Appearance and Design chapter. New � Generate revenue necessary for improved public services and amenities, development shall be compatible with the long-range restoration plan. If approved res- � Provide for assembling and consolidating subdivided lands for orderly development as an alternative to frag- toration plans determine that rehabilitation mented lot-by-lot development, efforts are not adequate to relieve visually . Enhance urban design and improve public access to blighted conditions in urban areas of the coastal the shoreline, zone, the redevelopment of such areas by local o Implement the adopted development goals of the Coastal governments, consistent with the policies of Plan and community plans, and the Coastal Plan, shall be encouraged through � Provide housing opportunities for a wide variety of the provision of State and Federal financial income groups. assistance programs. 172 s PART It: FINDINGS AND POLICIES 153. Require that Environmental Damage Be Off- resources, impede public access to the coast, set by Restoration. Where permissible develop- or despoil public views, and where there is no ment must of necessity degrade an important other reasonable use for the area, the lots shallI, is natural coastal resource (such as but not limited to the extent funds are available, be publicly to a unique habitat area, beach, or dune area), acquired to be left open. Where, however, the required mitigation measures may include the lots need only to be reduced in number or re- restoration or acquisition and dedication to the designed to eliminate the adverse effects, (1) an public of an area of equivalent resource value (pre- incentives program shall be offered to owners ferably in the same general area). Appropriate or investors to consolidate the lots, except that f inancial security shall be required to assure the lots remaining in common ownership might be completion of the necessary resource restoration required to be consolidated, or (2) the lots and or protection activity. (See also Policy 17 regarding any encumbrances on them shall be acquired by replacement of diked or filled estuarine or wetland the public and the lots resubdivided. Where lots areas.) are resubdivided, the original lot owners shall be given the first right to repurchase new lots. In those instances where public investment in 154. Resubdivide or Consolidate Certain Lots. roads and other facilities to serve existing lots Where the development of a subdivision or would be more costly than public purchase of group of existing small lots near the ocean would the land, public acquisition shall be considered adversely affect the preservation of coastal as a means of reducing the number of lots. __-_______ ~ ~ :~:.' i~ :i- WT~ .... . _ ~ .. PUBLIC ACQUISITION OF COASTAL LAND Findings Analyst, some acquisitions funded in 1966 still have not been completed. During this delay period, thedevelopment value of the land often increases greatly, and the owner can take Additional Shoreline and Beach Property Should Be Acquired. full advantage of the Legislature's commitment to purchase Public ownership on California's 1,072 miles of coastline is the land during negotiations on the selling price. Development estimated at 508 miles, or 47.4 per cent of the coast. But these or other changes in the land during this period may also figures alone are misleading. While almost one-third - diminish its value to the public. 164.1 miles - of the public ownership is managed by the Federal government, only 88.8 miles of Federal holdings are open to the public; the rest, which is within military reservations, remains off-limits to the general public. Accord- ing to the Army Corps of Engineers, about 290 miles of coast- Policies line consists of sandy swimming beaches - but only 38 per cent of this prime recreational area is open to the public. Additional Funds Are Needed to Buy Land for Coastal Re- 155. Priorities For Public Acquisition. Priorities creation. Projections indicate that the demand for coastal for public acquisition of coastal landandwater recreation will increase, as will the price of coastal land. areas shall be as follows: Many coastal sites are already proposed for public acqui- sition under existing programs, and some of these purchases * First priority: (1) lands best suited to serve are partially funded. But as recreational demand increases, the recreational needs of urban populations more coastal land will be needed. Public funds available to shall be acquired before land in outlying areas; buy recreational land are not adequate at this time, but have (2) lands of significant environmental impor- been reduced by the Federal Revenue Sharing Act of 1972, tance, such as habitat protection, shall have which permits local governments to allocate Federal grants priority over other less important land; (3) as in accordance with their own priorities; one result is that money formerly earmarked for park purchases may now be the highest priority, lands in either of the above sent in other ways. (See Part Ill, Acquisition and Restoration, categories proposed for development or use fordiscussionofpreliminaryrecommendationsforpublicac- incompatible with their basic resource or re- quisition of specific parcels of coastal property for recreation. creational value shall be acquired or protected before land experiencing little or no develop- Acquisition Authority of Existing State Agencies Is Limited. With the exception of the Department of General Services, ment pressure. no agency of State government may acquire less than fee- * Second priority: (1) open space along urban interest in land. No agency may lease land for longer than and surburban waterfront areas where visual five years, unless specifically authorized by the Legislature. On the average, a minimum of two years is required to and pedestrian access to the coastline is limited; complete State acquisitions after the funds have been appro- (2) small lots in scattered ownership in sub- priated by the Legislature. According to the Legislative divisions if development of them would impede NearSalt Point, SonomaCounty public access by using up remaining road capacity or would unavoidably despoil coastal views; (3) land for accessways at appropriate locations; (4) remaining areas of high recrea- ,% > ', tional value (see Policy 132); (5) areas proposed '"";i Hfor coastal reserves (see Policy 150); and (6) highly scenic areas (see Policy 45). NOT OPEN FOR PUBLIC USE Based on the foregoing criteria, highest priority .�A' . SM FOR INFORMATION CONTACT for public acquisition of coastal land and water )~~ ~~~~~~SNM . ..~T BS \ RCtTON~m cuPR7t~ as , SANAI.ROS, . areas shall be given to the list of areas proposed :~~~~~I~- _;i for acquisition in Part IV of the Coastal Plan. 174 * PART II: FINDINGS AND POLICIES 156. Use Appropriate Techniques for Expanding c. Allocate Environmental Protection Program Public Use of the Coast. Public use of the coast- Funds. It is recommended that funds from line shall be acquired through public purchase, the California Environmental Protection Pro- dedications from landowners as reasonablecon- gram Fund be allocated for coastal recreation ditions of appropriate development, purchase and reserves, such as interpretive facilities and leaseback, scenic and open space easements, and programs, archaeological surveys (see scenic restrictions, resource management con- Policy 151), or research on carrying capacity tracts, and incentive zoning. All means chosen (see Policy 144). to obtain public use of the coastline shall be equitable and recognize the rights of private d. Ensure Adequate Funding for Local Comple- property owners. Acquisition programs shall tion of Coastal Trails. It is recommended that proceed as rapidly as possible and should include a State grant program be established to ensure leaseback and life estate provisions as incentives that cities and counties will have adequate for placing privately held lands in public owner- funds to complete portions of the coastal trails ship and to prevent hardships to present owners. system in their jurisdictions. Legislation similar to AB 3297, which would have provided $3 157. Protect Potential Acquisition Areas. Until million from the General Fund for this purpose lands designated for public acquisition can be and was approved by the Legislature but not secured, they shall be protected from incompatible signed into law in the 1973-74 legislative use through public regulation, and, in accordance session, should be enacted. with Section 402.1 of the Revenue and Taxation Code, property taxes should reflect this limitation 159. Expand the Authority of Existing State on their use. If an area cannot be acquired within a Acquisition Agencies. It is recommended that reasonable period of time, usually not to exceed the State Department of Parks and Recreation three years from the time of designation for acqui- and the Department of Fish and Game should sition by a public agency, development that com- be authorized to (1) acquire options up to a plies with all other Coastal Plan policies shall be specified ceiling (e.g., $2,000) per option at the allowed to proceed. discretion of the agency before money is appro- 158. Increase Funds for Coastal Recreational priated by the Legislature for a specific acqui- Facilities. Addit funds ~for ecreation sition; and (2) acquire partial interests in land Facilities. Additional funds for public recreation i including the purchase of development rights, along the coast shall be provided. To this end: in n asements options, and easements. a. Apply Offshore Petroleum Royalty to Expanded Federal Fund. The Federal government shall 160. Create an Interagency Coordinating Council. be urged to increase the maximum limit of It is recommended that an interagency council the Federal Land and Water Conservation the Federal Land and Water Conservation composed of the Department of Parks and Re- Fund by using the increased royalty income creation, Fish and Game, Transportation, the or higher value from the expanded extraction State Lands Division, the Natural Land and Water of offshore minerals to further support the of offshore minerals to further support the Reserves System of the University of California, fund, and should earmark the increased funds the proposed Coastal Conservation Trust, and for spending on coastal projects. (See also the coastal agency be established in the Resources Part III section on financing the Coastal Plan.) Agency to plan and coordinate the State's overall b. Provide Special Recreational Funding. It is acquisition program in the coastal zone. In addi- recommended that special funding programs tion, the Coastal Commission and the proposed be provided, such as bond acts with purchase Coastal Conservation Trust shall work closely and leaseback provisions, dedication of State with State agencies involved in the acquisition revenues from any extraction of mineral re- of public land to streamline the acquisitions sources in State-owned tidelands and sub- process and minimize the time between legislative merged lands, or special taxes on the sale appropriation for an acquisition project and the of coastal properties. transfer of title to the State. FURTHER STAGES OF PLANNING Findings population element for the establishment of maximum desir- able population densities." Precise population limits, in- cluding both ultimate amount and location, cannot now be Some Further Planning Necessary to Avoid Impacts on Re- established for all coastal regions. To do so requires precise sources and Access. While in many areas (e.g., prime agri- analysis of each area now developed or proposed for develop- cultural lands, timberlands, beaches) the Coastal Plan gives ment in light of the specific resources in the areas that need specific direction to guide governmental agencies in carry- protection and the access needs and problems. With infor- ing out the Coastal Plan, in other areas more detailed mation that is currently available, specific development planning is needed to identify the location and sensitivity concerns (e.g., the need to protect agricultural lands from of coastal resources and to assess the impacts of development conversion or to keep development from exceeding road over time in order to avoid the potential for future adverse capacity) can be identified for particular geographic areas impacts on coastal resources and coastal access. Certain of the coastal zone. However, translating development con- areas of the coast have been designated in Part IV of cerns into precise determinations of the rate, type, location the Plan as special study areas; generally these appear and pace of development is a complex and continuing pro- to pose the most immediate need for resolution, but not cess that involves detailed planning and close cooperation all of the areas needing further planning are designated. with local governments, since they control zoning, the pro- vision of public services, and open space acquisition. Need Ior Cumulative Impact Assessment of All Coastal Zone Setting of population densities therefore must be a continu- Development. In some coastal areas, development has been ing responsibility in the continuing planning process pro- so rapid and extensive that its cumulative effects could not be posed in Part III. In those few cases where sufficient fully understood until it was substantially completed. For information was available within the deadline for submit- example, many small subdivisions and lot splits may be ting the Coastal Plan to the Legislature, such a determina- approved and gradually built up before it is discovered that tion was made. road capacity has been exceeded, thereby impairing coastal access or forcing the construction of an environmentally Subregional Plans Provide Planning Overview. Certain sub- damaging and costly road expansion. Coordination of the regions of the coast are experiencing complex development timing, size, location, and type of development is often diffi- problems, such as degradation and depletion of natural cult because of fragmentation among the large number of resources, restricted access, and transition to more intense local governments, special districts, public utilities, and uses resulting in increased congestion and degradation of regional, State, and Federal agencies involved in land use community character, that are difficult to resolve on a pro- and public service decisions. Without an assessment of cu- ject-by-project basis. Similarly, within these areas there of- mulative impacts and coordination among various agencies, ten exists a distinct potential to preserve and enhance uni- local governmental agencies often have no choice but to que natural resources and/or to create imaginative, high- guide the pace and location of development so as to protect quality, manmade environments. Because of the unique coastal resources. nature of each such area, plans are needed for subregions of the coastal zone. These plans, some of which can be Population Densities Affect Coastal Resources and Their Use. completed or at least well begun during the life of the In many areas of the coast, development beyond a certain Coastal Commissions, would greatly aid in Plan implemen- population or density will adversely affect the preservation tation by establishing a basis for local plan revision. (See of coastal zone resources or access to the coast through the Part Ill, Carrying Out the Coastal Plan). direct effects of development itself (e.g., the conversion of agricultural lands or the congestion of coastal access roads) or through the impact of services necessary to serve new Policies development (e.g, the construction of new or widened roads). Conversely, higher population densities in other areas of the coast (e.g., the downtown areasof major cities) could take place without adverse impacts on resource preservation and 161. Prepare Regional and Local Plans to Carry access policies if sufficient public services (including public Out the Coastal Plan. To apply Coastal Plan: transit and recreation areas) are provided to serve the new policies, to help local governments carry out development. the Plan, and to fully inform land owners and Setting of Population Densities Needs Precise Area Analysis. developers as to permissible uses of specific The Coastal Act requires the Coastal Plan to contain "a coastal sites, mor~ detailed planning is needed 176 * PART II: FINDINGS AND POLICIES in many coastal areas. To this end: based on natural geographic features (e.g.,, a. Regional Supplements. Regional Supplements major valleys), important public services (e.g., may be prepared by the Regional Commissions a coastal road network), and situations where to illustrate the Coastal Plan policies in greater development occurring in more than one local detail than provided in Part IV. When the jurisdiction would have a cumulative impact Regional Supplement is approved by the state- on resources and access. (In most cases, these wide coastal agency as being consistent with boundaries correspond with the subregions the Coastal Plan, it may be used as an ampli- designated in Part IV.) fication of the maps in Part IV. b. Means of Establishing Development Alterna- b. Subregional Plans. Subregional plans may be tives. The subregional plans shall: (1) define prepared for some coastal areas as described the nature and extent of the current commit- in Policy 162. ment to development; (2) analyze the changes that would result in these development patterns c. Local Coastal Plans. Local governments shall if Coastal Plan policies oriented toward specific revise their general plans as necessary to con- types of resources (e.g., agricultural lands, form to the Coastal Plan (and approved ampli- estuaries, coastal neighborhoods) are applied; fications of it). Such local coastal plans may (3) examine the implications of these different involve conforming existing general plan patterns of development for coastal access, elements or preparation of a special coastal public services, and other Coastal Plan policies element. In particularly sensitive areas or (e.g., concentrating development); (4) deter- areas designated for restoration, specific plans mine major development alternatives that are or special studies may be necessary. Such local consistent with the Coastal Plan; and (5) create plans could also incorporate existing corm- a system for monitoring the effectiveness of munity plans where these have been adopted subregional plans in protecting resources and by local governments and are found to be con- preserving access. sistent with the Coastal Plan. Once local plans have been brought into conformance with the c. Goals of the Assessment of Development Alter- Coastal Plan, implementing ordinances and natives. The assessment of development alter- programs (e.g., capital improvement budgets natives shall attempt to: (1) resolve questions for public services, specific programs forac- about the type of development that shall have quisition of public open space and recreational priority in specific areas; (2) indicate where facilities, specific programs for improved density shifts (including increases or reduc- public transit, appearance and design guide- tions) could or should occur, including setting lines, and specific programs for preserving the limits of urban development, where appro- and restoring coastal resources) shall be priate; (3) determine the relative ability or prepared to provide for local implementation inability of particular coastal resource areas of the Coastal Plan. (See Part III regarding to tolerate development, where it is not desig- the content and function of local implemen- nated in the Coastal Plan; (4) indicate the con- tation programs.) ditions that must accompany different levels of development (e.g., open space necessary 162. Prepare Subregional Plans for Some Coastal to serve new development, improvements in Areas. Subregional plans shall be prepared, in transportation systems required beyond a a joint effort of the Commissions or the coastal certain level of development); and (5) define agency and local governments, regional agencies, conditional uses appropriate for specific sen- other State agencies, and citizen groups, for sitive resource areas. The possibility and desi- coastal areas where the cumulative impact of rability of categorizing coastal resources for development over time has the potential for the purpose of establishing appropriate de- adversely affecting coastal resources or coastal velopment guidelines shall also be investigated access. These plans shall apply Coastal Plan as part of the subregional planning program. policies to subregional areas in order to establish d. Provide State Funding For Subregional Plan- development alternatives that are consistent ning Programs. It is recommended that State with the Coastal Plan. grants be made available for this work in a a. Boundaries for Subregional Plans. The boun- new program similar to the Federal 701 plan- daries for such subregional plans shall be ning program. i T 0 : C: :~~~: : :t 7- I�_ i II. 6 i-' .- :f: - - T' i f : : _: \ : - t f,: - -~~~~~~~~~~~~~� � f~~~~~~~~~~~~~~~~~~~~~~i~~~~~~~p~~~~~~. 8~~~~~~~~~~~~~~~~~3~ : -: i: -g:- rrr :ut , , i . f- 1111 P11 eo o|i .:. i-~~~~~~~~~~~~~ .- ;,g�a R.~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ : : ;=- - 0 the Coa~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~al Plan~~~~~~~~~~~~�1:- 131 -�_ r-I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ L~~~~~~t�~~ I ~ ~ ~ ~ ~ ~ i . � j :_:_- ?i~I::~ n~~~~~~~~~~~~~~~~~~~~~~~~~~~~ ... .. : 0 f . . d . f~~~~~ 7~~~~~~~~~~~~~~~~~~~~~~~I I . . - i~~~~~~~~~~~~~~. -I .I *� . � n ::~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~f .: : : : - : -r�� i;� :: : i :: :: ::;li:: �� ii~ ~ ~: d'- .-L - �� �~:;:- �i��-;�;;~j[�:7.E, ;~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ _~~~~~~~~~~ : �:I - �i. -- - 1 :--�:� :-: a;-~~~~~~~~~~~~~~~~~~~~i - . -� �; ~~~~ ~ i, HOW TO USE PART III For an overview of the recommendations for carrying out the Plan, see the Part I summary beginning on page 12_ Part III chapters are: * Governmental Organization and Powers (recommendations for local imple- mentation programs, continuing State coastal agency, and special provisions for public trust lands); * Acquisition and Restoration (proposing a Coastal Conservation Trust): and * Funding (both costs and funding sources). GOVERNMENT ORGANIZATION AND POWERS Introduction Plan through local land use regulations, with an over- view by a continuing State coastal agency, is a new and promising approach to State and local cooperation. It No plan can be self-enforcing. The wise use and pro- offers the maximum in responsiveness to local condi- tection of California's irreplaceable coastal resources tions, accountability, and public accessibility, while require an implementation system to assure that the assuring that local decisions will protect statewide Coastal Plan is followed in the coastal conservation concerns. and development decisions of the future. But regulation alone will not be sufficient; some of the One of the principal means of implementing the Coast- policies of the Coastal Plan will require active pro- al Plan is the regulation of land use. Governmental reg- grams of public land acquisition and restoration. In ulation is a long-established and constitutional meth- most cases, these will be carried out by existing agen- od to protect the public health,'safety, and welfare. In cies and many will not require new funding. But it is ceadmaywl n o require ndewudig But aditioa aqisio p the past, regulation of land use has been primarily a also recommended that additional acquisition pro- local concern but, increasingly, State interests and grams and funding sources be established to assist in conflicts between local agencies have proved the need carrying out the Plan. for State involvement in conservation and develop- Following are the specific recommendations of the ment. The proposed implementation of the Coastal Coastal Commission: GENERAL PROVISIONS 1. Establish Statewide Policy to Preserve, Protect, the Coastal Plan. State, regional, and local agen- Enhance, and Restore Coastal Zone Resources. Be- cies that have regulatory responsibilities in the cause the California coastal zone is a unique and coastal zone, or that undertake or guide develop- valuable natural resource in which all the people of ment in the coastal zone, shall be required to carry the State have a deep and continuing interest, and out those responsibilities and activities consistent because the wise use and conservation of the re- with the Coastal Plan. To the extent possible under maining resources of the coastal zone for the bene- applicable Federal law, Federal agencies should fit of present and future generations are of great also be bound by the provisions of the Coastal Plan. concern to the people of California, it shall be the policy of the State to protect, use with discretion, Following are definitions of the key concepts of the enhance, and, where possible, restore the re- proposed program for carrying out the Coastal Plan: sources of the coastal zone, in accordance with the policies of the Coastal Plan. 3. Definitions. 3. Definitions. 2. Require the Actions of All Governmental Agen- a. Coastal zone as used in this Plan means those cies in the Coastal Zone to Be Consistent with the land and water areas of the State of California Coastal Plan. Conservation and development in the specified in the Coastal Zone Conservation Act coastal zone shall be consistent with the policies of of 1972 and as shown on the maps in Part IV, 180 * PART II1: CARRYING OUT THE PLAN i.e., "that land and water area of the State of proposed by public agencies for public acquisi- California from the border of the State of Oregon tion; potential public recreation areas located to the border of the Republic of Mexico, extend- near major metropolitan centers (e.g., Santa ing seaward to the outer limit of the State juris- Monica Mountains, Irvine, San Mateo County diction, including all islands within the jurisdic- coast); special coastal neighborhoods; and tion of the State, and extending inland to the other manmade resources as defined in the highest elevation of the nearest coastal moun- Glossary. Areas where development may affect tain range, except that in Los Angeles, Orange, coastal access include urban coastal recreation and San Diego Counties, the inland boundary of centers confronted with severe congestion prob- the coastal zone shall be the highest elevation lems (e.g., Marina del Rey/Venice, Newport of the nearest coastal mountain range or five Bay, and Mission Bay) and open coastal areas miles from the mean high tide line, whichever is where there are few public access roads (e.g., the shorter distance." Irvine, Malibu, Big Sur, and portions of the coast in San Mateo, Sonoma, and Mendocino b. Coastal resource management area is the area Counties). This area is in some places much within which local governments are to bring less than the entire coastal zone, and is shown their General Plans, ordinances, and other pro- in the maps in Part IV. grams into conformity with the Coastal Plan. It gramincludes into onformityareas within the oastal Plazone c. Coastal agency means the State and Regional nclhoseaswithing sth coastal rsouces aCoastal Commissions as constituted until Janu- containing significant coastal resources and those areas where the State and Regional Co- ary 1, 1977, and such successor State coastal those areas where the State and Regional Com- agency as the Legislature may designate after missions have determined that development th at date. may directly or cumulatively affect access to coastal recreation areas. The significant coastal d. Local implementation program means the Gen- resources used to map the coastal resource eral Plan (or a coastal element of a General management area are: beaches; dunes; wet- Plan), zoning, and other supporting ordinances lands and estuaries (and their immediate drain- and programs of a general-purpose local govern- age areas); significant wildlife habitat areas; im- ment (i.e., city and/or county) within the coast- portant agricultural lands influenced by the al resource management area after it has been coastal climate or otherwise designated in Plan certified by the coastal agency as being in con- policies; existing public recreation areas; areas formity with the Coastal Plan. LOCAL IMPLEMENTATION PROGRAMS PREPARATION OF LOCAL PROGRAMS Implementation of the Coastal Plan should rely primar- � Local governments are best able to reflect the differ- ily upon local governments because: ent conditions and values of the many communities along the 1,1 OO-mile coastline. * Using the existing local government land use plan- ning and development review system can help elim- Because current State planning law already requires inate duplication at the State level; that each local government prepare a General Plan for * Local government is both accessible and account- the use of land within its jurisdiction, and also requires able to local citizens; that zoning ordinances conform to that plan, Coastal Plan implementation by local government is a logical * Consolidation of the development review process at step. Local General Plans should conform with the the local level reduces the time and money costs to Coastal Plan, and local governments should then adopt applicants; and ordinances and zoning necessary to legally enforce the GOVERNMENT ORGANIZATION AND POWERS � 181 provisions of the General Plan. These documents submit to the coastal agency and to the appropriate would then become the basis for coastal regulation, local governments of general jurisdiction either an- consistent with statewide concerns, in the following nual or long-range development plans for proposed manner: developments within their jurisdiction. Such plans shall be considered in the preparation of the appro- 4. Require Local Governments in the Coastal Re- priate local implementation program(s), and the source Management Area to Conform Plans and coastal agency shall act to resolve possible con- Ordinances with the Coastal Plan. As the principal flicts between the local implementation program means of implementing the Coastal Plan and to and the development plans of the special districts. most effectively ensure that future development is Upon certification of local implementation plans, consistent with the preservation, protection, and any development undertaken by a special district enhancement of coastal resources and with public within the coastal resource management area shall access to the coast, cities and counties within the be consistent with the applicable certified local im- coastal resource management area shall be re- plementation program(s), shall not require further quired to bring their General Plans or other long- permits, but shall be subject to appeal to the range development plans into conformity with the coastal agency as provided in Recommendation 11 Coastal Plan, using as a basis the policies of the in the same manner as if the local government of Coastal Plan and all applicable maps and other general jurisdiction had approved the development. material in Part IV. These plans shall be prepared in This recommendation applies to those districts full consultation with appropriate State agencies having jurisdiction lying wholly or partially within a (e.g., Department of Fish and Game, State Lands county or city in the coastal resource management Commission, Department of Transportation) and area and that issue building permits or otherwise special districts (e.g., sewer, water, transit, port, grant approval for development or which them- and airport districts). Local governments shall also selves conduct development activities. prepare ordinances and zoning changes necessary to implement the plan, including those guidelines and programs addressing concerns enumerated in To prevent costly waste of planning effort, the pro- Recommendation 7 below that cannot be appropri- cess of bringing local plans into conformity with the Coastal Plan will require the joint efforts of local gov- ately included in a General Plan itself, such as cap- ernments, the Coastal Commissions, and the public. ital improvement budgets for public services, spe- The Coastal Commission should work with local gov- cific programs for acquisition of open space and ernments as they evolve their local implementation recreational facilities, appearance and design plans. guidelines, or restoration programs for natural or manmade resources. These plans and supporting 6. Coastal Agency Assistance in Preparation of ordinances and programs shall be submitted to the Local Implementation Programs. To help resolve coastal agency for certification as set forth in Rec- coastal resource conservation Idevelopment con- ommendation 10. Upon certification of the local flicts and to make the best use of the time and re- implementation program (both the General Plan sources available to State and local agencies, the and the supporting ordinances and programs), the coastal agency shall assist local governments by coastal agency shall cease to regulate development providing data, staff support, and technical assis- within these areas, and local governments will re- tance, where requested, in the preparation of local gulate coastal development subject to the review implementation programs. (Funding shall be as and appeal procedure in Recommendation 11. provided in the Funding section below.) The geo- graphic applications of the Coastal Plan policies in But cities and counties are not the only agencies that Part IV of the Plan provide guidance to local juris- goven lcaldeveopmnt.Specal isticts exmptPart IV of the Plan provide guidance to local juris- govern local development. Special districts, exempt from the control of local governments, make crucial dictions in preparing local implementation pro- planning decisions when they construct water or sew- grams that conform to the Coastal Plan. Where er systems near the coast or build ports or other devel- either the cumulative impact of development or opments. The extent and capacity of these systems is conflicts among various proposals create the po- often the single most important factor in determining tential for significant adverse impacts on coastal the intensity of development of coastal lands. Special districts should, therefore, coordinate their plans with resources or on coastal access not resolved in Part local governments and participate with cities and coun- IV, the coastal agency shall prepare a subregional ties in plan certification, as follows: plan (as defined in Policy 162 of the Coastal Plan) to deal with these matters. Local implementation 5. Special Districts and Other Units to Submit De- programs in areas designated for subregional plan- velopment Plans. Special districts (e.g., park, ning shall be certified only if they are in conformity water, sewer, and transit districts), universities, with approved subregional plans. Wherever pos- and port and airport districts shall be required to sible, the subregional plans shall be prepared co- 182 * PART III: CARRYING OUT THE PLAN operatively and in conjunction with the local go- e. Agricultural Resources-a program for the vernments within the subregion and with other ap- protection of agricultural lands, including (1) propriate State and regional agencies. the identification of agricultural lands; (2) a determination of overall land area and of the minimum size parcels in long-term produc- To provide direction to the local governments as to tion; (3) the prohibition of divisions of land or their local implementation plans, the following is pro- the on posed, together with a requirement for full public par- other development iconsistent with continued ticipation in the local programs: agricultural use; (4) the establishment of buf- fer areas on the urban fringe to protect agri- cultural lands from urban intrusion; and (5) 7. Content of Local Implementation Program. The limitations of special assessments of agricul- local implementation program shall set forth the lo- tural lands for public services (e.g., sewer and cal government's application of relevant portions of water) to serve urban needs not generated by the Coastal Plan, including specific regulations, the agricultural lands themselves (see Coastal programs, and maps necessary for the proper use, Land Environment chapter). protection, and enhancement of coastal natural and manmade resources. The local implementation pro- f. Forestry Resources-a program, consistent gram shall include, but not be limited to, the fol- with the Forest Practice Act, for the protec- lowing, as applicable to a local government and as tion of forestry resources through policies on more fully stated in Parts II and IV of the Coastal conversion or subdivision of forest lands, the Plan: protection of coastal streams, and the preser- a. Community Development-a program to en- vation of highly scenic coastal timberlands courage more efficient use of existing developed (see Coastal Land Environment chapter). areas and the concentration of new development g. Scenic Resources-a program for the designa- in already-urbanized areas that can accommo- tion of highly scenic areas and coastal view- date it, to control development that may singly sheds, and procedures and standards to review or cumulatively have an adverse impact on the design of new development consistent with coastal resources, to reserve appropriate shore- the design policies of the Coastal Plan (see line areas for water-related activities, and to pro- tect coastal neighborhoods (see Coastal Devel- opment chapter). h. Manmade Resources-a program for the protec- b. Shoreline Recreation-a program to acquire and tion of manmade resources, such as sites of maintain accessways, open space lands, unique cultural, historical, architectural, or ar- beaches, parks, and preserves, and to provide chaeological significance (see Education and ample public recreational opportunities. This Scientific Use chapter). should include regulations that require dedica- i. Wildlife and Plant Communities-a program for tion of public access to the coast as a condition the protection of areas designated as important of development in appropriate areas, that give or significant coastal natural living communities priority to recreational developments adjacent to (as identified by appropriate State and Federal the coastline over other kinds of development, agencies or in the Coastal Plan) including con- and that require new developments to provide trols on the use and development of such areas adequate open space and recreational amenities and immediately adjacent lands (see Coastal (see Public Access and Recreation chapters). Land Environment chapter). c. Recreational Support-a program to protect up- land areas for recreational support facilities and j. Hazards-a program for the avoidance of risks coastal-oriented commercial-recreational devel- and public costs in areas of high geologic or opment. flood-hazard (see Coastal Development chap- ter). d. Streams, Estuaries, and Wetlands-a program for the protection of coastal estuaries and wet- k. Low- and Moderate-Income Housing-a pro- lands, including (1) criteria for control of ero- gram for the protection and, where necessary, sion, septic tanks, and wastewater discharges, rehabilitation of existing low- and moderate- and of runoff and silt entering coastal waters; income housing, and provision, to the extent and (2) restrictions on diking, filling, and dredg- available in Federal, State, or local housing pro- ing of coastal waters and on the construction of grams, for a significant amount of such housing stream-blocking structures (see Marine Environ- opportunities in new developments (see Public ment and Coastal Land Environment chapters). Access to the Coast chapter). GOVERNMENT ORGANIZATION AND POWERS � 183 I. Water and/or Wastewater Service System-pro- Code, Section 65450) shall be prepared for sen- grams for (1) the conservation of water supplies, sitive coastal resource areas where the impact of including but not limited to a water management a development on the resource would be imme- program, impervious surface limitations, and diate and direct. Such areas include wetlands, other development standards to protect ground- highly scenic areas, lands appropriate for public water and drainage areas; (2) the reclamation recreation, and the immediate shoreline area. and reuse of waste water; and (3) the correlation The coastal agency shall make these designa- of development with approved water manage- tions in consultation with the local government. ment plans (see Coastal Land Environment b. Consolidation of Small Subdivided But Unde- chapter). veloped Lots. Where the coastal agency finds m. Energy Facilities and Conservation-programs the existing division of undeveloped land is in- for (1) the siting of energy facilities, reflecting consistent with the Coastal Plan: (1) with regard national, state, and local interests; (2) the pro- to contiguous lots in common ownership, it tection of areas surrounding such facilities from shall require provisions in the local implementa- incompatible uses; and (3) energy conservation tion program for the consolidation of such lots; measures in new developments to the extent and (2) with regard to undeveloped lots in sepa- these may not be required if not part of a state- rate ownership, it shall, in accordance with Po- wide program (see Energy chapter). licy 154 of the Plan, require provisions for acqui- sition and restoration to the extent funds are n. Transportation System-programs for (1) the available or establishment of incentive programs correlation of development with the capacities . ent for redesign. In the event that lots are combined of existing future transportation systems; (2). and resubdivided, the original lot owners shall the provision of recreational access to the coast; be given the first right to repurchase new lots. (3) the protection of air quality through transpor- tation systems that reduce pollution; and (4) re- c. Right of First Refusal. In selected areas such as quiring, in certain areas, the payment of fees by beaches, the coastal agency may provide that developers (in lieu of providing parking spaces) each sale of property provide the State with the for the purpose of constructing central parking option of first refusal on the purchase at the facilities or establishing other transportation market price; such option must be exercised systems (see Transportation chapter). within 90 calendar days or the sale shall be al- o. Minerals and Soils-a program for the protec- lowed to proceed. tion of soil and mineral resources (including d. Termination Clauses. Where a long-term com- sand and gravel) through regulations on build- mitment of coastal resources would not be in ing, grading, runoff, erosion, dust, waste mater- the public interest, but where development can ials and spoi Is disposal, and the reclamation of be undertaken for a shorter period consistent extractive sites (see Coastal Land Environment with the Coastal Plan and without irretrievable chapter). damage to such resources, the coastal agency may, in designated areas, require provisions for p. National Interest Facilities-a program for the permits to contain a time limit forany allowed consideration of the siting of facilities in the na- development, so that the development can be tional interest, including but not limited to na- reviewed in the future to determine if it should tional defense installations, energy production be continued. facilities, and resource production areas, and the protection of areas surrounding such facili- e. Non-Conforming Uses. The coastal agency may ties from incompatible uses. require that ordinances provide for the amortiza- tion and removal of signs and other non- 8. Special Considerations in Local Implementation conforming uses inconsistent with the Coastal Plan. Programs. To aid local governments in preparing local implementation programs meeting the re- local implementation programs meeting the re- 9. Public Participation. Coastal cities and counties quirements of the Coastal Plan, the coastal agency shall, during the preparation of local implementa- shall, during the preparation of local implementa- shall, before the program is prepared, designate . ... before the progra. is prtion programs, afford the widest possible opportu- areas where special provisions shall apply, as fol- on programs, afford the widest possible opportu- lows: nities for public participation and consultation with other agencies, including adequate public notice, a. Specific Plans for Sensitive Coastal Resource workshops, and public hearings in the affected Areas. Specific plans (as defined in Government areas. 184 * PART II: CARRYING OUT THE PLAN CERTIFICATION OF LOCAL PROGRAMS The transition from Coastal Commission to local gov- Commissions shall certify the program, subject ernment review of development would occur through a to reasonable conditions to ensure compliance process of certification, as follows: with the Coastal Plan. The coastal agency shall then cease its review of development occurring 10. Process of Certification of Local Implementa- in the portion of the coastal resource manage- tion Programs. Within three years of the effective ment area covered by the program, except as date of legislation to carry out the Coastal Plan, provided in Recommendation 36 for tide- and every city and county within the coastal resource submerged lands. Permits for coastal develop- management area shall submit a local implementa- ment shall thereafter be issued solely by the tion program (which includes the plans of special coastal city or county in conformance with its districts enumerated in Recommendation 5) forcer- local implementation program, subject to ap- tification by the coastal agency. The local govern- peals as provided in Recommendation 11 below. ment may first submit its General Plan for an initial All State agencies, as well as other local govern- approval before preparing conforming ordinances ments and special districts, shall act in accord- and programs, provided the entire implementation ance with the certified program. program can be completed within this schedule. The local implementation program shall be submit- c. Failure to Prepare a Local Implementation Pro- ted first to the Regional Commission and then to gram. If, within three years after legislation the State Coastal Commission for review and certi- adopting the Coastal Plan, any unit of local go- fication. The State and Regional Commissions may vernment has not submitted a local implementa- take joint action on the program. The Commissions tion program acceptable to the coastal agency, shall invite comment from other governmental the coastal agency shall exercise permit author- agencies and the general public and conduct a full ity within that portion of the coastal resource public hearing. management area and may issue an order pro- hibiting the local government from issuing any a. Timetable for Review and Certification. The Re- building or other similar permits or undertaking gional Commission shall have 90 days to act on any development within any area where it finds a local implementation program after its sub- additional development may conflict with the mission to the agency, and the State Commis- Coastal Plan. sion shall have an additional 60 days. If the State and Regional Commissions both fail to act After certification, the Coastal Commission would re- within this time period, the local implementa- tain a limited role in castal regulation through a sys- tem of appeals. This State role is needed because cer- tion program shall be deemed to have been cer- tain categories of development have an impact be- tified. The deadlines in this paragraph may, yond the jurisdiction granting or denying a permit. however, be extended for a period not to exceed Major coastal facilities, construction in or near sensitive one year from original submission if the coastal resource areas, and developments at variance with lo- cal plans should be appealable to insure that the State's interest in the coast is protected, and to in- submitted at one time that a Regional Commis- sure uniform application of Coastal Plan criteria in sion cannot consider them all adequately. In various coastal areas. The interests of citizens would addition, efforts shall be made within each re- be protected because, under a system of administra- gion to schedule submission of programs to tive appeals, the time and expense of judicial review would not be an impediment to citizen participation. avoid overloads, and the Commissions shall The interests of the permit applicants would be protect- provide for this eventuality by regulation (e.g., ed because only projects of statewide concern could be setting a timetable for review and submission of appealed, as follows: local implementation programs). If the Commis- sions, in their review process, find that a local 11. Appeals After Local Implementation Programs implementation program is not consistent with are Certified. After the coastal agency certification the Coastal Plan, they shall transmit their speci- of a local implementation program, local govern- fic reasons for this determination to the local ment decisions on developments within the coastal government. resource management area may be appealed to the coastal agency only for the following: b. Local Government Issuance of Permits Upon coastal agency only for the following: Certification. Upon a finding that the local im- (1) approvals by means of variance or condition- plementation program is fully consistent with al use permits of uses or structures that are not the Coastal Plan, the Regional and State Coastal the primary permitted use within a zone as pro- GOVERNMENT ORGANIZATION AND POWERS * 185 vided by the approved local implementation pro- program. Upon hearing an appeal, the coastal gram; agency shall affirm, reverse, or modify a local go- vernment decision or remand it to the local govern- (2) approvals of residential structures of more ment for review. The proposed development shall than fourdwelling units, orpof commercial, in- be approved if the coastal agency finds that it is dustrial, or institutional development of greater consistent with the certified local implementation than 10,000 outside gross square feet of floor program. All other aspects of the existing Coastal space; Act appeal process shall remain unchanged. (See (3) approvals of any development proposed to be also Recommendation 19 for appeals process be- constructed (i) in or within 100 feet of a wetland fore local plan certification.) or coastal stream, (ii) in a f loodway, (iii) on Local plans will need amendment from time to time. In prime agricultural lands, (iv) on a beach or sand an era of rapid change, the coastal agency should be dune, (v) on lots immediately adjacent to the in- able to amend both statewide and local policies, upon land extent of a beach, to the mean high tide line showing that such changes are dictated by new cir- where there is no beach, or to a public access- cumstances. The agency should, in addition, have the way between the mean high tide line and the necessary enforcement powers to insure compliance first public road inland, or (vi) within 100 yards of the top of the seaward face of a coastal bluff; 12. Review of Changes in Local Implementation and Programs. The coastal agency shall review and ap- prove all changes or additions to a local implemen- (4) approvals or denials of energy-providing and tation program for any portion of the coastal re- public service installations that would serve an source management area before the changes are area larger than the geographic area of the local into effect by the local government. The proce- put into effect by the local government. The proce- decision-making body. dures for review shall be similar to those described Any person aggrieved by the action on a permit in Recommendation 10. may appeal, or any two members of the coastal agency may bring an appeal. An appeal shall be 13. Authority to Revoke Local Implementation Pro- heard by the coastal agency unless a majority of grams. The coastal agency shall be able to revoke the authorized membership finds that it raises no any certification of a local implementation program substantial issue and that no question exists as to if it finds after public hearing that the program is consistency with the certified local implementation being violated. STATE COASTAL AGENCY Because the coast contains resources of statewide process of implementing and applying Coastal Plan importance, statewide perspective is needed in plan- policies. Other levels and agencies of government each ning for the coast, along with local viewpoints. More- have their own focus and concerns. A State agency over, no plan for the coast can be applied to the di- specifically charged with coastal management is nec- verse and complex conditions of its 1,100 miles with- essary to assure the breadth of jurisdiction and per- out a continuing need for interpretation, resolution of spective essential to carrying out the objectives of the conflicts, and flexibility. It is essential, therefore, that Coastal Plan. statewide interests be reflected in the governmental STRUCTURE OF COASTAL AGENCY The coastal agency should be a citizen commission. allows the decision-making body to focus on basic pol- No administrative agency, headed by a single adminis- icy choices inherent in coastal planning and manage- trator, can bring to coastal management and planning ment. Technical expertise can be provided by the staff, the breadth of interests and concerns that independ- the assistance of other State agencies, technical ad- ent commissions can provide. Purely administrative visory boards, or independent consultants, rather than decision-making would be less accessible and respon- in the membership of the Commission itself. sive to the general public. The commission structure 186 * PART II1: CARRYING OUT THE PLAN 14. Incorporate Coastal Planning and Regulation persons with a demonstrated ability and commit- into a Statewide Land Use Planning Agency. Be- ment to carry out the Coastal Plan. Members of the cause the long-term protection of coastal resources agency shall serve on a part-time basis and shall be and equitable regulation of coastal development appointed as provided in the Coastal Act. After the can most effectively be achieved as part of a plan Regional Commissions have been phased out, as for the protection and wise use of all natural re- provided above, the State Commission shall con- sources in the State, a State multi-purpose com- tinue to have 12 members and they shall be ap- prehensive land use planning and resource man- pointed one-third by the Governor, one-third by the agement agency should be established with repre- Speaker of the Assembly, and one-third by the Sen- sentation comparable to the coastal agency. A ate Rules Committee. statewide land use plan should be carried out as proposed herein for the Coastal Plan, with empha- 17. Terms of Coastal Agency Members. After ter- sis on implementation by local government. Upon mination of the existing system of State and Re- establishment of such an agency, consideration gional Coastal Commissions under the Coastal Act should be given to incorporating coastal zone man- of 1972, and during the interim continuation of the agement (including the planning, review, and regu- coastal agency with revised authority, members of latory authority of the coastal agency) as one of the the State and Regional coastal agency bodies shall comprehensive agency's separate functions. How- be appointed for terms of four years; the terms for ever, such incorporation should not take place any the State body shall be staggered to provide con- earlier than five years after enactment of legislation tinuity in the decision-making process. No member implementing the Coastal Plan (1) to enable the shall serve more than two full four-year terms, and coastal agency to complete the work of refining the provision shall be made for removal for cause, such Coastal Plan through certification of local imple- as non-attendance at coastal agency meetings. mentation programs as proposed herein; (2) to give the new statewide planning agency time to establish its other functions; and (3) to permit sufficient eval- One major segment of the California coast is not cov- uation of the statewide and coastal planning and ered by the California Coastal Act of 1972 (Proposition implementation programs to determine how and 20): San Francisco Bay, which has since 1965 been when amalgamation would be in the best public in- under the planning and regulatory jurisdiction of the State's San Francisco Bay Conservation and Devel- terest. Until the issues regarding implementation opment Commission. The Federal Coastal Zone Man- of statewide land use planning are resolved, the agement Act, which partially funds California's coastal coastal agency should remain a separate agency, planning, requires that a state's coastal zone manage- as provided in the following sections. ment program deal with all segments of the coast. 15. In the Interim, Continue Coastal Agency. All applicable provisions of the California Coastal 18. Coordinate with the San Francisco Bay Conser- Zone Conservation Act of 1972 shall be continued, vation and Development Commission. Within 18 except as otherwise provided in this Part. The exist- months after enactment of legislation to carry out ing system of State and Regional Coastal Commis- the Coastal Plan, the Coastal Plan and the San sions shall be continued on an interim basis until Francisco Bay Plan shall be reviewed to assure a the local implementation programs are certified, as unified coastal management program. The review provided in the Local Implementation Programs shall be performed jointly by the State coastal section above. After all local implementation pro- agency and the San Francisco Bay Conservation grams have been certified within the coastal re- and Development Commission (BCDC) and shall source management area of a Region or within four determine the future relationship of BCDC to the years, whichever comes first, the Regional Com- overall State coastal management program, includ- mission shall be phased out, except that the State ing consideration of possible changes in BCDC's Commission may establish regional staff offices existing regulatory authority and its area of juris- where appropriate to carry out its responsibilities. diction. Recommendations for legislative implementation shall be presented to the Legisla- 16. Appointment of Coastal Agency Members. The ture by the coastal agency and BCDC within the 18- membership of the coastal agency shall include month period. is GOVERNMENT ORGANIZA TION AND POWERS � 187 DEVELOPMENT REVIEW Although the Plan certification process will resolve mean high tide line seaward to the extent of State many issues such as the cumulative impact of many jurisdiction, or any other land or water areas held in small developments, some projects would by their size trust forthe public. In those areas, the coastal and location require special review. Therefore, to ensure the day-to-day decisions of local governments agency shall continue to issue permits in a manner effectively carry out the Coastal Plan, an appeals pro- substantially the same as that exercised under the cedure is needed. Coastal Act. 19. Interim Permits and Appeals Before Certifica- Until State agencies and special districts bring their tion of Local Implementation Programs. Until certi- development plans into conformity with the Coastal fcation of the local implementation program by the Plan, project-by-project review is needed for major fication of the local implementation program by the ul wr fcite h ol avsl fet public works facilities that could adversely affect coastal agency, the existing Coastal Act permit and coastal resources. This review authority should cease appeal system within the present permit area or the within the coastal resource management area as soon coastal resource management area, whichever is as the local plans have been certified. Beyond the less, shall remain in effect, except that the stand- management area, however, because no General Plan ard for approval or denial of a permit shall be con- certification process is proposed, and because major sistency wit te polies of theCastalPla. In projects could have a direct impact on coastal resour- sistency with the policies of the Coastal Plan. In ces, continuing review authority over major projects addition, the following shall require a permit from within the coastal zone is recommended. the coastal agency during the interim period: (1) any conversion of prime agricultural land within the 22. Review Authority Over Major State and Federal coastal resource management area to non-agricul- Projects. Because major public works projects can tural uses; (2) conversion or subdivision of other have significant adverse effects on coastal re- agricultural land in parcels of 20 acres or more sources, because they are presently administered within the coastal resource management area; and by several different agencies, and because they can (3) any major water, sewer, transportation, or ener- involve substantial public costs in planning, de- gy project in the coastal zone that could adversely sign, and operation, the proposed projects shall be affect coastal resources, as set forth in Recommen- evaluated as to consistency with the Coastal Plan dations 22 and 23. at the earliest stage possible in their development to avoid unnecessary public expense. Before certi- 20. Appeals After Certification of Local Implemen- fication of local implementation programs, public tation Programs. After certification of local imple- works projects and development programs (includ- mentation programs, the coastal agency shall hear ing but not limited to highway, sewer, and water appeals from local decisions within that portion of programs) within the coastal zone that are funded the coastal resource management area covered by in whole or in part by the State or the Federal gov- the certified program only as set forth in Recom- ernment and that could substantially affect the mendation 11. uses of land, water, air, and other coastal re- sources, shall be submitted to the coastal agency The State of California has title to the ocean bottom to for its review and approval as to consistency with a distance of three miles from shore (the Federal the Coastal Plan. After certification of local imple- government has jurisdiction from the three-mile line to entation programs, such public works projects or the 12-mile limit). Local implementation programs could not cover that area. For this reason the coastal programs within the coastal resource management agency's existing concurrent permit authority with the area shall be submitted at the earliest possible State Lands Commission should continue. stage to both the coastal agency and the affected local governments, and the local government shall 21. Retained Jurisdiction Over Public Trust Lands review and approve them as to consistency with the and Areas Seaward of the Mean High Tide Line. Be- local implementation program. The coastal cause of the special responsibility of the State over agency's review of public works projects covered in public trust lands (see Recommendations 36-391. the local implementation program shall be limited tidelands, and submerged lands, no certification of to hearing appeals, as provided in Recommenda- local implementation programs (except programs tion 11. The coastal agency shall continue to review that include the detailed plans of a district opera- and approve or deny such public works projects ting a harbor under legislative grant of jurisdiction) and programs beyond the coastal resource man- shall replace separate coastal agency permit au- agement area but within the coastal zone on the thority over State tidelands, other areas below the basis of consistency with both the Coastal Plan 188 * PART III: CARRYING OUT THE PLAN and the local implementation programs of adjoin- other agencies, the coastal agency shall review and ing areas. approve, modify, or disapprove specific projects in or near coastal streams (as described in Policy 24) Review authority over major energy facilities is also within the coastal resource management area on recommended because of the far-reaching impact of the basis of consistency with the Coastal Plan. such facilities on coastal development, resources, and Upon certification of watershed management plans land use patterns. for the coastal resource management area (see Policy 22), the coastal agency's permit authority 23. Review Authority over Major Energy Projects. over specific projects included within the certified The coastal agency shall have permit authorit? over plan shall be limited to requiring mitigation mea- the environmental and land use aspects of, and the sures. determination of need for, major energy facilities in the coastal zone, coordinated with other agencies' Recognizing that there may be categories of projects review procedures, as provided in Policy 76. Upon that can be excluded from regulatory review, consist- certification of the applicable local implementation ent with the goals and policies of the Coastal Plan, program, coastal agency review of such facilities authority to exclude certain categories of develop- shall be limited to hearing appeals as provided in ment is provided as follows: Recommendation 11. 25. Waiver of Review. Both before and after certifi- To protect coastal watersheds during the time needed cation of a local implementation program, the for preparation of watershed plans, the coastal agency coastal agency may, by regulation, decline to re- would have limited authority as follows: view certain classes, types, and sizes within any category of development in certain geographic 24. Review Authority Over Major Watershed Pro- areas where it finds, after public hearing, that there jects. Because upstream development can cause is no potential for significant adverse effects, either destruction or severe damage to coastal wetlands, individually or cumulatively, on coastal resources streams, wildlife habitats, and beaches, and be- or coastal access or that an existing State agency cause these coastal resources may not be ade- can perform the review in a more timely and expert quately protected by the regulatory authority of manner. OTHER DUTIES AND PROCEDURES The authority to amend, refine, and enforce the Coast- ments of any major amendments after local imple- al Plan is necessary to insure its effective implementa- mentation programs have been certified. tion. Thus, the following powers are recommended: 27. Guidelines, Standards, and Regulations. The 26. Coastal Plan Amendment. The coastal agency coastal agency shall be able to adopt, after public shall be able to amend Coastal Plan policies after hearing, such guidelines, standards, and regula- 90 days public notice of a proposed amendment, a tions as it deems necessary to carry out the Coastal full public hearing, and upon the affirmative vote of Plan and these implementing measures. two-thirds of its authorized membership. No amendment shall exceed the authority granted the 28. Enforcement. The coastal agency shall be able agency by its enabling legislation. Plan maps and to issue cease and desist orders and to initiate judi- other parts of the Plan may be amended upon vote cial proceedings to prevent a violation of the Coast- of a simple majority of the authorized membership al Plan. The Attorney General shall represent the after 30 days notice and with a public hearing in the coastal agency in all judicial proceedings and ren- affected area. All affected local governments, other der legal advice as appropriate. agencies implementing the Coastal Plan, and inter- ested citizens shall be notified of amendments. The 29. Monitor Performance of Local Implementation coastal agency shall, by regulation, establish pro- Programs. The coastal agency shall review the ef- cedures for the implementation by local govern- fectiveness of the local implementation programs GOVERNMENT ORGANIZATION AND POWERS * 189 to assure that programs are being followed, that menting a "single permit application" system for amendments to the Coastal Plan are incorporated coastal development where feasible. Such a system into them, and that procedures leading to decisions should provide for joint public hearings to deter- afford the opportunity for public involvement. As mine the facts in question; reports by the hearing set forth in Recommendations 13 and 14, the body on the facts may then be forwarded to the ap- agency shall certify any amendments to the local propriate agencies for their determination in ac- programs before such amendments are put into ef- cordance with the laws governing their duties and fect and shall be able to revoke any program that is responsibilities. being violated. 32. Inter agency Agreements and Role of Regional 30. Set Performance Objectives. The coastal agen- Organizations. The coastal agency shall seek to cy shall set performance objectives for implemen- develop agreements with other State and regional tation of the Coastal Plan and annually report to the special-purpose agencies to permit the agency to Governor and Legislature on the progress of meet- directly borrow expertise when needed from them; ing those objectives. The objectives should include funds shall be budgeted to support such inter- but not be limited to such subjects as habitat res- agency use of personnel. While a State coastal toration (e.g., wetlands), provision of beach access agency with regional components is adequate to (maximizing access consistent with the carrying implement much of the Coastal Plan, the State capacity of the shoreline), preservation of coastal coastal agency shall also be authorized to contract agriculture, water quality, fisheries management, with a regional organization in any coastal area to beach sand management, and maintenance of low- carry out some of the functions of its regional com- and moderate-income housing. ponents, including plan review, if the State coastal agency finds that the regional organization is capa- The implementation of the Coastal Plan must be an ble of doing so and if the regional organization, or The implementation of the Coastal Plan must be an interagency effort. Cooperation in regulating land use the arm of it that would carry out the functions, undertaking additional planning, and completing the consists of members chosen in accordance with research called for in the Plan is essential. These rec- the membership formula of the Coastal Commis- ommendations provide a framework for this joint un- sions, i.e., half representatives of local government dertaking: and half representatives of the public in the region appointed by the Governor and the Legislature. 31. Improve Efficiency of Permit Procedures. To re- duce delays, expense, and uncertainty for those 33. Coordinate Research and Studies to Implement wishing to use and develop their land; to provide a the Coastal Plan. The coastal agency shall assist simple, inexpensive procedure; and to reduce pub- State and local agencies, universities, private re- lic costs while increasing coordination among searchers, and other qualified persons and organ- regulatory agencies, the coastal agency shall take izations to secure funding and technical resources the lead in seeking cooperation among local, re- for research, studies, and other activities necessary gional, and State agencies in drafting and imple- to carry out the Coastal Plan. PUBLIC PARTICIPATION The agency designated to carry out the Coastal Plan efforts to maintain public involvement shall be un- should have a clear statutory mandate to advocate and dertaken. The coastal agency staff shall be directed protect the public interest in the coastal zone. Its mem- bers should represent and be accountable to the pub- to (1) provide for full partici pation by all interested lic. And it should develop procedures to encourage full groups and the public at large in coastal agency participation in decisions affecting the coast. work; (2) ensure that groups and individuals are ad- vised as to effective ways of participating and give isO 34. Maintain Public Involvement in Coastal Mat- direct assistance to all applicants and interested ters. To continue the open, responsive operation of parties in the procedures for presentations before the citizen-initiated Coastal Commission, strong the agency or communications with it; and (3) pro- 190 * PART Ill: CARRYING OUT THE PLAN vide prior public notice of proposed actions. To this cipation in coastal agency matters. end, the agency shall have an administrative advi- sor with functions similar to those in the act that 35. Equitable Public Access to the Courts. Provi- established the State Energy Resources Conserva- sion should be made for plaintiffs prevailing in liti- tion and Development Commission; the advisor gation to prevent or halt a violation of the Coastal shall recommend any additional measures neces- Plan and coastal legislation to recover reasonable sary to ensure open consideration and public parti- attorney's fees. PUBLIC TRUST LANDS The ocean bottom near the shore is largely held in trust imperfect or misdirected transfers of lands to other by the State for the benefit of all the people of Cali- parties. More definitive mapping and more intensive fornia. legal research is needed to better protect the public's interest. 36. Protect Public Trust Lands in the Coastal Zone. The State, as the legal guardian of certain coastal 37. Title Status of Certain Lands. The State Lands areas, generally seaward of the mean high tide line, Commission, with the Attorney General, shall un- that are held in public trust (i.e., the areas are held dertake an accelerated legal research and boundary in trust for the public for commerce, navigation, determination program to clarify the extent and sta- fisheries, or other uses set forth in law) shall pro- tus of all public trust lands, including areas en- vide special protection for these areas. Because larged by the addition of new materials (accreted or development adjacent to such public trust lands relict lands) and areas diminished by erosion (erod- and waters can have an adverse impact on the pub- ed or lost by avulsion). lic's rights in them (e.g., development may block constitutionally guaranteed access to coastal 38. Uniform Coastal Mapping. To clear up existing waters or cause damage such as erosion or land- uncertainty in California as to the extent of public slides), development on or uses of public and pri- trust land, including the exact location of its land- vate lands in the vicinity of trust areas that would ward and seaward limits, and to aid the effort de- significantly interfere with or harm the public scribed in Recommendation 37 above, it is recom- values of these areas shall not be permitted. The mended that a uniform coastal mapping act be Coastal Plan shall, consistent with applicable law, drafted, using standard technical definitions con- be a basis for determining permissible uses of pub- sistent with those employed by the National Ocean lic trust lands and waters and of adjacent areas Survey, that (1) outlines the practical and accept- within the coastal zone. If there is reason to believe able methodology for mapping shoreline property that an area may be subject to the public trust, any lines in a clear and understandable way, and (2) proposed development in that area inconsistent would mandate use of this methodology by all li- with the public trust shall not be permitted to pro- censed surveyors upon adoption of the act. ceed unless it is found that the public trust is not applicable to the site. 39. Coastal Survey for Beach Access. The coastal agency shall survey the coast to identify beach ac- cess areas acquired by the public through grants or The shoreline moves back and forth as cliffs erode or that may be subject to prescriptive rights or implied sands build up. The lands owned by the State in trust dedications, such survey to be undertaken in coor- advance and recede accordingly. The rights of the pub- lic in those public lands is further clouded by actions in dination with the provisions of Recommendation 33 the past that may have lost some of the public rights by above. ACQUISITION AND RESTORATION Introduction Proposed Acquisitions: Some Examples The acquisition and restoration program proposed in the Coastal Plan relies primarily on existing agencies. Much can be achieved through the planning and regulatory policies in These criteria result in the proposal fora major acquisition of Part II of the Plan, but a program of public acquisition and property along the Irvine Coast, for inexpensive overnight pub- restoration along the coast will also be necessary to fully pro- lic accommodations that would allow persons of moderate in- tect and enhance coastal resources. come access to coastal recreation in the Orange County area. Point Dume State Park in Los Angeles County and San Onofre Where existing beach and coastal park lands are insufficient to State Park in San Diego County are proposed for expansion. meet growing demands for recreation, particularly in major Also proposed is the preservation, restoration, and enhance- metropolitan areas, additional coastal property should be ment of habitat or biologically important areas along the coast, such as Elkhorn Slough in Monterey County and Willow Creek acquired. Where public beaches are underused because of in- such as Elkhorn Slough in Monterey County and Willow reek adequate parking or access, additional parking and access- in Sonoma County. In addition, acquisitions are proposed to adequate parking or access, additional parking and access- ways should be provided. Where zoning alone is, because of carry out major Plan policies and achieve balanced resource ways should be provided. Where zoning alone is, because of manag'ement within the coastal resource management area economic pressures, unable to keep agricultural lands in pro- management within the coastal resource management area i ~~~~~~~~~~~~~~~~~~~(e.g., acquisition of the planned but not yet built Whiskey ductive use, it may be desirable for the public to acquire ease- (e.g., acquisition of the planned but not yet built Whiskey ments to limit development and to protect agriculture. Where Shoals subdivision in rural Mendocino County, where acquisi- ments to limit development and to protect agriculture. Where wildlife habitat is threatened, purchase may be needed. And tion would preserve the scenic integrity of the area and would wildlife habitat is threatened, purchase may be needed. And help to concentrate development in existing areas, prevent- where environmentally important resources such as wetlands help to concentrate development in existing areas, prevent- ing leapfrog and sprawling development in rural areas). have been degraded, a restoration program should be started. ng leapfrog and sprawling development in rural areas). Actual acquisition of coastal properties would, in the vast Proposed Acquisitions: Proposed Acquisitions: majority of cases, be carried out by existing governmental agencies. In fact, many of the sites tentatively proposed for Tentative Proposals on Plan Maps acquisition have already been suggested by State, Federal, and local agencies. Shown on the Plan Maps in Part IV are sites tentatively pro- posed by the Coastal Commission for public acquisition. These designations are preliminary, and changes will be In- Acquisition eluded In supplementary material to be submitted to the Gov- Criteria and Priorities ernor, the Legislature, and the public. Based on assessments by county assessors, the parcels tenta- The Coastal Plan proposes the following priorities for public tively proposed for acquisition have a total market value of acquisition of coastal property: about $180 million. Because of inflation, and because some assessments have not been updated recently, the estimates 1. Lands best suited to serve the recreational needs of ur- may be low with regard to some parcels. On the other hand, ban populations should be acquired before land in out- the total cost may be reduced by eliminating some parcels lying areas. from the list (the Commissions are continuing to review the acquisition proposals) and by purchasing easements rather 2. Land of significant environmental importance, such as than full title in some cases. The Plan proposes that, after fur- for habitat protection, should have priority over other less ther review of the proposed acquisitions, a bond issue be sub- important land. mitted to the voters of California in 1976 to pay for prompt pur- 3. As the highest priority, lands in either of the above cate- chase of coastal properties. gories proposed for development or use incompatible with their basic resource or recreational value should be In accordance with existing law, all purchases should be made acquired or protected before land experiencing little or no on the basis of paying fair market value to the owner of the development pressure. property being acquired. The Commission recommends that 192 * PART II1: CARRYING OUT THE PLAN each parcel finally proposed for acquisition be acquired as development pressure can be preserved for continued produc- soon as possible by the appropriate public agency. tion through selected acquisition and a regulatory policy which requires that property taxes be lowered to reflect the restric- The designation of a parcel of land on the Plan Maps in Part IV tions on development of the land. as being considered for acquisition does .not prevent the site from being used pending acquisition. Use and development compatible with the proposed public acquisition can and The Coastal Conservation Trust should be permitted; for example, sites proposed for intensive recreation could be suitable for a combination of public recre- ation, such as parks, and commercial-recreation, such as Some facets of the acquisition program proposed in the Coast- campgrounds or resorts. But where the proposed use or devel- al Plan cannot be integrated into the framework of existing onment would adversely affect the recreational or natural re- agencies, and thus the Coastal Plan proposes establishment source value of the site, such as building a house over a sandy of a Coastal Conservation Trust. This agency would not beach proposed for acquisition, then the proposed develop- compete with existing agencies but would take on responsi- ment should be denied for a limited time. As provided in Policy bilities to complement those of other agencies. Working 67, if a parcel of land proposed at this time for acquisition is with the Real Estate Services Division of the Department of not in fact acquired within a reasonable time, usually not to ex- General Services, for example, the Trust could establish a ceed three years from the effective date of legislation to carry purchase and lease-back program for agricultural lands. out the Coastal Plan, development in compliance with Coastal Working with regional and local park districts, the Trust Plan policies should be allowed to proceed. could provide matching grants for the acquisition of coastal parklands and for the maintenance of lands providing public access to the coast. Working with the State Depart- Acquisition Techniques ment of Parks and Recreation, the Trust could acquire ease- ments on lands adjacent to existing parks to minimize the need for future acquisition. The traditional method of public acquisition--a one-time cash purchase of fee interest in property, following legislative ap- The specific purposes, powers, and duties proposed for the propriation of funds-will continue to play a large role in any trust are described below. These proposals are modeled after acquisition program. But, as both the price of land and the the Tahoe Conservancy Agency, established in 1974 to carry pressure for private development increases, public agencies out the acquisition and restoration recommendations of the should explore more innovative techniques that meet public adopted plan for the Tahoe Region. needs while also respecting the concerns of property owners. For example, a landowner interested in selling his land to a public agency often hesitates because of the tax consequences of a major capital gain in a single year. Installment purchases Recommendations are specifically prohibited by the California Constitution, but a State or local agency may acquire property over time through a lease agreement under which the agency receives a portion of 40. Establish a Coastal Conservation Trust. Be- the land each year in return for the lease payments. cause certain acquisition and restoration activities cannot readily be carried out by existing acquisi- Some acquisition techniques recommended in the Coastal tion agencies and because there is a need for an in- Plan will require new legislation. For example, no State ac- quisition agency can now purchase less than fee interests in novative and flexible program of positive public ac- property, i.e., options or easements to limit development. Ac- tion along the California coast, it is recommended quisition agencies should also be able to purchase and lease that the Legislature establish a Coastal Conserva- back lands, purchase and resell land (after placing use restric- tion Trust. The Trust should be administered by five tions on it), enter into resource management contracts, and trustees: the chairman of the State Coastal Com- contract with outside agencies such as a non-profit corpora- mission or a designee, the Secretary of the Re- tion established by the State. The Legislature has already authorized the Tahoe Conservancy Agency to employ some of sources Agency or a designee, the Director of the these acquisition techniques; similar authority should be Department of Finance or a designee, and two granted for coastal acquisitions. members of the public appointed by the Governor. The Trust should be part of the Resources Agency. Coordination of Purchases Coordination of Purchases 41. Purposes of the Coastal Conservation Trust. The Trust should be established to assist in the im- The Coastal Plan proposes that a program of interagency co- plementation of the acquisition recommendations operation in acquisitions be established through the newly formed Real Estate Council, organized by the Department of of the Coastal Plan, and where necessary, to fund General Services, and through a coastal coordinating council, the Plan's policies calling for positive public action chaired by the Secretary of the Resources Agency. Particular- and restoration of critical resource areas to the ly important is the proposal for greater coordination between public domain. Among the specific purposes for the regulatory program now being carried out by the Coastal which the Trust should be established are: Commission and the acquisition and restoration activities of existing agencies. It may be possible, for example, to pre- (1)The selective acquisition of prime agricultu- serve major watershed areas by acquiring key bufferareas (e.g., Upper Newport Bay) within the drainage basin and regu- ral lands proposed for conversion to non-agri- lating use of the rest of the land consistent with the overall cultural use to prevent urban intrusions into goal of resource protection. Agricultural lands under agricultural areas, to protect lands not now in ACQUISITION AND RESTORATION �* 193 agricultural production but needed to meet long- fee and leaseback or resale of lesser interests term food needs, and to assemble lands into (e.g., farming or grazing rights), purchase of the parcels of economic size, using appropriate fee subject to a life estate or other encumbrance; techniques such as purchase and lease-back or techniques such as purchase and lease-back or (2) Purchase options to purchase any such inter- purchase and resale of lands for productive use or the purchase or lease of easements over agri- cultural lands; (3) Lease lands pursuant to Sections 5060-5065 of the Public Resources Code; (2) The acquisition of subdivided lots in scat- tered ownership, excess rights of way, and other (4) Negotiate land exchanges, with the consent lands that could be purchased from their owners of the seller and the landowning agency; and sold or leased for uses consistent with the (5) Initiate, negotiate, and participate in con- (5) Initiate, negotiate, and participate in con- Coastal Plan; tracts and agreements for the management and (3) The pre-acquisition of lands for reconvey- disposition of the land, including resource man- ance to other public agencies; agement contracts and joint powers agree- (4) The restoration and enhancement of degrad- ments; ed coastal lands, especially habitat areas and (6) Provide grants to other State and local agen- lands near urban areas suitable for intensive or cies on a matching basis for the purposes de- passive recreational use; scribed in (1) above, and for the maintenance of lands providing public access to the coast, con- (5) The acquisition of easements and develop- sistent with the Coastal Plan; ment rights on lands adjacent to local, State, and Federal parks on or near the coast to estab- (7) Exercise the power of eminent domain only lish a buffer of privately owned land for use con- for the acquisition of subdivided lands in scat- sistent with the purposes of the park and to min- tered ownership. Where condemnation is found imize the need for future acquisitions around necessary to achieve one of the other purposes existing parks; enumerated in Recommendation 36 above, the Trust should be empowered to request such ac- (6) The acquisition or acceptance of lands pro- tion from the Public Works Board or to seek emi- viding public access to the coast; nent domain authority from the Legislature on a (7) The administration and acceptance of in-lieu case-by-case basis. payments provided as part of permit decisions by the coastal agency or local government. 43. Exemption from Review by the Public Works Board. Because many of the rules of the Public 42. Powers and Duties of the Coastal Conservation Works Board (e.g., limitations on the acquisition of lands proposed for development) would inhibit the Trust. To carry out these purposes at the least pos- sible long-range cost to the State, the Trust should flexibility and effectiveness of the Coastal Conser- be authorized to do the following: vation Trust, acquisition by the Trust should not be subject to review by the Public Works Board but (1) Purchase, acquire, accept, hold, and convey should be governed by other provisions of the Pro- fee or less than fee interests including, but not perty Acquisitions Law excepting those limiting the limited to, scenic easements, purchase of the term for the leasing of public lands. FUNDING Introduction Planning by State and Local Agencies The Coastal Plan is an investment in the long-term wise use The Coastal Plan provides for many policies to be carried out and protection of California's coast. As with any other invest- by existing State and regional agencies, and for local govern- ment, there will be costs-in this case, the costs of the permit ments to bring their general plans into conformity with the and appeals process, of planning by the State and Regional Coastal Plan. For State agencies, the proposal is not for Commissions to keep the Coastal Plan up to date as condi- massive new planning programs but rather for assignment of tions change, of additional planning by State and local gov- high priority to coastal concerns in existing planning pro- ernments, of property acquisition and restoration of coastal grams such as transportation. The costs of bringing State lands, and possibly of grants to some local governments that agency plans into conformance with the Coastal Plan should may suffer serious losses in their property tax base. be minimal because such changes can be incorporated into the ongoing planning activities of the affected agencies. In many areas where further planning is recommended, Federal grants Administration of Permits and Appeals are currently available to defray much of the cost. Grants for watershed planning under Section 208 of the Water Pollution Under the recommendations in this section of the Coastal Control Act of 1972, for exam plIe, provide 100 percent of the Plan, the present permitiappeals process of the State and Re- necessary funding to the planning agencies. gional Commissions would continue for up to four years, while i local governments are preparing their local implementation The costs of research and special studies proposed in the programs; after that, local governments would have primary Coastal Plan should also be held to a minimum through a responsibility for carrying out the Coastal Plan, subject to a phased and coordinated research program directed by the limited appeals process. Based on the experience of the coastal agency. These costs will not, of course, be incurred all Coastal Commissions, it appears that the interim coastal at once. Projects will be undertaken as funding becomes avail- agency permit and appeals process, with six Regional Coin- able, and the coastal agency will assist participating agencies missions and one State Commission, would cost $1 million and researchers in securing the necessary financial and tech- to $1.5 million per year, declining as local governments nical resources. Several of the proposed research projects, assume more and more of the Plan implementation and as such as the studies of thermal pollution recommended in the Regional Commissions are then phased out. (Declines could, Marine Environment chapter, are already funded and under however, be partially offset by inf lation.) way. Other research costs and their method of f inancing will only become clear as the studies are more fully def ined and Funds to pay for the administration of the permit /appeals presented through the normal budgetary process. system would, as at present, come from the State General Fund. Costs would be partially defrayed by revenues from For local governments, in addition to planning programs now permit processing fees. under way, there will be extra costs during the three-year period while local implementation programs are being prepared. Based on discussions with planning officials In Planning by State and Regional Coin- coastal cities and counties, the cost over the three years is missions to Keep the Plan Up to Date estimated at $2 million to $2.5 million, or about $700,000 to $800,000 per year. Federal funds to assist in this planning are The Coastal Plan contemplates two major planning responsi- potentially available under the Federal Coastal Zone Manage- bilities for the State and Regional Commissions: (1) assisting ment Act of 1972 and Section 701 of the U.S. Housing Act of local governments in the preparation of the necessary local im- 1968 (as amended). plementation programs for certification; and (2) keeping the Coastal Plan up to date in light of future changes (e.g., the en- Acqui sition and Restoration of Coastal ergy supply situation, or developments in international f isher- ies), and in light of practical experience in applying the Plan. Lands Based on the planning experience of the present Commis- sions, these costs are estimated at $1 million to $1.5 million The Coastal Plan tentatively recommends acquisition of 152 per year, and under the Federal Coastal Zone Management Act sites along the coast. Funds to acquire some of the sites have of 1 972, Federal f unrds may be avai lable to pay two-th irds of already been appropriated, but most of the areas proposed for this cost. acquisition will require additional Federal, State, and local FUNDING * 195 funding. Based on the property records of county assessors in $2 million and $3 million to support the planning the 15 coastal counties, the additional acquisition costs for the and regulatory activities of the coastal agency and entire list (beyond the funds already appropriated) are estimat- ed at $180 million, as matching money for available Federal grants, and other funds as needed to service a bond issue The long-term cost of developing and maintaining these sites to support the property acquisition and restoration is difficult to determine at this time. Costs at each site will activities called for in the Coastal Plan. Specifi- differ, depending on the level of management and the extent of cally, the Leislature should consider financing the development appropriate in the area. The experience of park agencies in southern California places annual maintenance costs of carrying out the Plan from a combination costs at about $70,000 per linear mile of coastal park in that of available Federal funding sources, existing State area; the costs for less heavily used areas would probably be funding sources, and/or new State funding less. sources, as follows: Funds to carry out Plan proposals for acquisition and restora- tion are potentially available from a variety of sources. If the a. Federal funds, including: properties are acquired over a long period of time, the annual Funds under the Federal Coastal Zone Man- costs of this program will be relatively low. Because, however, many of these properties will be put to other uses unless ac- agement Act of 1972 for planning by the State quired soon, and because of the need for fairness to the own- and Regional Commissions and local govern- ers of these properties, a statewide bond issue to provide ments in the coastal zone; funds for immediate acquisition of some or all of these prop- erties is recommended. � Section 701 grants available under the Hous- ing Act of 1968 (as amended) for local govern- Other sources of funding for the acquisition program are enu- ment planning; merated in Recommendation 44 below. Particular emphasis should be placed on the Federal Land and Water Conservation Categorical grants for planning the siting of Fund, which is distributed on a project-by-project basis. Cali- energy facilities on the coast, watershed man- fornia last year received $12.5 million in grants from the fund agement, and pollution abatement; for public acquisitions throughout the State. Because 62 per cent of the revenues in the fund nationwide are derived from The Land and Water Conservation Fund for leases of submerged lands on the Outer Continental Shelf, the the acquisition and restoration of coastal Commission recommends that priority be given to coastal acquisition sites in the distribution of this money. State agen- lands on a project-by-project basis; cies submitting proposals for grants from the Land and Water Grants for the acquisition of estuarine areas Conservation Fund should place greater emphasis on coastal areas in the application process. Direct acquisition of coastal authorized under Section 312 of the Federal lands by the National Parks Service and the U.S. Fish and Wild- Coastal Zone Management Act; and life Service should also be encouraged wherever possible. Grants for the acquisition of bicycle paths ;Grants for the acquisition of bicycle paths available under the Federal Highways Act of Grants to Local Governments Suffering 1973. Losses in Property Tax Base b. State funds, including: The Coastal Plan recommends strongly that tax policies favor * The General Fund; the protection of prime agricultural land. Taxing agricultural land on its present use, not its speculative value, could, how- � The Bagley Conservation Fund, both for oper- ever, adversely affect the tax base of some local govern- ating expenditures and for the acquisition and ments, causing taxes to rise on other types of property. In restoration of coastal lands; situations where this occurs, consideration should be given to State assistance to local governments, in the manner cur- � The Environmental Protection Program Fund rently used to compensate localities for property tax reduc- and Collier Park Preservation Fund, for the ac- tions on Williamson Act open space lands. Consideration should also be given to the revenue-equalization potential quisition of land for park and recreation pur- of legislation like the Minnesota Fiscal Disparities Act of poses; 1971. ~~~~~~~~~~~~1971. *The 1974 Park Bond Act, the Recreation and Accordingly, the recommendations of the Coastal Commis- Fish and Wildlife Enhancement Fund, and the sion are as follows: 1964 Park Bond Act for the acquisition of land for park and recreation purposes. Recommendation c. New State funds from coastal-related activities, including: 44. Finance Implementation of the Coastal Plan including: through Federal Grants, State Funds, and Reve- � Funds from existing tidelands petroleum pro- nues from Coastal Activities. It is recommended duction and any new offshore production ap- that the Legislature annually appropriate between proved in full accord with Coastal Plan poli- 196 *PART II/: CARRYING OUT THE PLAN cies, because some of the costs of coastal coastal lands. The funds from such a bond is- planning are directly related to the impact of sue, if passed by a majority of the voters, should offshore petroleum production; be made available to the proposed Coastal Con- *Severance taxes on oil and gas production, servation Trust and to other agencies authorized because the costs of coastal planning are to to acquire and maintain coastal lands for recrea- some extent directly related to the impact of tion, education, research, and coastal protec- such activities; tion (e.g., the State Department of Parks and Recreation, the Department of Fish and Game, *Oil throughput charges on petroleum the Natural Land ad Water Reserve System, products moved across State tidelands, be- and local park agencies). Revenue sources list- cause some of the costs of coastal planning ed above could be used to help retire the bonds. and protection are related to the risks inherentS.CnieMchissfrEulzgTaIeq- in the transportation of oil in California's ties. The Legislature should consider a mechan- coastal waters; ~~~~~ism, where one is needed, to equalize local tax *Increased registration fees for pleasure boats, revenues among affected jurisdictions in coastal because boat users depend on the continued areas. Because the Coastal Plan may have the management of coastal resources for their effect of reducing the assessed valuation of cer- recreational enjoyment; tain coastal lands (e.g., prime agricultural Tranientoccuancytaxe, beausea maor-lands) and because the Plan will tend to concen- ity of hotel and motel rooms in California are taenwdvlpeti led ul-paes within 30 miles of the coast and because the along with the property tax benefits of such de- coas Isa viito detinaionformanyperonsvelopment, the Legislature should consider en- catrisaveingitor detialionfornianyprsn actment of a program under which local govern- ments adversely affected could share part of the d. Consider a Bond Issue to Finance Acquisition annual growth in property tax valuation. (The and Restoration Programs. The Legislature Minnesota Metropolitan Fiscal Disparities Act should consider submitting a bond issue to the of 1971 could be evaluated as a model for such a voters for the acquisition and restoration of program in California.) - r 44- >tRgionaI Stimmaries 'K 444 4" 44 - - 4>4 4' 44 , 4 44444 444 � 4>4444 44 4444 '44444-4 -444 444 444 '>t'-44 z&">" 444' 41444444' 44 444 4 44 4- ' 444 444 44 4444 4444- 4444'> 44 4444 444> 4 44 4- 44 4 4444444 S 4 44 4' 44 - 4 4441444444t44t. S A -4 444 4 4 44444 -4444A 44 44' 4444,4 4$> - 4 '>4-444 V - - 4 '4444 4,44> 44 4444 >4 444" - 4444444 - 44 '>444'> 4 4- 4 44� >4: '444444 * <4- 4� 4> >441 4 444$ 44444'44 44' K; 4 - 444444 t 44 HOW TO USE PART IV Part IV is divided between narrative material (Regional Summaries) and maps (Summary Maps and Plan Maps). Both text and maps are presented north to south. � Regional Plan Summaries present an overview of each Region and discus- sions of coastal subregions, keyed to relevant Plan Maps. � What the Maps Show incl udes a description of map legend items. � Summary Maps illustrate the coast, major resources, and boundary lines at a glance. (Explanations of the coastal resource management area boundary for each region are on the facing pages.) � Plan Maps show the coast in detail, with Map Notes for each area on the facing pages. Each Region's Plan Maps begins with a location mapfor that Region: North Coast begins at Map 1, North Central at Map 14, Central Coast at Map 20, South Central at Map 33, South Coast at Map 50, and San Diego at Map 58. (Maps at greater detail are available at Regional offices.) � The Map Legend-the key to the colors and symbols on the Plan Maps- is a foldout page at the back of the Plan, so it can be viewed while reading the maps. INTRODUCTION Part 11 of the Coastal Plan sets forth the policies upon which they are based, and taken together with the maps, which conservation and development decisions in the coast- are intended to guide further planning as necessary by gov- al zone should be based. Part IV specifically applies these ernmental agencies and property owners. Should further policies to the geography of the coastal zone--the sea, planning or new information indicate that changes in either wetlands, beaches, farmland, hills, urban areas. the Part 11 policies or the Part IV maps, notes, or summa- ries are needed, specific procedures for possible amendment Prepared by the six Regional Commissions with coordina- of the Plan are provided (see Part III, Recommendation 26). tion by the State Commission, the Plan Maps, accompany- ing Map Notes, and Regional Summaries show the Commis- Taken as a whole, Part IV can be used by private citizens, sions' recommendations as of the date of completion of this public agencies, and private organizations interested in Plan for the application of appropriate policies to specific knowing the location and extent of coastal resources and coastal lands and waters. developed areas as well as what the Plan proposes in their community. Proposed in Part IV, for example, are areas for The maps, notes, and summary text apply the Coastal Plan possible public acquisition and restoration, the possible lo- policies of Part 11 but are not intended to substitute for cation of coastal trails and coastal access, and, in some in- them; in case of any question between a policy and a map, stances, areas within which urban growth could be encour- the policy shall govern. Where the Map Notes and Regional aged or restricted. Local governments can use the maps, Summary direct an action, they are, however, intended to notes and summaries in their own implementation of the be given the same force and effect as the policies upon Plan (see Part 111). REGIONAL SUMMARIES Regional Plan Summaries. The Regional Summaries were cies. Each Regional Summary begins with a brief descrip- prepared by the Regional Commissions to summarize the tion of the Region, followed by more detailed descriptions extent of critical resources, major local plans, development of smaller geographic units or "subregions. " As depicted trends, environmental problems, and economic and social on the Plan Maps, subregions have been identified to pro- concerns where appropriate, and to describe specific con- vide more manageable planning areas for each Region. servation and development proposals that reflect Plan poll- 200. PART IV: PLAN MAPS AND REGIONAL SUMMARIES NORTH COAST The North Coast Region, one-quarter of the California coastline, is composed of the three northernmost coastal North Coast Subregions counties in the State. This region is sparsely populated, R E G N with the focus of population scattered along Highway 101 - - - and Highway 1. The counties and their population as of DEL 1970 are: Del Norte, 14,600; Humboldt. 99.642: and Men- Crescencit (NORTE\ docino, 51,300. Unlike most other coastal counties which J have experienced increasing population, the North Coast . counties' populations have actually decreased between 1960 and 1970. ".- The rural character of the countryside with its ranches and 1 dairy farms, the quaint and charming New England flavor of special communities such as Ferndale and Mendocino, and the lack of large city congestion contribute to the Eureka \ unique appeal of this region. The remoteness of the North Coast from any large population center has enabled low- and moderate-income residents of the region to be able to Cape ; i enjoy this appeal and to have the additional benefits of a Mendocino ;HUMBOLDT slower-paced lifestyle. \ The economy of the North Coast is based upon forest pro- , cucts, agriculture, fisheries, and tourism. The timber indus- . 4 try is by far the principal source of livelihood for the people in this region. Agriculture and fishing are additional but cannot replace timber as the basis of the North Coast econ- i omy. The recreational appeal of the region attracts 40,000 MENDOCINO to 50,000 visitors annually from across the nation; however, 3 MENDOCINO this influx of visitors is limited to the period from June to Fort Bragg mid-September. This short tourist season is not only signifi- cant to the North Coast but a stimulus to the national recre- r ational industry. The timber and fishing industries not only are important to this region and the State but are of nation- int PointArn al concern. The objectives of the Coastal Plan particularly applicable in Del Norte, Humboldt, and Mendocino Counties are to maintain this region as a scenic and natural SONOMA - resource area, to preserve agricultural lands, and to con- serve natural areas without jeopardizing economic stability. General Recommendations. Major planning issues to which ' Agriculture. All agricultural lands which are established Coastal Plan policies are applied in the North Coast Region economic units in production shall also be maintained in include timber and watershed management, lot splits and agricultural use. Division of lands or subdivisions shall premature subdivisions, and protection of scenic, recrea- not be permitted to convert agricultural parcels which are tional, and ecological resources. To this end: in economic units of production. All prime agricultural lands, especially those around the Smith River floodplain, � Timber is a valuable national resource; its sustained har- the Arcata Bottoms (including McKinleyville), the Eel vesting is necessary for the nation's welfare. Coastal Plan River Bottoms, Hunters Lagoon, and the Garcia River, policies call for maintenance of all prime timberlands now shall be protected from conversion to non-agricultural in economically feasible harvesting units in the North uses. Remaining agricultural lands around developed Coast Region. Programs for rehabilitation and enhance- areas should be designated as open space visual resource ment of commercial timber resources should be develop- areas such as land between Mendocino and Fort Bragg ed to insure continued timber productivity. Reconsolida- and between Eureka and Arcata. tion of uneconomical parcels should be done in areas that are not significantly built out at this time. Conversion of Special Neighborhoods and Communities. The protection, prime timberlands to other uses shall be minimized. maintenance, and enhancement of the unique character of numerous special neighborhoods and communities is to * Water quality and fishery resources in coastal streams be achieved through the restriction of inappropriate de- shall be maintained; remaining estuaries and wetlands velopment and use of design guidelines as determined by and buffer areas necessary to protect these wetlands and community design review committees and appropriate their wildlife habitats shall be preserved and protected. public agencies. � Soil productivity shall be protected and development reg- * Views. The "view corridor" as defined and mapped in ulated to prevent soil depletion or degradation. A detail- North Coast regional supplements is a highly scenic area. ed upland soils survey should be completed for the three Plan Policies provide that new development within the North Coast counties. view corridor should complement natural, scenic, and NORTH COAST * 201 historic values especially within or near special commun- shall be used to protect riparian vegetation. ities and where scenic open vistas exist. Tall structures that are out of scale with existing buildings or structures Trails. A coastal trail system throughout the North Coast 0 shall not be allowed. Realignment or construction of any Region shall integrate and make use of existing trails travelled surface shall minimize alterations of natural within public lands and existing local roads, streets and landforms and shall restore, as much as possible, the highways where pedestrian, bicycle and/or equestrian ac- original contours and vegetation after completion of the cess is permitted. Consistent with Coastal Plan policies, alterations. A buffer area may be required to effectively to protect agricultural lands, the coastal trail system shall screen logging operations within the view corridor (the be kept separate from agricultural lands by alternate need for and width of a buffer will be determined on a routing or by a fence or other appropriate barriers in cer- case-by-case basis). Those subdivisions west of Highway tain areas. As an initial phase, it is recommended that a 1 are to be considered part of the view corridor. Where coastal trail extending northward from the King Range coastioal Cosrvaileteniong norehar from the MatKiver Range build out is permitted, use of screening with indigenous Na tional Conservation Area to the Mattole River and plant species and design controls will minimize adverse southward from the King Range to the De Vilbis Ranch visual impacts. Screening will also be required east of the be established (taking into account the Usal Creek trail highway for development that is incompatible with the proposal by the Department of Parks and Recreation). view corridor. This would be in addition to the Mendocino Coast Pilot Trail Corridor (from Mackerricher State Park to the Men- Offshore Rocks and Marine Resources. To protect the off- docino Headlands) as proposed by the Department of shore rocks and islands that are important nesting areas Parks and Recreation's California Recreational Trails and for seabirds and resting grounds for sea lions, especially Hostel Plan. those accessible by foot at low tide, access should be per- Land Divisions. New subdivisions, including simple lot mitted only for purposes related to research and resource splits, will be determined through a land classification management and should be controlled by the Department system which would set forth environmental, including of Fish and Game. ~~~~~~of Fish and Game. ~ecological, criteria. Such a system will use as a base the natural character of the area, proximity to urban service Coastal Strand, Sand Dunes, and Beaches. Sand dunes, areas, feasibility of reasonable alternatives, and economic beaches, and associated indigenous plant habitat areas demand based on a current inventory of land available are extremely fragile communities. To prevent acceler- for immediate development in the area. Local implemen- ated dune movements and loss of wildlife habitat, these tation programs, including revised General Plans and dune and beach areas should be used only to the extent supporting ordinances to be developed consistent with that no significant disruption of habitats or environmental the policies of the Coastal Plan, will reflect the criteria damage will occur. for such land divisions by specific areas as to lot size Wetlands and Estuaries. Many of the remaining wetlands minimums, density, services (either available or to be ex- * etland nd Estuaries. are of the combined wetlande tended), other limiting factors to development such as tended), s oil charactther imiting facs, s lope, strea ms, and groundwaterent such asp- and estuaries are small, but when combined they provide soil characteristics, slope, streams, and groundwater sup- important habitat for many birds, mammals, reptiles, and aes- ply, open space requirements, including views and aes- amphibians. Before any manmade alteration of a wetland thetics, and consistency with Coastal Plan policies en- thetics, and consistency with Coastal Plan policies on- or estuary is permitted, an overall plan assessing natural couraging concentration of development. protection and restoration and recreational and aesthetic values shall be prepared by the public agencies and pri- vate interests involved,for review and approval by the * Capacity Budgeting. Capacity budgeting should be utiliz- coastal agency. ed as a planning tool where appropriate, especially where access routes are constricted and residential development � Streams, Rivers, and Riparian Habitats. A major concern beyond a certain point may substantially affect recrea- of Coastal Plan policies is protecting the water quality of tional travel, such as along the southern Mendocino streams and rivers for fish and wildlife use as well as for stretch of Highway 1 where there is no major lateral domestic and industrial needs. Logging and other uses of route between the Russian River (Highway 116) to the the watersheds shall be strictly regulated, and buffers Navarro River (Highway 128). SUBREGION 1: DEL NORTE COUNTY [See Plan Maps 1-2] Del Norte County's coastline extends from the Oregon bor- the newts located on coastal rocks in the State. The remain- der south to Humboldt County. Of this 45.5-mile-long ing 25 miles of shoreline is composed of wave-swept sandy coastline, 51 per cent is open to the public. Approximately beaches. The marshes and mudflats of Del Norte County 20 miles or 44 per cent of this shoreline is composed of are valuable in furnishing food and habitat areas for an rocks and rugged beaches. These rocky habitats are often assemblage of water-associated birds and mammals. Princi- I ecologically unique or important wildlife areas; for example, pal wetland areas are located at Lakes Earl a nd Talawa and four offshore rocks (Hunter Rocks, Prince Island, Castle Is- at the mouths of the Smith and Klamath Rivers. The coast- land, and False Klamath Rock) support 46 per cent of all line of Del Norte County is a valuable scenic and natural 202 o PART IV: PLAN MAPS AND REGIONAL SUMMARIES resource area, and the adjacent coastal plain is the location Smith River to Dead Lake North. The area from Smith Riv- of over three-quarters of the county's population and its er south to Dead Lake North largely consists of sand dunes primary activity area. Public ownership in the county, near- and sandy soils. The water table is extremely close to the ly 75 per cent of its total area, limits the activity area and surface. There are several valuable wetlands scattered also the tax base of the county. throughout these dunes that are used heavily by wildlife. An open-space easement should be purchased on these lands OREGON BORDER TO CRESCENT CITY to prevent habitat destruction. The Department of Fish and (See Plan Map 1] Game should enter into a cooperative management agree- ment with the landowners surrounding these wetlands to North of Smith River. The lands north of Smith River to the enhance wildlife values and at the same time protect the Oregon border shall be maintained in agricultural use, and existing ranching programs. Consistent with Plan policies, linear development shall not be allowed along Highway 101 e itra nhi ob con tet th ues agricultural land should not be converted to other uses. to the stateline. Ship Ashore. It is recommended that modification of the ex- CRESCENT CITY AREA isting sewage system at Ship Ashore be encouraged as nec- [See Plan Map 1] essary to maintain water quality standards. Crescent City Manor. A portion of the Crescent City Manor Pacific Shores. The Pacific Shores subdivision was created subdivision is located in the middle of an unstable sand in 1963, but at the present time only two trailers occupy the dune. Another portion is located in the poorly drained area. County restrictions prevent the building of septic marshlands that are part of Dead Lake. These parts of the tanks in the area, making it infeasible for home construc- subdivision shall, as an immediate priority, be acquired by tion. This subdivision is located on sensitive sand dunes, the State and public use should be limited to foot traffic. A only portions of which are stable. Development can disturb study of the remaining portions of this subdivision should the stabilized dunes, causing them to become active. It is be done by the North Coast Regional Commission to deter- recommended that this entire subdivision continue to be mine which parcels should remain in residential zoning managed through appropriate regulation consistent with (and hence, be allowed to build out) and which areas Coastal Plan policies. A few select roads should be main- should have a zone change to allow for recreational use of tained to allow public access (foot traffic) to dunes and the property. beach for day-use activities only. Crescent City and Environs. In the Crescent City area, to maintain water quality standards set forth in the Klamath Lakes Earl and Talawa. Extremely valuable to fish and River Basin 1-A Plan, it is recommended that modifications wildlife, Lakes Earl and Talawa provide local residents and and updates be encouraged. Development of the tourists with valuable recreation opportunities. The State Bertsch-Ocean View sewage facilities to restore water qual- and a private landowner both claim ownership of these ity and remove prevalent health hazards should be lakes. If the courts decide in favor of the State, these lakes encouraged. encouraged. should be managed'by the Department of Fish and Game. If the courts decide otherwise, the State should acquire Crescent City Harbor. Maintenance dredging and necessary these lakes and maintain public access. The Federal Gov- modification to the Crescent City Harbor to insure safety ernment is also interested in the lakes as a possible wildlife should be allowed to continue. Disposal of dredge spoils refuge, and could participate in the acquisition and man- shall follow the applicable Plan policies when dredging next agement of this area. becomes necessary. Commercial fishing boats, Crescent City WI 0 Wp= -R NORTH COAST a 203 Wetlands South of Crescent City. South of Crescent City recognized and protected. To maintain the special character are wetlands that should be protected by an open space of this community, commercial development should be lirm- easement around their perimeter. Future development per- ited, and the steep, scenic hillsides above the town not be mitted near these wetlands shall not be allowed to degrade allowed to develop. them. Klamath River. Development within the Klamath River wa- Crescent Beach. From the southernmost breakwater of the tershed shall not be allowed to adversely affect the valuable Crescent City Harbor to the north of Enderts Beach, Cres- anadromous fish resources utilizing the river all year long. cent Beach is one of the most biologically productive areas for invertebrates on the North Coast. Off-road vehicles Klamath Glen. It is recommended that construction at Kla- should be prohibited from driving on this beach because math Glen of septic tank-leaching pit systems consistent compaction represents a significant threat to the survival of with Regional Water Quality Control Board and County the invertebrates. Health Department standards and Coastal Plan policies be permitted. SOUTHERN DEL NORTE COUNTY Klamath. It is recommended that modifications and up- [See Plan Map 2] dates, necessary to maintain water quality standards in the Requa. The regional importance of Requa as an historical' city of Klamath as established in Klamath River Basin 1-A site to both American Indian and white settlers shall be Plan, be permitted and encouraged. SUBREGION 2: HUMBOLDT COUNTY [See Plan Maps 3-8] derly growth, development should be allowed that is consis- tent with Coastal Plan policies. However, no further divi- Humboldt County's 121.3 miles of coastline comprise 39.1 sions of agricultural lands shall be permitted. A community miles of rocky shores and 82.2 miles of sandy beaches. The water system should be developed to provide for existing rocky shoreline provides secluded habitats for seabirds and needs and to eliminate the problems of poor water quality marine mammals. The sandy beaches of Humboldt County and quantity from existing well systems. are unsuitable for swimming but are used for fishing, strol- ling, and clamming. Boating facilities at Trinidad, Hum- boldt Bay, and Shelter Cove provide launching sites for Freshwater, Stone and Big Lagoons. Development within sport fishermen. The remote southern third of the county, the Freshwater Lagoon-Stone Lagoon-Big Lagoon watershed between Centerville Beach and Shelter Cove, is infrequent- shall take into account viewshed, watershed, and water ly used by visitors and consequently provides habitat areas quality policies and the importance of these lagoons for fish that remain relatively undisturbed. Two major wetland and wildlife production. The State should acquire the small areas, Humblodt Bay and the Eel River delta, are of state- area west of Highway 101 as an addition to Dry Lagoon wide importance in their contribution to maintaining associ- State Park and a larger area from Agate Beach to Big La- ated wetland wildlife populations. These and other coastal goon. These acquisitions would give the State Park owner- wetlands along with pasture lands and sheltered waters ship of the entire beach from Freshwater Lagoon to Patricks comprise the center for wintering waterfowl in California Point. north of San Francisco Bay and are essential in maintaining Lagoon Subdivisions. The Big Lagoon and Big Lagoon Park Lagoon Subdivisions. The Big Lagoon and Big Lagoon Park Pacific Flyway waterfowl populations. Pacific Flyway waterfowl populations subdivisions should be allowed to build out consistent with Plan policies and the North Coast Regional Commission's More that 34 per cent of the coastline of Humboldt County Plan policies and the North Coast Regional Commission's is owned by the public. Combined with private lands avail- blanket conditions for these areas. able to the public, this increases the percentage available to PATRICKS POINT TO MAD RIVER public use to more than 65 per cent. The public land along the Humboldt coast provides the beach visitor with experi- [See Plan Maps 4-5] ences ranging from the ruggedness of the King Range National Conservation Area to the quiet beauty of the Trinidad Area. The Trinidad area, consisting of North Trini- Redwood National Park. dad, Trinidad, and Moonstone should be considered a spe- cial community, and a design review committee should be Clustered around Humboldt Bay are the industrial, com- formed to review future development in these areas to keep mercial, and population centers of the county; 50 per cent it consistent with the character of the community. Special of Humboldt's 99,642 residents live in the bay area. The consideration should also be given to development in the bay in addition to its role as a wildlife area provides water- Westhaven area. To this end: borne transportation for Eureka industry and recreation. The Tsurai Village should be reconstructed in an authen- �The Tsurai Village should be reconstructed in an authen- DEL NORTE COUNTY LINE TO PATRICKS POINT tic manner, and commercialization of it should not be O ~~~~~[See Plan Maps 3-4] ~allowed. The College Cove area of Trinidad State Beach shall be Orick. To protect valuable resources and yet provide for or- designated a limited-use area, and erosion control mea- 204 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES sures undertaken to prevent further problems along the � It is recommended that a public bus system be estab- trails and parking areas. Designated parking areas should lished extending from Trinidad south to Fortuna and Rio be constructed and managed by the Department of Parks Dell. This system should tie in with existing bus systems and Recreation. (Arcata and Mad River Transit and Bishop Transit). The system could be developed through an intercity coopera- * Trinidad Head should remain undeveloped and in State tive similar to a regional transportation commission ownership. Moonstone-Westhaven. In Moonstone-Westhaven a septic � The development occuring in McConnahas Mill Creek Moonstone-Westhaven. In Moonstone-Westhaven a septic tank maintenance program should be developed as part of and Luffenholtz Creek shall take into consideration the tank maintenance program should be developed as part of and Luffenholtz Creek shall take into consideration the an existing community services district to insure high water importance of water quality from these creeks supplying quality standards. In addition, a detailed study should be Trinidad with its water supply. A study should be under- quality standards. In addition, a detailed study should be Trinidad with its water supply. A study should be under- done on the feasibility of a sewer system for this area. taken to determine the feasibility of providing water ser- vice to North Trinidad. Even an expansion of the Luffen- McKinleyville. Good airport and highway access have made holtz or McConnahas Mill Creek facilities might not be McKinleyville the fastest growing part of the county. Resi- sufficient to meet the needs of proposed development in dential expansion has been scattered and widespread Trinidad and North Trinidad and planned development through the conversion of much agricultural land. Most res- will have to take this into account. It is recommended idential development in the area utilizes septic systems; that this area consider the formation of an underground however, this area is underlain by a natural hardpan condi- utility district. tion that prevents adequate percolation of effluent, and the * Trinidad harbor boat launching facilities should be ex- resulting serious health hazard necessitated the imposition panded and improved for commercial and recreational of a building moratorium. Because of these factors, it is fishing. The launching faciities and restaurant should re- recommended that a wastewater facility be developed that main in private ownership. meets regional water quality standards, as indicated in the North Coastal Basin 1-B Plan. All remaining prime agricul- * The State should, as an immediate priority, acquire an tural land shall be protected from conversion to non-agri- open space easement west of Patricks Point Drive and cultural uses. Stagecoach Road to protect steep coastal headlands and the view corridor in this area; an eight-acre beach and Little River to Mad River. The State should acquire the bluff parcel north of Trinidad for general recreational land west of Highway 101 from Little River State Beach use; and large undeveloped parcels north of Little River north of Moonstone Beach. Day-use only of Clam Beach and west of Scenic Drive to Crescent City for beach County Park should be maintained; no overnight camping access and recreation. facilities should be allowed. Off-road vehicle access to sand Surf fishing, Little River (near Trinidad), Humboldt County .77-4I ~c~~P.X7_~;pf i- *-=T 7= I NORTH COAST � 205 dunes and beach areas from Little River to north of the capacity of the existing sewer facility with priority given to Mad River should be prohibited until studies are conducted commercial fishing support facilities. Continued use of the to show the effects of sand compaction by off-road vehicles harbor and commercial fishing facilities should be allowed on the invertebrates inhabiting these beaches. The beach is and future land divisions in the adjoining areas limited. readily accessible by foot from a frontage road that paral- lels the beach. The Mad River estuary is important for sal- Humboldt Bay South Spit. It is recommended that current mon and steelhead resources, and it should remain unde- uses on the South Spit be permitted to continue consistent veloped except for those projects that may enhance the with Plan policies and with strict enforcement of the county veloped except for those projects that may enhance the ordinance that requires off-road vehicles to stay off vege- fisheries resource. tated dunes but allows them access to the seaward side of HUMBOLDT BAY AREA these dunes. Phasing out the off-road vehicle use on the beach should be seriously considered, and a study made to [See Plan Maps 5-6] determine possible alternative inland sites. Eureka and Arcata Areas. Linear development along High- Eel River Floodplain. In the Eel River floodplain only devel- way 101 between Eureka and Arcata shall be prohibited to opment necessary for dairy support shall be allowed; these insure open space values, protect agricultural lands and facilities should be required to withstand periodic flooding. wildlife habitat, and maintain the integrity of the two com- Conversion of agricultural lands now in use as pasture shall unities. Buildout should be allowed in the developed areas not be allowed. consistent with Coastal Plan policies. The Eureka water- front shall be considered a special neighborhood. The pas- Eel River Salt Marsh. Because of past salt marsh destruc- ture lands between Eureka and Arcata including the pas- tion in Humboldt County and high biologic value of this ture lands on the Arcata Bottoms that are now in economic habitat type, the salt marshes north of the mouth of the Eel units shall remain in agricultural production. Development River around McNulty Slough and from the mouth of the on these pasture lands should be limited to facilities that Eel River southward to Centerville Beach shall not be con- are related to or support the present land use. These lands verted, reclaimed, or otherwise destroyed. It is recommend- shall not be zoned for industrial, commerical, or residential ed that,,as an immediate priority, the State acquire an open development, space easement and that the Department of Fish and Game enter into a cooperative management agreement with the Mad River Slough. This slough and the islands within it are landowner to protect and enhance wildlife values in the lined with several acres of salt marsh. To prevent the de- area. struction of this diminishing habitat, the State should, as an immediate priority, purchase an open space easement along Centerville Beach. Expansion of the Centerville Beach the slough and on the islands in the slough. The Depart- County Park should be allowed when demand increases. ment of Fish and Game should enter into a cooperative Continued use of off-road vehicles on the beach should be management program with the landowners to manage for permitted consistent with Coastal Plan policies and with the wildlife protection. Public access for duck hunting should county ordinance requiring vehicles to stay seaward of the be included in a management plan. vegetated dunes. Phasing out the off-road vehicle use on the beach should be seriously considered and a study made Humboldt Bay North Spit. It is recommended that, on the to determine possible alternative inland sites. North Spit, the section of coastal dunes lying west of the new Samoa Boulevard and south of the town of Manila to Fortune, Loleta, and Ferndale. It is recommended that mod- the Coast Guard Station remain undeveloped. The State ifications be made, necessary for existing watersewage ifications be made, necessary for existing water/sewage should, as an immediate priority, acquire an open space systems to meet regional water quality standards, as indi- easement across these dunes for the purpose of preventing cated in North Coastal Basin 1-B Plan. No further land divi- future development on them. The sand dunes lying north of sion of agricultural land in Loleta shall be permitted. The the town of Manila to the mouth of the Mad River are unique character of the business district of Loleta shall be largely undeveloped at the present time. These dunes maintained. The City of Ferndale shall establish a city de- should remain undeveloped. If a noncompatible use appears sign review committee. imminent, the State should obtain the right of first refusal. A safer site should be sought for the gun club located adja- SOUTH OF FERNDALE cent to Bureau of Land Management and Nature Conser- [See Plan Maps 6-71 vancy land, at one of the wetlands scattered throughout these dunes. Bear River. Bear River supports good runs of steelhead and silver salmon in the winter. Since public fishing access is Humboldt Bay. Humboldt Bay is an extremely important prohibited, it is recommended that, as an immediate priori- coastal estuary. Its natural resources offer the people of the t, i ecmend th a iedt proi ty, a public easement along the river be acquired to provide area and the State diverse economic and recreational use general recreation and fishing access. opportunities. It is vital to protect the biological integrity of the bay in order to maintain its capacity to support fish and Petrolia. Petrolia should be considered as a special com- wildlife. Maintenance dredging should be allowed to contin- munity. ue to insure the'economic viability of the bay as a harbor and shipping facility. Spoil dumping shall conform with Southern Humboldt Coastal Trail Segment. It is recom- Plan policies, and will probably be offshore rather than on mended that an initial coastal trail segment extending from lands adjoining the bay. Development or degradation of the the Mattole River to the King Range National Conservation salt and fresh water marsh areas of the bay shall be prohib- Area be established. This trail shall not remove agricultural ited. Commercial fishing facilities should be accommodated land from productive use but rather be established along consistent with Coastal Plan policies. the beach where feasible. King Salmon and Fields Landing. Buildout of the King Sal- Shelter Cove. The Shelter Cove Rancho, composed of 40- to mon and Fields Landing subdivisions should be allowed to 80-acre parcels, lies on steep hillsides and because of this 206 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES high geologic risk, no development shall be allowed. It is North Coast Regional Commission in cooperation and con- recommended that some existing lots at Shelter Cove Sea sultation with the Trinidad City Council, Humboldt County, Park now serviced by sewer and water systems be allowed and State and Federal agencies with jurisdiction in this to build out consistent with geologic hazard requirements. area. The remaining lots lie on steep, unstable hillsides; land- slides are a common occurence and pose a hazard to any Special Study Area-Trinidad Bay. A comprehensive, de- development. Selected lots should, as an immediate prior- tailed study of the Trinidad Bay should be undertaken by a ity, be acquired to protect the viewshed and archaeological cooperative effort of the City of Trinidad, Humboldt County and soil resources; the possibility of adding the parcels to Planning Department, Department of Navigation and Ocean the King Range National Conservation Area shall be ex- Development, and the Army Corps of Engineers in conjunc- plored with the Federal Government. Priority should be tion with the North Coast Regional Commission to deter- given to acquisition of shoreline lots, especially between the mine the needs of and modifications necessary to provide Shelter Cove airport and the ocean; lots near the bluff at for a safe, all-weather harbor facility and harbor of refuge. the south end of the subdivision; and parcels of special In addition, such a study would determine the feasibility of archeological importance. constructing a breakwater between Trinidad Head and Pris- oner Rock and the consequent carrying capacity for mooring Special Study Area--Orick. A special study of the Orick facilities, assuming that local commercial fishermen would area will determine an appropriate scale for the community be given priority on 75 per cent of the moorings. and will take into consideration the pressures of agricultural land willconvierstion the pressures of agricultural Special Study Area-McKinleyville. Public health hazards resulting from septic tank failures (which have led to a Special Study Area-Patricks Point to Trinidad. A special building moratorium over much of the area), agricultural study for the area from Patricks Point to Trinidad should land conversions, absence of zoning controls, and substan- determine the allowable buildout east of Stagecoach Road dard building conditions must be addressed in a special and the potential for recreational vehicle facilities to handle study, including all of the developed portions of McKinley- the overflow of tourists from Patricks Point State Park. Pre- ville and outlying scattered lots. liminary analysis suggests that a minimum of two acres per single family residence might be appropriate for any per- Special Study Area-King Salmon/Fields Landing. The ap- mitted residential development. An open space easement pearance and design of this community, as well as the west of Patricks Point Drive and Stagecoach Road has been functional role of this area in the regional economy, should recommended as a means of protecting the view corridor in be evaluated and recommendations made in a special this area. study. Special Study Area-Shelter Cove. A special study of this Special Study Area-Trinidad. A more detailed develop- area should be undertaken to study geologic hazards, septic ment plan should be prepared for the Trinidad area by the tank problems, and visual problems. SUBREGION 3: MENDOCINO COUNTY [See Plan Maps 9-13] Mendocino's coastline is dominated by rocky beaches and flect a New England flavor. These communities and the headlands over 84 miles of its length interspersed with 36 scenic and natural resources are the attraction of the miles of sandy beaches. Of the 120 miles of shoreline, 10 Mendocino coast. per cent or 12.6 miles is open to the public; 11 of these To protect these resources and to carry out the objectives oft miles are in existing State Parks. The Noyo, Ten Mile, Big, the Coastal Plan, the general recommendations for the Albion, Navarro, Garcia, and Gualala Rivers, along with 19 Mendocino County subregion are as follows. other coastal streams, rivers, ponds, and creeks, provide salt and fresh water marshes, mudflats, and riparian habi- � Prior to construction of any development in subdivisions tats which support many forms of wildlife. The rugged ter- or in areas of small-lot concentration, all applicable re- rain, cold water, and other characteristics which make the quirements of the Regional Water Quality Control beaches unsuitable for swimming reduce the current Boards, the Coastal Plan, and the county health depart- amount of human use and will probably keep it at a low ment shall be met. Development that would degrade level in the future, offering a minimum threat to the wild- coastal waters, such as in areas of failing septic tanks, life resource. The wetlands of Mendocino County have not shall not be allowed until adequate facilities are pro- yet been subjected to intensive development,' either, pro- vided. viding an important opportunity for preserving this valuable habitat type. � Recreational impact studies shall be conducted by the North Coast Regional Commission for the following coast- The coastal shelf of Mendocino, one of the largest and least al watersheds: Gualala River, Garcia River, Navarro Ri- populated coastal counties, contains one-third of the coun- ver, Albion River, Big River, Noyo River, and Ten Mile ty's 52,000-plus population. Numerous small corrmunities River. Such studies shall determine the recreational im- and towns, such as Gualala, Mendocino, and Westport, re- pact upon these areas of critical biological concern. NORTH COAST � 207 * A comprehensive study of boating needs along the Men- Buffer areas shall be maintained around the osprey nests as docino coast shall be undertaken by local government, well as along the creek. Construction activities within this the Department of Navigation and Ocean Development; watershed should be managed to keep high water quality and the North Coast Regional Commission. and to minimize effects on nesting osprey. Logging activi- ties should not start until their nesting season is over. * Proposals providing for public transportation service in two areas of coastal Mendocino should be encouraged. Initial Northern Mendocino Coastal Trail Segment. It is rec- The feasibility and needs of the two proposed systems - ommmended that an initial segment of the coastal trail the MCCPC bus service from Fort Bragg to Willits and from the King Range National Conservation Area to the De the North Coast Institute bus service from Elk to Santa Vilbis Ranch be developed. This system shall tie into the Rosa - should be determined. trail system at Usal Creek, which is proposed for acquisi- tion. Specific recommendations to carry out the Coastal Plan are Cottoneva Creek. Cottoneva Creek has a small estuary at its outlined below. ~~~~~~~~Cottoneva Creek. Cottoneva Creek has a small estuary at its outlined below. mouth and a valuable riparian corridor along its banks. As HUMBOLDT COUNTY LINE TO FORT BRAGG a former lumber schooner port, it is an historically signifi- cant area. This area should, as an immediate priority, be [See Plan Maps 9-11] acquired by the State, and its present day-use status main- Usal Creek. Usal Creek contains the largest concentration tained. of osprey nests on the West Coast. The osprey feed in the estuary and nearshore waters on various fish species. Ocean Meadow. Ocean Meadow, a 31-acre planned subdivi- Mendocino 36 of : AS'''' _00 H e-. _E~~~~l '1 _l~~~~~ 208 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES sion on coastal grasslands, should, as an immediate prior- is equally extensive and 150 acres should be acquired for ity, be acquired for open space and agricultural use. preservation of the estuarine habitat. Ten Mile River. Ten Mile River is one of the most impor- Albion River Wetland. The 145-acre Albion River Wetland tant estuaries along the Mendocino coast with an extensive should be acquired for preservation of its estuarine habitat. wetland habitat. It is recommended that 170 acres be ac- quired as an immediate priority for preservation of the es- Elk and Elk Creek Wetland. To preserve and maintain the tuarine environment. Off-road vehicles and trail bikes unique character of Elk, linear development along Highway should not be allowed on vegetated sand dunes and bluff- 1 shall be restricted. To protect the Elk Creek estuarine tops in the oceanfront area including the Ten Mile Beach habitat, 720 acres should, as an immediate priority, be ac- area. quired. Cleone Acres. Continuous strip development should not be Irish Beach. Expansion of the Irish Beach subdivision shall allowed along Highway 1 in all undeveloped areas and not be allowed since it is not compatible with this scenic north of Cleone Acres. area and the capacity of existing service facilities. New resi- dences should be located either within the existing subdivi- FORT BRAGG TO SONOMA COUNTY LINE sion or in Point Arena. [See Plan Maps 11-13] Hunters Lagoon. The largest freshwater marsh in Mendo- Fort Bragg. To insure adequate water supplies and the cino County, covering 60 acres, Hunters Lagoon is currently maintenance of water quality, future development in Fort threatened by development of homesites on its south side. Bragg shall be allowed only if compatible with the existing This vital freshwater wetland should be acquired and re- and proposed water and sewage systems. The kelp beds stored as feasible to its original natural state. near Fort Bragg, Point Arena and Saunders Reef are a very Point Arena. High-intensity development, service centers, suppimited resource in g, Mendoclivingo County. Because these beds and commercial activity should be concentrated in areas of supply important feeding, living, and shelter areas for Point Arena already committed to development to prevent numerous species of birds, fish, and marine mammals and Point Arena already committed to development to prevent numerous species of birds, fish, and marine mammals and uncontrolled growth. invertebrates, it is recommended that no commercial kelp harvesting be permitted. Whiskey Shoals. To reduce visual impact on the grassland Noyo Harbor. Regular maintenance dredging should be area and to prevent the inappropriate use of this area, the permitted at existing Noyo Harbor facilities. Refuge facili- Whiskey Shoals subdivision should, as an immediate prior- ties should be maintained at Noyo Harbor and the smaller ity, be acquired for open space and agricultural use. coves along the coast. Gualala. Height of development and service facilities should Todd Tract. The Todd Tract north of Ocean View Drive be limited to the existing scale of development and coordi- should be acquired to provide day-use facilities for the Fort nated with North Central Regional Commission guidelines. Bragg area. Iverson Point to Gualala River. Conversion of timberland to Caspar. As a community of special character, Caspar has residential use should be prevented. historical significance and is located in a scenic area. Con- sistent with Coastal Plan policies, service facilities for the Subdivisions and Lot Splits. Special studies should be under- subdivision near Caspar shall be limited and open space taken in three large areas (Fort Bragg to Navarro river, Mallo should be maintained. Pass Creek to Garcia River, and Iversen Point to Gualala River) to evaluate the impact of lot splits and subdivisions within the Mendocino. To protect the unique character of Mendocino, coastal resource management area of Mendocino County. The appearance and design guidelines shall be rigorously studies shall be undertaken jointly by the Regional Commis- applied west of Highway. 1. Consistent with Coastal Plan sion and the Mendocino County Planning Department. Objec- policies, current growth may require a water system. tives of the studies include preventing conversion to residen- tial uses of timberlands that remain in economic units and Big River. The importance of Big River estuary is compar- limiting new development to existing community boundaries. able to that of Ten Mile River. The wetland marsh habitat S NORTH CENTRAL COAST * 209 NORTH CENTRAL COAST The North Central Region covers 140 miles of coastline in North Central Coast Subregions Sonoma, Marin, and San Francisco Counties. MENDOCINO Sonoma County. The northernmost county, Sonoma, has a rugged, rocky coastline shared in roughly equal proportions by second-home development, public parks and grazing cat- * tie. Coastal problems center on the tremendous future cornm- mitment that has been made to second-home subdivisions " by the county government, and how to keep the remaining coast physically and visually accessible to visitors. Marin County. Much of Marin County's coast is in public , SONOMA ' ownership, except for a few coastal villages surrounded by parklands. Tomales Bay is an important feature in the Ma- Santa Rosa , rin landscape, both as an estuarine area of environmental ) significance and as a reminder of the geologic feature that has so influenced the region's coastal landscape - the San k 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 California citizens is similar, because it is visitor-serving \ facilities catering to "outsiders" - even in parks - that" ,s come under strong opposition. P :-y- MARIN San Francisco. In San Francisco, the sand dunes that once \ RafaelSan made up the coastline were so long ago covered over with - ? i-: / homes there is little natural coastline left, and access is hardly an issue when city sidewalks reach almost to the i sea. Accommodating newcomers, however, is an issue even . _ in urban San Francisco, though the unwelcome newcomers SAN FRANCISCO I here are the bland four-story apartments that are randomly . replacing the small aging houses that represent San Fran- cisco's last bastion of single-family living. i Plan Proposals. The Coastal Plan proposes that develop- MATE ment on presently open lands within the coastal zone of Marin, Sonoma and San Francisco Counties be minimized. More people should be able to enjoy the shore and its won- ders through the reservation of road capacity for visitor tra- vel, provision of coastal trails and campgrounds, and acqui- The recommendations that follow represent applications of sition of key coastal properties. Protection and support the Plan policies to the geography of the North Central should be given to coastal-dependent activities such as Coast Region. The recommendations are presented in north agriculture, commercial fishing, timber harvesting, aqua- to south order, and are supplemented by Plan Maps. The culture, and marine research. Portions of the coastline are maps for this region contain supplemental map graphics designated as protected habitat areas and some places that delineate urban expansion areas, campground, and vis- should be scheduled for restoration. The construction of itor-enterprise locations. In the appendix following the homes and small-scale commercial enterprises should con- north-to-south narrative are recommendations relating to tinue, but they should be limited, for the most part, to al- the entire region on transportation, access (use) levels, ready subdivided lots in existing communities. trails, and restoration. SUBREGION 1: NORTH SONOMA COAST [See Plan Maps 14-16] The northernmost 44 miles of Sonoma County, from the wood and fir forests cover the undulating ridgelands of the Gualala River on the north to the Russian River Valley on coastal range. The San Andreas Fault Zone slices along this the south, are spectacularly scenic, rugged, and rural. Red- stretch of coast, forming the Gualala River Valley. Much of 210 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES the area is geologically active and unstable. Even the more junction with Skaggs Springs Road. The possibility of giv- level terraces adjacent to the ocean are poorly drained and ing priority to public transit and emergency vehicles in the highly susceptible to erosion and soil slippage. There are use of these roads should be considered. No expansion of few sandy beaches; most of the shoreline is rocky with these two roadways, however, should be undertaken until numerous offshore seastacks. At the base of steep cliffs are plans and zoning patterns are adopted which will protect tidepools and rocks rich in intertidal life. Ample rainfall (40 the large-lot, resource-production characteristics of lands to 75 inches per year) creates a lush vegetative cover, and between Highway 101 and the coast through which the the forests and grasslands provide rich wildlife habitat. roads would pass. Cattle and sheep range across the lightly forested land, and logging has become a sustained activity in areas of denser Buildout Rate. The Coastal Plan provides that presently tree growth. The many tiny coves along the shoreline that subdivided, improved, legally buildable lots at The Sea once gave minimal protection for the loading of lumber Ranch continue to be developed at the rate of approximate- schooners are now frequented by skindivers and fishermen. ly 50 per year (the historic rate of development) until such time as further studies on road capacity and other services determine that buildout is inadvisable. In the meantime, Coastal Highway and Subdivision Buildout. Virtually all traffic-generating effects should be monitored and a thor- land transportation between the Navarro River and Jenner ough study of the entire coastal road system between the (a distance of 86 miles) is confined to Highway 1. Heavy Navarro and Russian Rivers should be undertaken utilizing commitments have been made to second-home subdivisions this data. The State Coastal Commission shall review a pro- along this stretch. The traffic generated by these subdivi- gress report on this traffic study within two years of the sions as they build out, combined with anticipated increases Legislature's creation of the continuing coastal management in visitor traffic, creates a formidable planning problem. On agency. Until there is reliable evidence that the road sys- one.hand, major alterations of the coast road system will tem is adequate, there should be no further subdivision of invol e major costs as well as a significant transformation land in this entire area. of the\coastline; on the other hand, keeping the road in its The established environmental deposit fund should continue present configuration is a commitment to bumper-to- preset cofiguatio is commtmen to umpe-to-The established environmental deposit fund should continue bumper traffic in the future. to be used to implement the adopted overall conditions for The Sea Ranch. Retention of The Sea Ranch Association's The Sea Ranch. The Sea Ranch is the largest second-home existing architectural controls is encouraged, as well as development on the northern California coast. The develop- Commission guidelines for reducing the scale and bulk of er, Oceanic California, received master plan approval from dwellings on lots adjacent to Highway 1. Concurrent with Sonoma County for a 5,200-lot subdivision in 1964. To date, this is the need to remove about two per cent of the rows of 2,267 lots have been subdivided and 1,765 of these sold; so planted trees west of the highway to retain several out- far, only 350 dwellings have been built, standing views that would be lost when the landscaping matures. Because of poor soil conditions over much of the In evaluating the effects of various levels of buildout at The matures. Because of poor soil conditions over much of the area, a comprehensive septic tank monitoring program Sea Ranch, the North Central Commission considered four should be established. A total of 1,400 lots at The Sea should be established. A total of 1,400 lots at The SeaO general options: (1) a Sea Ranch of 4,000 dwellings (the de- Ranch will be ultimately served by individual septic tank veloper's current plan); (2) a Sea Ranch of 2,000 dwellings systems, with the remainder served by two land disposal (which approximates the number of lots subdivided and im- sewage plants. sewage plants. proved); (3) a Sea Ranch limited to about 800 dwellings (a density which an initial traffic study indicated could be ser- viced by the existing road system); and (4) a Sea Ranch Access at The Sea Ranch. Additional access to public tide- limited only by dwindling market demand . lands at The Sea Ranch is absolutely necessary to protect and preserve the public's right to reach the shoreline. The The amount of traffic that would be generated by this size- beautiful Gualala Point Park, dedicated to the county by able development, accessible only by two-lane roads of lim- Oceanic, cannot be used as a reason to exclude the public ited capacity, is a key issue in determining an appropriate from the remaining 10 miles of public tidelands at The Sea buildout figure. Refinements to the initial traffic study, per- Ranch. In the 10 coastal miles of The Sea Ranch, the only formed with assistance from the Metropolitan Transporta- public access is at the extreme northern end of the develop- tion Commission and the Department of Transportation, ment along two trails 20 feet wide, adjacent to the park. concluded that a development of 4,000 homes in this loca- Units 8 and 34A and an access path through Unit 36 should tion would overload the capacity of the road system. Histor- be purchased to provide for adequate access, parking and ic and current traffic count information for the Sea Ranch use of beach areas, as well as to protect public views to the and the Sonoma Coast is fragmentary, making it impossible water by precluding development. The Gualala Park should to develop a firm estimate of precisely how much second be extended southward along the blufftops as shown in the home development could be permitted without overloading plan maps. the roads. It appears that, taken together with other future South The Sea Ranch. Except for several existing parks, Nort Coat trffic tha theimpat ofthe urretlySouth of The Sea Ranch. Except for several existing parks, North Coast traffic, that the impact of the currently subdivided lots (2,267) may be just within the capability of much of this subregion's dramatic coastline south of The the road system. (Adopted Coastal Plan policies call for the Sea Ranch is in private ownership and in use as grazing retention of Highway 1 as a two-lane road, with some minor land. The Coastal Plan calls for practically all of the unde- retention of Highway I as a two-lane .road, with some minorveodladbtenHgwyIndhesrliefm safety improvements, but with no major redesign which veloped land between Highway 1 and the shoreline from would imncrease nsbuithns capacity.) jredThe Sea Ranch southward to Jenner to be retained in open space. Much of this area is in agricultural production, and Future improvement of the lateral Skaggs Springs Road some ranchers encourage public use of the shoreline by would relieve the traffic situation significantly. Privately selling trespass permits. There are outstanding views of the owned Kelly Road, connecting Gualala with Cloverdale, coastline across most of these properties. The present pri- should be considered as an alternate route to the coast and vate agricultural uses of these lands should be continued, could be improved to public road standards or used in con- but they should be acquired by the public in cases where NORTH CENTRAL COAST * 211 development pressures threaten their loss. Access to the should remain and any use adjacent to public lands and coastline should be guaranteed by public purchase of trails trails should be planned to minimize conflicts between visi- along the coastline, but these should be designed in accor- tors and residents. dance with Coastal Plan policies calling for public mainten- ance and policing of the trail system and maximizing pro- Timber Cove. The Plan approves about 214 lots at the tection of agricultural lands, such as by using existing pub- Timber Cove subdivision for development; this includes all lic roads or rights of way. In cases where public acquisition of the subdivided lots except those with septic tank prob- is appropriate there should be a continuation of agricultural lems that are within the Timber Cove Creek watershed, production and selective timber harvesting. Approximately which is the subdivision's water source. The lots in the 16 miles of coastline between The Sea Ranch and J.enner Nineve Drive terrace section should be acquired for public should be included in the category of lands designated for view protection and coastal access for nature study and immediate acquisition, in recognition of their extremely skindiving. Limited private development should be permit- high scenic value, ted on the Windermere Point terrace, adjacent to the his- toric Fort Ross/Timber Cove settlement. Design of such de- Stewarts Point to Russian Gulch. At Stewarts Point a velopment must be very sensitively handled, as this 24-acre number of buildings remain of a settlement which was once parcel slopes gently to the edge of the seacliff and view a coastal lumber port where timber was dropped "by wire" protection is of primary concern. to the pitching decks of schooners anchored offshore. It is proposed that this area be preserved as an historic park Fort Ross. More than 4,000 acres of parklands should be and restored with either private or State funds. Salt Point added to Fort Ross State Historic Park; this would make it State Park should be expanded in area and some 200 addi- the largest State Park in the region. This acquisition has a tional campsites built. The existing Stillwater Cover Re- high priority because it will protect many miles of pristine gional Park is proposed for expansion in three directions: coastline, open meadow terraces, and forested upland west to Ocean Cove along the bluff and in the meadow area slopes around the historic Russian stockade for public ac- east of the Ocean Cove Store; north to include all of cess and use. This expanded park should reach from the the Stockhoff Creek Canyon; and south along the coast ocean beaches to Seaview Road, and from Kolmer Gulch on to the Timber Cove subdivision, the north to Mill Gulch on the south and include an historic interpretive center, overnight camping facilities, skindiving Ocean Cove. The "private visitor facilities" to be expanded coves and day-use areas. The open rangelands should be at Ocean Cove should include only those lands of the pres- leased back for agricultural uses and selective timber har- ent motel, restaurant, store and Stillwater Cove Ranch. The vesting permitted. scattered clusters of homes along this portion of the coast SCUBA divers, Salt Point State Park, Sonoma County 212 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES Road Improvements. The Seaview-Plantation Road should tation and utility transmission facilities, no construction be somewhat widened and improved from Highway 1 to should take place within the floodway (the widest extent of Timber Cove Road to provide an alternate access to the the riverbed (itself). Within the adjacent floodplain subject north Sonoma coast, both to avoid the slope failure prob- to frequent (10-year) flooding, development should be lems of the parallel segment of Highway 1, and to get strictly limited to uses which do not restrict the flow of above the often fog-bound cliff route. The design of im- flood waters and which can withstand periodic flooding provements to the segment of Highway 1 between Jenner (open-character, recreational, industrial, or agricultural and Seaview Road should receive careful study since this uses, but not residential or community-serving commercial appears to be a major bottleneck to north coast traffic. uses). Within the 100-year floodplain (which includes most of the village of Duncans Mills), no development should be Jenner Beach-Russian Gulch. Almost 850 acres at Jenner allowed which does not conform to the Federal (HUD) Beach-Russian Gulch (which is not to be confused with floodplain insurance program guidelines. None of the low- Russian Gulch in Mendocino County), including almost five lying lots on Steelhead Blvd., should be considered for per- miles of beach and bluff areas, are proposed as a potential manent construction. Optimum uses in the 100-year flood- acquisition. Since it appears, however, that the owners of plain are agricultural, open space, parklands, and camping this property may be able to provide off-highway parking sites. areas, comfort stations, trails, day-use areas, and overnight facilities (east of the highway in Russian Gulch), the land is recommended for deferred rather than priority public acqui- Sonoma County has enacted a floodplain ordinance that sition. Access provisions should be developed in a manner prohibits placing residential, commercial, and industrial de- that would not affect public rights to use these beaches that velopment within the floodway of the Russian River. How- may have been created by historic public use. Should ever, detailed mapping of the flood-prone area (the flood- private plans to create the equivalent of a State Park fail, way, 10-year floodplain, 100-year floodplain) has not been the land would again receive a priority acquisition status. A completed by the Corps of Engineers. This mapping should similar approach would be applied to all coastal properties be completed prior to the adoption of precise plans for the where private efforts are able to develop management plans area. consistent with Coastal Plan objectives for their public use, view enjoyment, or resource protection. Plan policies require careful control of mineral extraction (sand and gravel) within the floodplain, based on ecological Russian River Area. At Jenner, geologic hazard and septic and aesthetic concerns. Existing mineral extraction activi- tank constraints dictate that some consolidation of the re- ties should not be expanded. Every effort should be made maining 200 lots will be needed prior to any further approv- to insure an adequate supply of sand to preserve the al of construction. This will effectively restrict growth to beaches which depend on the river for sand replenishment, about 200 units located in the existing village area, as no especially in light of the possible construction of the Warm further division of open lands adjacent to the village will be ping pstream Springs Dam upstream. permitted. 0 Resource Production Lands of the Subregion. The Plan poll- At Willow Creek, the California Department of Parks and cies provide that, in cases where agricultural activities have Recreation is currently negotiating for the purchase of 500 ceased to be feasible (determined according to procedures acres, including the valuable freshwater marsh area adja- described in the Plan), some development may be permit- cent to the Russian River. The Coastal Plan recommends a ted in portions of the lands outside of the areas proposed large State Park facility in the Willow Creek Valley, cover- for development or special protection. Policies specify that ing more than 1,000 acres. This valley is close to Highway uses such as dude ranches, summer camps, or hunting 1, yet is protected from direct coastal winds and fog, mak- clubs which would retain the open character of the land ing it an ideal complementary area to the nearby day-use should be given first priority in determining alternate uses. public parks located directly on the coast. All overnight In some cases, very low densities of residential develop- camping facilities and day-use areas shall be located away ment would be permitted, but it would be required that this from the sensitive marsh area at the lower end of the occur as clustered units which would allow continuation of valley. The determination of size and scale of campground agricultural production on most of the land. development should be based upon careful study of the capacity of this area. On lands where agricultural activities have ceased to be Visitor-serving facilities should be concentrated in Duncans feasible, gross densities would be limited to between one Mills along with additional residential and commercial uses dwelling per 50 acres on level land to one unit for 200 acres in keeping with the scale village. The number of future for steep, inaccessible lands. At such densities a maximum in keeping with the scale village. The number of future campsites in the area should be about double the present of about 500 additional dwellings could be built outside the 205. areas proposed for village expansion in this subregion. However, since agricultural or timber harvesting uses are The forested areas of this coastal subregion provide valu- still viable over much of this area, it is expected that no able osprey and heron habitat. Timber harvesting plans more than 100 dwellings would be added to this subregion should be designed to protect this habitat; at a minimum, during the next several decades. there should be no cutting of timber within a 300-foot rad- There are a number of valuable natural areas in this sub- ius of any osprey or heron nest from March through region which are in private ownership and where present August, the nesting season. During the remainder of the owners are managing t hem consistent with the Coastal owners are managing them consistent with the Coastal year, September through February, cutting may occur to year, September through February, cutting may occur to Plan. However, should any of these areas be threatened, within 50 feet of the nest provided that selective cutting is then public acquisition should proceed. These natural areas then public acquisition should proceed. These natural areas employed and the nesting tree is not damaged and "osprey include osprey and heron include osprey and heron nesting areas on private forest snags" remain. lands, two ponds north of Plantation, Jenner Pond, Mark- Russian River Floodplain. Any building in the flood channel ham Pond, Foresti Pool, and the gravel floodplain below of the Russian River interferes with the river's capacity to the Duncans Mills bridge. carry flood waters; therefore, except for essential transpor- NORTH CENTRAL COAST � 213 SUBREGION 2: SOUTH SONOMA COAST [See Plan Map 16] The 15 miles of coast from the Russian River to the Marin Salmon Creek. At the settlement of Salmon Creek, a severe County boundary at the Estero Americano differ from those septic tank failure rate has been reported. While construc- further north in several ways: The coastal ridge softens in tion on the remaining several dozen lots in this settlement its contours and the coastal terrace broadens. Except for is otherwise consistent with Plan objectives, further con- scattered plantings of cypress and eucalyptus, the land is struction should be halted until the Regional Water Quality treeless and open. A very narrow band between the shore- Control Board approves recommendations for a long-term line and the coast highway has been developed as the solution to this pollution problem. Even when construction Sonoma Coast State Beach. While much of the area inland is authorized, it appears that no more than 20 additional is now used as grazing land, there are interspersed patches dwellings could be adequately served by septic tanks in the of subdivision, both developed and speculative. The settle- tract. ment of Bodega Bay, with a permanent population of about A number of environmental threats to the Salmon Creek 600, represents the greatest concentration of dwellings in watershed can affect its value as a habitat and a spawning this section of the coast. ~~~watershed can affect its value as a habitat and a spawning this section of the coast. stream-ranging from saltwater barrier construction at its While the land in this subregion is now relatively barren, mouth to logging at its upstream source. For this reason the sea coast is spectacularly attractive. The sea, cutting in- the Salmon Creek watershed deserves special watershed- to coastal sandstone, has sculpted a shoreline that includes wide study and regulation and is therefore included within expanses of sandy beaches punctuated with low cliffs and the coastal zone. At the upper reaches of the watershed is a offshore seastacks. Bodega Bay is a sheltered harbor that is 30-acre stand of virgin redwood-perhaps the only remnant home port to more than 200 fishing boats and temporary of the forest that once covered this portion of the Sonoma home to many migrating water birds. Bodega Head, a small coast. Historically, this creek was an important spawning peninsula jutting into the sea, is the site of the University habitat and even today there is a small salmon run in the of California's Bodega Marine Laboratory-testimony to the Finley Creek tributary. Along Salmon Creek there are a rich variety of habitats in the area. wide variety of wetland habitats. The coastal section is bor- Underlying the sandy dunes which connect Bodega Head dered by marshes, both saltwater and brackish, with some with the mainland is the San Andreas Fault, which also un- freshwater marsh pockets. About a mile upstream is fresh- derlies Bodega Harbor. Also hidden under the sands and water Coleman Marsh, where some rare marsh plants and grasses around the harbor are the remains of historic unusual plant associations are found. A few extremely rare Indian settlements. Because of its historical importance, the invertebrates are also found in the stream. entire area around the village of Bodega Bay is listed in the Bodega Bay Area. At Bodega Bay the question is, how National Register of Historic Places. much growth? The current county plan for Bodega Bay, Sonoma Coast Beaches. The State parklands lining the sub- taken together with prior county commitments to the region's beaches are intermixed with small subdivisionsBodega Harbour subdivision and the community, projects a higher population level (2,750) than is acceptable to the High acquisition priority is recommended for approximately Coastal Plan. Given the limitations of the area's road and Coastal Plan. Given the limitations of the area's road and 40 undeveloped parcels in the Pacific View Estates sub- water system and the Coastal Plan's emphasis on giving division, which lies in the important view corridor between wtrsse n h osa lnsepai ngvn division, whi ch lies in the important vi ew corridor between first preference to visitor-serving facilities, it is necessary to Highway 1 and the ocean. Eventual acquisition of the visually promin.ent vacation homes at Goat Rok State Park limit this area's population growth. Instead of extensive visually prominent vacation homes at Goat Rock State Park rsdnilgota prxmt obigo h urn is recommended, but the present owners of these homes residential growth, an approximate doubling of the current isrecommended, bute presentowners of these holevel of commercial fishing and visitor-serving facilities is should be granted lifetime use of their property. While indicated. Even though this magnitude of cutback of exist- other coastside subdivisions in this stretch of coast are un- inglsprrai oulstlaloatrp of t welcome intrusions on the landscape, the development in ing plans appears great, it would still allow a tripling of the these areas has been so substantial that purchase and res- area's permanent population and implies a growth rate that these areas has been so substantial that purchase and res- i a necs fta hc a eneprecdi toration is impractical. Construction in these subdivisions is far in excess of that which has been experienced in recent time. would be permitted to continue as guided by overall condi- tions tailored to the needs of each particular situation. This Total dwelling units proposed by the Plan for the Bodega would permit 150 dwellings in addition to the present 180. Bay area would be 1,270: 120 at Salmon Creek, 400 in the village area, and 750 at Bodega Harbour. The reservation Highway 1 Congestion. In the summer months the length of of local sewer system capacity for visitor-serving activities the coast roadway becomes lined with parked cars and was established at the time a coastal permit for construc- campers. Projections of future traffic indicate that current tion of a treatment plant at Bodega Bay was approved. problems will intensify in the future. Parking for the State However, it may be that the assessment system established Beaches is a problem that will require detailed study for a by the Public Utilities District fails to reflect this permit solution. The recommended parking study should include condition and instead assumes that this capacity will be an appraisal of the feasibility of providing shuttlebus ser- available to serve residential subdivisions on vacant par- vice between the various park units. Wherever possible, cels. If detailed planning for this area indicates that some parking should be provided east of Highway 1 with safe vacant parcels have been overassessed, procedures should pedestrian undercrossings, and roadside and blufftop be established where fees from future commercial hookups parking should be discontinued. would be used to offset overpayments. 214 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES If the Bodega Harbour development should be limited to consistent with Plan policies as well as the deepening of the presently developable 336 lots rather than 750, the 414- present channels to accommodate the greater draft of more unit difference would be allocated to the village area of modern boats. Dredging spoils should be disposed of in a Bodega Bay. manner consistent with Plan policies. Several key factors make it important to contain the devel- Marshes. The marshes of Bodega Harbor are extremely im- opment of the Bodega Bay area. One of these is the inevit- portant to the maintenance of the area's biological produc- able traffic problems that will occur with any further inten- tivity. The small areas of marsh which rim the harbor, es- sification of development in either the parks or the com- pecially along the inner edge of Doran Spit in the southeast munity. The Bodega Bay Land Use Study includes a pro- corner of the harbor, are examples of a rather rare habitat. posal for a bypass around the central area of the commun- In particular, the large marsh near the former dredge dis- ity that is an absolute necessity, given the existing commit- posal site at the southeast corner of the harbor (the airport ments to development and the inevitable further demands area) and the enclosed tidal pond are designated for special of coastal visitors. Such traffic safety improvements as sig- restoration and protection. Also deserving special protection nalization in the village area and turning lanes in the vicin- are several freshwater marshes adjacent to the harbor. ity of the State Park entrance will be required to handle the These include the Bodega Head marsh, the north end anticipated flows. But even with these improvements (and marsh and several smaller marshes at other points around they are not yet scheduled), traffic will continue to be a the perimeter of the harbor. limiting factor at Bodega Bay. Beyond this technical factor, massive expansion of the community would inevitably result Because of its biological interest and productivity, the in the loss of the unique character of this functioning fish- Bodega Harbor area should be studied and managed as a ing village; and this character in itself is a coastal resource single environmental unit. Several problems that deserve deserving of protection. immediate attention at Bodega Harbor are: (1) the sources of siltation in the bay, (2) the effects of unrestricted bait Commercial Fishing and Bodega Harbor. Another growth harvesting, (3) provision of pump-out facilities for boats, issue relates to the need to improve existing facilities for and (4) the protection of sand dunes from overuse. the commercial fishing fleet that uses the Bodega Harbor. The Plan endorses construction of modern facilities within Bodega Bay Development. The public trust would best be the harbor to serve the needs of commercial fishermen, but served by retaining Bodega Harbor free of additional struc- it also requires that full consideration be given to recon- tures and fill. Existing tideland structures could remain, struction of existing marinas as an alternative to dredging but no further fill or structures would be allowed or new new areas of the harbor for boat moorings such as at Spud tidelands leases granted or alteration of existing structures Point. Continued maintenance dredging of the harbor is be permitted. Exceptions could be made where found Clamming at Bodega Bay, Sonoma County rs~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~F.� NORTH CENTRAL COAST � 215 necessary for expansion of commercial fishing or visitor The Esteros. In the area of coastline between Bodega Bay enterprises and no alternative location for these activities and Dillon Beach the two esteros, Americano and San An- was feasible. tonio, are of prime interest. Only a few such largely undis- turbed estuaries remain in the entire State. The Estero To carry out Plan policies, commercial development should Americano and Estero De San Antonio should receive spe- not be permitted to line the length of Highway 1 as it pas- cial protection, and public access to the portions inland ses through Bodega Bay. New commercial development from the beach should be restricted. The shoreline area south of the present village should be concentrated, and should be accessible, but only to those willing to hike in inconspicuously sited, along the loop road with no entran- from Bodega Bay or from Dillon Beach. ces or exits directly from Highway 1. Existing plans and zoning which would allow a continuous strip of commercial Inland Rural Communities. There are a number of small ru- activities through the village should be revised to concen- ral communities inland from the coast, such as Bodega, trate commercial construction along the loop road and in Valley Ford, and Tomales, where there has been little ap- the village. parent change or pressure for development. in recent de- cades. The communities, distant from centers of employ- Bodega Marine Laboratory. The University of California's ment and with no marketable ocean view properties, pro- present plans to retain Bodega Marine Laboratory as a vide an important resource within the coastal zone. While modest-sized center for research are consistent with the modest-sized center for research are consistent with the the glamor of coastside living has inflated the prices of all Coastal Plan; the facility should not be expanded into a res- housing and property close to the shoreline, the value infla- housing and property close to the shoreline, the value infla- idential or classroom campus. The laboratory property now tion has not spread to these inland communities. The con- tion has not spread to these inland communities. The con- blocks public access between public parklands to the north tinuation of the leisurely pace of growth in these inland and south of the facility. It would be desirable to establish communities of a scale in character consistent with existing a connecting trail between the park units north and south of structures, could provide a continuing source of moderately the facility and, considering the environmental importance priced housing within the coastal zone. and interest of some of the lands now included within the parks property, it might be best if some land trades be- Coastal Zone Boundary. The coastal zone boundary should tween the University and State Department of Parks and include the lands immediately adjacent to Highway 1 where Recreation were considered. In this way the lands of it jogs inland from the coast near Valley Ford. greatest scientific interest would come under the influence of the University system and the State Parks could develop Resource Production Lands. Development in the area out- a more workable management unit. side the village expansion boundaries in the subregion would probably not exceed 70 additional dwellings over the Because of the high probability that any new construction next twenty years. The precise rate at which such develop- in the vicinity of Bodega Bay will disturb archeological ment occurs will be dependent upon the parcel-by-parcel sites, surveys will be required by the coastal agency before determination concerning the viability of continued agricul- any construction is authorized. tural production. SUBREGION 3: TOMALES BAY [See Plan Maps 16-17] The San Andreas Fault creates a great sunken valley as it Marsh Study Area. All of these marsh areas need special cuts into the California mainland near the northern Dounda- protection including coordinated management of upland ry of Marin County. The resulting embayment, Tomales drainages and control of buffer areas. Bay, is a wetland with many unusual properties. The eons of slippage along the fault have resulted in the opposition The intertidal areas of the bay are quite varied, ranging of shorelines that are geologically from different places. from exposed rocky coasts at Tomales Point to the exten- The land on the east side of the fault is arid, open, and rol- sive marshes and mudflats in the shallower portions of the ling, while the opposing shore is rocky, tree-covered and bay. A great variety of bottom sediments supports an ex- angular. Visually the bay appears as a great hallway where tensive and diverse collection of marine invertebrates, in- the viewer is ever aware of the sweep of the narrow bay cluding large populations of Japanese invertebrates and and the peculiar contrast of the opposing shores. other exotic species introduced through years of oyster cul- ture. Several commercial oyster farms are spotted along the Many small areas of salt marsh occur along the edges of east shore of the bay. For many years the bay has been the Tomales Bay and at the south end of the bay is a large re- site of studies by biologists from area universities, and par- gion of marsh and mudflat. The most important of the fresh ticularly from the University of the Pacific which operates and saltwater marshes include the marshes near the Walker the marine station at Dillon Beach near the mouth of the Creek Delta on the east side of the bay, the Caroline Liver- bay. The White Gulch area is of particular scientific interest more Marsh adjacent to Cypress Grove, both the salt and because in a relatively small area there is a wide variety of fresh water marshes at Tomasini Point, the marsh just depth and substrate conditions and years of studies by north of Millerton Gulch, the extensive marshlands at the marine scientists have established a history and baseline south end of the bay owned by the Wildlife Conservation for further scientific studies. Board, the Olema Marsh, and the William P. Shields Salt 216 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES Estuarine Sanctuary. Because of the biological diversity and pervision of activities is provided. Lands now owned by Au- richness of Tomales bay and because of its relatively well- dubon Canyon Ranch that are included in areas for acquisi- documented scientific history, it would appear that the bay tion by the Department of Parks and Recreation, such as is appropriate for designation as an estuarine sanctuary un- the Caroline Livermore Marsh or the neighboring Cypress der the federally sponsored Estuarine Sanctuary Program. Grove area, should be dropped from the present proposal This program provides authority and funds to create along for Tomales Bay parklands acquisition. Recommended ac- the coastline of the nation a very few specially protected lo- quisitions along the east shore of Tomales Bay include cations that would be maintained as centers for marine re- Toms Point, the Angress Parcel, Millerton and Tomasini search. The act provides that regulation of onshore activi- Points. The plan indicates a continuation of agricultural ties should be such that onshore activity will not degrade uses on most of the lands on the east side of Tomales Bay. the sanctuary. Very limited funds are provided for acquisi- Exceptions to this would include lands presently used for tion of lands to protect sensitive areas. While the research grazing that are within the urban expansion boundaries of objectives of the act are supported, any proposal that would existing communities or lands that have a high recreational involve significant funding for acquisitions or extensive new use potential. regulatory mechanisms, should be the subject of public hearings and commission review. Recreational Development. There are numerous small can- yons around the bay where suitably scaled campground de- The Coastal Plan supports the concept of developing an es- velopment could be accommodated without changing the tuarine sanctuary at Tomales Bay, including the important visual character of the landscape or decreasing its agricul- estero areas just to the north, but reserves its final judg- tural use potential. While the Plan supports the establish- ment on this matter until such time as a proposal for estua- ment of additional campgrounds in the vicinity of Tomales rine sanctuary status has been developed, public hearings Bay, individual proposals would have to be tested against have been held and the impacts of the proposal on the To- the environmental constraints related to individual sites, males Bay area have been adequately studied. Any including the availability of water, aesthetic and visual ef- proposal developed should make full provision for continued fects, impacts on neighboring agricultural lands and evi- commercial fishing, pleasure boating, and aquaculture. dence of significant unmet demand for such facilities. Areas suggested as appropriate for such development include Oceana Marin. At Dillon Beach, development of the already lands along Walker Creek, the lands behind Marconi Cove subdivided lots (250) in Oceana Marin would be permitted, and portions of Tomales Bay State Park. There are a num- subject to the overall conditions established by the Com- ber of locations along Tomales Bay, such as Marconi Cove, mission, but the undeveloped northerly units proposed for where boat launching areas and boat slips can and should the subdivision should be maintained as an agricultural or be provided under Coastal Plan policies; care, however, public use area. Some of the existing lots may be unbuild- should be exercised in selecting locations so that environ- able because of the extreme geological instability of this mental damage is avoided. area. Detailed soils investigations will be required before Small Lots Between Bay and Highway. There are presently construction is permitted on lots with problems. Further de- Small Lots Between Highway. There are presently velopment of the village of Dillon Beach would be limited to a number of undeveloped small lots between Highway 1 existing ~~~~~lots. ~and Tomales Bay. Not all of these should be built upon; in many cases the lots themselves are unbuildable because it Lawson's Landing. Lawson's Landing, down a toll road would be impossible to develop them and meet county stan- south of town, should remain as a center for weekend fish- dards. The future of these lands should be determined by ing and swimming and clamming. The landing has a poten- detailed planning studies guided by the following criteria: tial for expansion of boating facilities and perhaps for the (1) no construction should take place on public tidelands or expansion of visitor-serving development. A thorough plan- on lots where fill would be required to meet existing gov- ning study and sanitation improvements are essential be- ernmental standards, (2) development should take place fore permits should be granted to legitimize the present in- only on lots where construction would represent an infilling formal collection of trailer homes scattered around the site of previously developed areas, (3) exceptions to this would or to permit its expansion. This would include a considera- include situations where the construction would not signifi- tion of design qualities in developing planning require- cantly detract from views from the highway toward the bay; ments for this area. However, every attempt should be and (4) buildable properties judged to be in critical view- made to maintain the present moderate-cost vacation hous- shed areas or which would significantly adversely affect ha- ing. The popularity of the sand dune area behind Lawson's bitat values should be publicly acquired. Landing for hang-gliding and the reported presence of the Synanon. No further intensification of use at the Synanon rare dune tansy vegetation suggest that the development plan for the area include a component that would identify complex near Marconi Cove should be permitted. Prior to dune areas where hang-gliding is most appropriate and oth- any rearrangement of existing facilities at the Synanon Bay er areas where it would be restricted. Farm complex, a master plan should be developed by Syna- non and approved by the coastal agency. The East Shore. Audubon Canyon Ranch, Inc., a private or- ganization of conservationists, has acquired extensive pro- perties around the perimeter of Tmales Bay with the ob- appropriate for moderately scaled commercial visitor facili- perties around the perimeter of Tomales Bay with the ob- ties related to the Golden Gate National Recreation Area jective of maintaining these lands for the purposes of envir- (GGNRA) Village expansion boundaries developed by the onmental conservation and scientific study. Programs by community as portrayed n the Man Coun ty General Plan Audubon Canyon Ranch are available to the general public appear to be consistent with Coas t al Plan and it appears that its management objectives and proced- p opulatio n would grow from the present 400 to 1,100. A ures are wholly consistent with the objectives of the Coastal Plan. Attention should be given to proposed trading of land sewage treatment facility to serve the town may be needed. with the Department of Parks and Recreation to insure that If it is demonstrated that existing septic tank systems pose _ with the Department of Parks and Recreation to insure that a public health hazard,further development should be per- those areas where higher levels of public use are appropri- mitted only when corrective programs are in force. ate are made available, and effective management and su- NORTH CENTRAL COAST * 217 Resource Production Lands. Development on lands outside fects visitor access to recreation areas, very little further lot village expansion areas would probably not exceed 70 dwel- splitting or subdivision of lands is appropriate. Property di- lings by 1995, with the exact number determined by the vision should be permitted only in cases which would serve rate of permissible conversion of agricultural lands. a public purpose or where no intensification of the utiliza- tion of land would occur. The West Shore. Inverness and Inverness Park should be allowed to gradually increase in population, but develop- Water Supply. Water supply is a problem in most of the ments on lots of less than one acre or on steeply sloping coastal area and especially around Tomales Bay. A distinc- lots (above 30 per cent slope) where septic tank failures tion should be made between "system improvements" might be anticipated should be suspended. While there is which represent modernizations or expansion of the capaci- no present indication of pollution in local streams, the cum- ty of delivery equipment,and "source improvements " ulative effect of continued reliance on septic tank systems which would involve the tapping of new water sources or in this area should be reviewed by the Regional Water the diversion of additional stream flows. Generally, all Quality Control Board. Assuming no cumulative septic tank forms of system improvements, provided these are made in problems are established in this review, development on an environmentally sensitive manner, would be consistent the remaining lots would be permitted along with limited with Plan policies; however, development of new sources of expansion of visitor-serving facilities inside the village area water that would involve substantial alterations of drainage (there are estimated 500 undeveloped lots in the two com- patterns or significantly affect the water table would be ap- munities). proved only as a part of an over-all watershed management program, reviewed and approved by the coastal agency. Because of the existence of supply problems for basic pub- lic facilities and because of the current congestion that af- SUBREGION 4: POINT REYES NATIONAL SEASHORE TO THE GOLDEN GATE [See Plan Maps 17-19] In southern Marin County, more than 75,000 acres of Fed- and have now become part of the Golden Gate National eral, State, and county parklands surround the small villages Recreation Area (GGNRA). Nature is slowly recapturing of Olema, Bolinas, Stinson Beach, and Muir Beach. The this land from the effects of years of military occupation. 55-mile Marin shoreline includes beaches and sandspits, windswept headlands of coastal sage, redwood groves in Federal and State Parklands. With the large area of park- deep sheltered canyons, evergreen forests along the ridge- land, one of West Marin's major problems is how to accom- lines and coastal oak and grasses within the valleys. The modate (or properly manage) visitors to the area. Residents San Andreas Fault has left its impression on the land, of the tiny islands of privately owned land left in the sea of forming the Olema Valley and Bolinas Lagoon before disap- parklands are worried that they will be overwhelmed by a pearing from view under the ocean. tide of visitors and tacky commercial development. Even now, tourist traffic clogs local streets and parked cars use At the Point Reyes National Seashore, ocean surf pounds at all available spaces on holiday weekends. Some feel that the exposed western beaches of Point Reyes; however, at the Federal parklands should be a place of wilderness and Drakes Estero and Limantour Spit, the sea is gentle and the solitude and oppose any concept that would encourage "de- sands inviting. Grazing and dairy operations continue under velopment" within park boundaries. On the other hand, it long-term agreements with the National Park Service. is apparent that this vast recreation area has a substantial Along the southern shoreline of the park, access is limited use potential. Existing public recreational facilities and to those willing or able to hike, bike, or horseback ride in campgrounds in nearby parks are heavily used-to the from the trailhead at Bear Valley. point of abuse. The question is one of balance: how to pro- vide for the needs of visitors without destroying either the Further south, the tidepools of Duxbury Reef are an area of value of the park or the character of coastal villages. special interest, all too accessible to abuse by over-enthusi- astic students of intertidal life. At Bolinas, the beach is in- The National Park Service, assisted by an official Citizens tensively used by surfers, fishermen, equestrians, and sun- Advisory Committee as well as other citizen organizations bathers. Bolinas Lagoon is a rich wetland area, a feeding and government agencies, is beginning work on a parkwide ground for migratory waterfowl and shorebirds, and a habi- plan for the use and development of the GGNRA and the tat for a wide variety of burrowing clams. Point Reyes National Seashore. This master plan will be completed in late 1976. Therefore, the Coastal Plan propo- The Marin Headlands, approaching the Golden Gate, are sals should be seen as illustrative of the specific application dotted with the remnants of military fortifications construct of Plan Policies to these Federal parklands, subject to re- ed over the years for the defense of San Francisco Bay. view upon the completion of the more detailed, comprehen- These old forts and bunkers have outlived their usefulness sive parkwide Plan. 218 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES Drakes Bay, Point Reyes National Seashore Seashore Use. The Coastal Plan's basic thrust, however, is should jointly establish several hundred rustic walk-in and that the use within the Point Reyes National Seashore drive-in campsites and tent cabins in clusters within the should generally remain low. The wilderness values of Olema Valley. The camp areas should be constructed in Point Reyes National Seashore should be designated and stages, with the need, use and impact of the facilities care- protected to the maximum extent feasible. Designation as a fully monitored. The provision of a variety of recreational Federal wilderness area, however, should not interfere with opportunities, consistent with resource protection, is en- existing recreational and agricultural uses. couraged. For the near future, as much compatible agricul- tural use as possible should be continued. A few additional hike-in wilderness campgrounds should be tural use as possible should be continued. developed. High-use areas should be located at Drakes Stinson and Seadrift Beach Access. The usable beach areas Beach, the two main Point Reyes Beaches, and Santa Maria of Stinson Beach, including the Seadrift Beach, should con- Beach (south of Limantour Spit). Vehicle access to Point tinue to provide guaranteed public recreation and enjoy- Reyes and Tomales Point should not be developed above ment. Dedication of the dry sand areas seaward of the present levels. Access should be limited to the Double dunes should continue to be pursued, even though a "gen- Point area to protect its fragile and valuable marine tiemen's agreement" with Seadrift homeowners currently environment. permits such use. The possibility of exchanging public right- The Plan strongly supports continued expansion of the Sea- of-way property along Mira Vista for privately held undev- shore's interpretive programs, particularly as they relate to eloped parcels westward of the roadway should be investi- increasing public awareness and appreciation of the sea- gated by Marin County. This entire beach area should shore's wetlands. Agricultural use in portions of the Sea- eventually be included within the boundaries of the Golden shore is wholly consistent with Coastal Plan objectives for Gate National Recreation Area. productive multiple use of recreation lands and its continu- ance is encouraged. A southern entrance to the Seashore Seadrift Recreational Development. Development of a limi- should be minimally improved at Palomarin; a supplement- ted parking area (20-30 spaces) and small restroom facilities ary trailhead with expanded parking lot and visitor facilities are proposed near the Seadrift entrance gate. Such facilities should be designed to serve and accommodate the three lev- should be established in the vicinity of the Five Brooks th e t els of use at Stinson Beach: intensive use at the State area. Park, moderate use opposite the Patios, and low-use strol- Recreational Development. The recently established Golden ling and beachcombing along the Seadrift spit. Reconstruc- Gate National Recreation Area should provide generally tion of a causeway crossing at the lagoon inlet near the moderate recreational development within its boundaries. Seadrift gate would provide pedestrian and emergency ve- High-use areas, including the development of some over- hide access to this end of Stinson Beach. No acquisition of night facilities, is recommended for the former military Seadrift parcels or trail easements along the lagoon edge is lands on the Marin Headlands.. The two Federal parks proposed. NORTH CENTRAL COAST * 219 Because the Stinson Beach community experiences heavy Headlands, these trails would provide the only oceanside traffic congestion on weekends (much of which is attributa- access between activity centers at Fort Cronkhite, Muir ble to the State Beach), a study on the most practical me- Beach, Stinson Beach/Bolinas, and the Point Reyes thod of solving this problem, including careful consideration beaches. to the development of a southern entrance to the State Beach, is needed. Natural Areas. Several natural areas of the subregion re- quire special protection. Both Redwood Creek and Pine State Parklands. The present State parklands at Stinson Gulch Creek have been identified as important resource Beach, Mount Tamalpais, Muir Beach, and the Marin areas deserving of special protection. Water quality and Headlands should be transferred to the Golden Gate quantity must be maintained to assure the fishery resource National Recreation Area as soon as practicable. Although of these streams. Pine Gulch Creek is particularly important no campsite development should take place at the expense as it provides the major freshwater source to Bolinas La- of day-use facilities, some modest development might be goon. Streamside vegetation provides feeding and habitat appropriate at the south end of Stinson Beach State Park. areas for land animals and birds as well as maintaining op- At Muir Beach there is potential for only the most modest timum water temperatures for fish reproduction. These expansion and a need to better locate existing facilities. stream areas should be maintained and enhanced. The existing cabins at Steep Ravine should be utilized for public recreation and/or educational purposes following a determination of their suitability. Such use, however, Several groves of trees provide special habitat values that should not be limited to "membership only" organizations must be protected. In its yearly migration, the monarch at the expense of general public use. The Slide Ranch area butterfly uses stands of trees at both Muir Beach and Boli- should retain its present low-use level. nas Lagoon as stopping-off areas. Both the canyons oppo- site Bolinas Lagoon and the stands along the lagoon at Bo- linas Village provide valuable roosting areas for many water Tennessee Cove-Fort Cronkhite. While Tennessee Cove is birds. These tree areas should also be protected. Bolinas a highly attractive spot, the dangerous surf, the fragile na- Lagoon, despite decades of watershed mismanagement and tural environment, and the uncluttered natural setting re- continuing water pollution, represents a vital and diverse commend it as a low-use area. No private vehicle access or resource area. parking should be provided at the cove, and access should continue to be hike-in. The Fort Cronkhite area adjacent to Rodeo Lagoon could tolerate relatively high levels of use Bolinas Mudflats. The mudflats of Bolinas Lagoon once and some of the existing military barracks and structures were a spot for clam digging, and oysters were raised in would be suitable for visitor-serving facilities and hotels. the lagoon waters. The clams are still there, but sewage The existing campground at Kirby Cove should remain at pollution of the lagoon has led to a State-imposed quaran- about its present size. tine. Much of the lagoon and shore area is protected by public ownership, simplifying continued resource management and possible restoration of this resource. A Trail Connections. There is an immediate need to provide coordinated environmental management study including lo- trail connections between the existing trails systems on cal, county, State, and Federal representation should be Mount Tamalpais and those within the Point Reyes National undertaken for the lagoon. The study should stress the Seashore. Connections should also be established across the areas of special environmental concern and importance and Marin Headlands to the Golden Gate Bridge. Given the low appropriate restoration measures as well as the identifica- levels of auto access to much of the shoreline of the Marin tion of the appropriate recreational values of the lagoon. Bolinas Lagoon *0w 220 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES Coastal Streams. Although coastal streams within the sub- Stinson Beach. For years Stinson Beach has been a favorite region experience periodic flooding, this is a natural occur- with Bay Area residents, who annually flock to the site for rence and important in maintaining natural stream Tunc- a day or more of sand and sun. The community, with a tions. No channelization, flood control works, or water di- State Beach on its doorstep, continues to be a major visitor version projects shall be permitted on these streams other attraction, and on sunny holiday weekends, Stinson Beach's than routine removal of sediment, slash and undergrowth normal offseason population of 1,000 can be tripled because from their lower reaches. Streamside developments that of the visitor influx. As in Bolinas, the Plan advocates that would interfere with normal highwater flows or intensify Stinson Beach should retain its historic rate of growth, re- pressure for flood control works shall not be permitted. suiting in a potential additional 300-400 people in each community by 1990. Moderately scaled visitor-serving facil- ities should also be located in Stinson Beach. Bolinas. Bolinas represents the largest potential for com- munity growth within the subregion. Over 500 vacant No additional development shall be permitted, however, (buildable) lots exist in the community, and given adequate until a satisfactory solution is found to one of the commun- water supplies, the community could double its present ity's more pressing problems - inadequate septic system size. The Coastal Plan proposes, however, that the commun- disposal. Stinson Beach has been attempting for the past 10 ity maintain its historic residential growth rate and that no years to resolve this issue; however, as yet it has been un- new subdivision be permitted. Modestly scaled visitor facil- able to do so. In the meantime, the pollution of Bolinas La- ities should be added to the community, keeping pace with goon and nearby ocean waters continues. Studies are pres- the increase in private residences. Preference in allocating ently underway to determine the most satisfactory methods development rights should be given to structures available of resolving the problem and will be completed by early for public use. As development densities increase, the com- 1976. While the completion of this study is endorsed, it munity sewer system should be extended to the Bolinas should be considered the end product of the many studies Mesa. In the interim, septic system monitoring and completed to date. The objective of these studies - the de- maintenance programs should be continued and enforced. sign and construction of adequate waste water disposal fa- The Bolinas beaches are narrow, capable of little additional cilities-should begin by June 1976. use and consequently should remain unadvertised and no Should Stinson Beach be unable to undertake corrective beach facilities developed. Properties along the lower measures, the Bay Area Sewer Services Agency should pro- Olema-Bolinas Road should be limited to existing lot sizes ceed with the necessary action leading to construction of an and agricultural uses encouraged. In most cases, lot sizes appropriate wastewater treatment system. Any solution to along Horseshoe Hill Road should be limited to five acres the Stinson Beach pollution problem should be planned in (the predominant existing size) in accordance with the draft accordance with the growth objectives proposed in the Bolinas Community Plan. The agricultural lands of Paradise Coastal Plan. Valley Produce, however, should not be subdivided. The properties north of Poplar Road (RCA, Holter) should be Muir Beach. Development at Muir Beach should be limited considered by the National Park Service for inclusion in the to an infilling of the remaining lots at Muir Beach and the Point Reyes National Seashore. Seascape subdivision (50 lots) coupled with a small, compatibly designed, commercial, visitor-serving facility. Community attempts to develop additional water sources Development must be designed to protect the resources of must respect the sensitive resources of Pine Gulch Creek. Redwood Creek, its alder grove, and the lagoon area at its mouth. Studies of the Muir Beach Community Services Dis- Shoreline retreat at the Bolinas Mesa is an issue requiring trict's water supply should be undertaken to confirm exist- additional information and study. Present information sug- gests that new construction should be set back at least 150 should go to vi sitor-serving facilities, b oth p ublic and pri- should go to visitor-serving facilities, both public and pri- feet from the top of the bluff. Until the conclusion of fur- vate. ther study, which should, among other things, evaluate the effect of erosion upon the siltation of Bolinas Lagoon, Many of the lots in Muir Beach and Seascape have shallow shoreline protective works should generally be prohibited. soils and steep slopes. Use of septic systems on these lots On a case-by-case basis, however, permits may be granted should be closely regulated. Some existing lots may well be upon a definite showing of imminent hazard to existing ma- inappropriate for septic tank use and are, therefore, un- jor structures. Authorization to construct protective works buildable. The Muir Beach Community Services Dstrict shall consider the impact upon public recreation and visual should establish a septic system maintenance and monitor- resources as well as engineering data relating to such pro- ing program to assure continued adequate functioning of jects. septic systems within the community. SUBREGION 5: SAN FRANCISCO [See Plan Map 19] Western San Francisco was originally mostly sand dunes, dunes are completely hidden. The only visible remnant of from sea level almost to the 900-foot elevation of Twin sand dunes to be seen is at Fort Funston, in the far south- Peaks. But the city is so completely developed - covered west corner of the city. over with pavement, row houses and apartments - that the NORTH CENTRAL COAST � 221 Quality of Coastal Neighborhoods. The Coastal Plan propo- bulk, and color of building proposals should be reviewed, ses that very little of California's undeveloped coastline be imposing design criteria in addition to the arbitrary, uni- subdivided for new urban development. Thus, an increasing form requirements of the zoning height limit and the Uni- demand for a limited supply of housing could, if otherwise form Building Code. All development (larger than duplex uncontrolled, make the price of developable coastal proper- construction) within the coastal zone of San Francisco ty even higher than it is today. Without land use controls, should be subject to local design review in order to assure California's coastal neighborhoods would eventually become consistency with the Coastal Plan. dominated by structures which provide the most return on investment, such as condominiums and apartments. While The Presidio and GGNRA Lands. The San Francisco portion the details of zoning and precise community planning of the Golden Gate National Recreational Area, as a should properly be left to the initiative of local government, high-use zone, will provide more active, intense recreation the Coastal Plan recognizes that limits on residential densi- opportunities than the open space uses provided in Marin ty will be required in many cases to protect the existing re- County. While a relatively high level of use of the San sources of moderate-income, family-oriented housing. Francisco shoreline should be planned for the GGNRA operational program, the Coastal Plan recommends that The San Francisco Residential Zoning Study, to be comple- very little facility construction take place in the area. ted in 1976, is expected to review prior commitments included in the city's Improvement Plan for Residence In the Presidio, non-essential industrial-type military uses (which calls for increased residential-apartment develop- (e.g., motor pool for the maintenance of heavy equipment, ment along the Great Highway). This review must take into laundry, ammunition storage) should be phased out and re- account San Francisco's severe city-wide housing shortage. located as other military lands become available for such It will not be desirable or appropriate to zone all lands uses. The headquarters command and Letterman Hospital, within the Sunset and Richmond Districts at their present of course, should remain here permanently. use levels to halt all change. For example, there is an ex- Open areas of the Presidio should not be developed. When tremely low percentage of low-income public housing lo- existing military structures are no longer needed for the cated in the coastal zone. The relatively few units of scat- Army - such as those at Fort Winfield Scott - they tered-site public housing built in recent years in the Sunset should be used for urban recreational programs. have been well designed, and have contributed to the stock of family housing. However, much rezoning in the Rich- Lobos Creek Marsh. Though there were once several small mond and Sunset is called for, particularly along 48th Ave- freshwater marshes at the northern end of the San Francis- nue and the Lower Great Highway, within the coastal per- co peninsula, all have been destroyed except for a small mit zone. In these areas the existing higher density zoning marsh at the mouth of Lobos Creek. This marsh should be forms a threat to the maintenance of existing neighbor- protected from destruction. The serpentine slopes near the � hoods. Presidio, north of Baker's Beach, support several rare plant species that grow nowhere else and other rare plants grow Design Review. Where new development is to be permitted on the sandy slopes above Point Lobos. Use plans for these by city zoning, much more attention should be devoted to areas should include special precautions against trampling design review. The manner in which blank-sided, multi- and resulting erosion that could lead to the loss of these story apartments have been allowed to intrude into neighbor- rare plants. hoods of single-family homes is testimony to the lack of a formal design review process for medium-sized structures. Fort Miley. At Fort Miley, the current expansion program In order to assure compatibility of new development within of the Veterans Administration Hospital should represent existing neighborhoods, San Francisco should establish an the ultimate size of this facility; the remainder of the fort's architectural design review process. The scale, height, bunkers and headlands should be opened to public access. Seacliff and Baker's Beach, San Francisco '7 7 0 -�77 v~;- 222 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES A trail and internal park transit route should be established San Francisco's massive sewage problem clearly needs cor- on the bluff below the fort. rection. Coastal Plan policies make it clear that, given a choice, primary or low-level secondary treated sewage ef- Cliff House Area. At Seal Rock and Land's End, the histor- choice, primary or low-level secondary treated sewage ef- fluent is better discharged from deep open-ocean outfalls ic commercial use at the Cliff House site should be contin- than into bays or estuaries where less dilution is possible ued under concession to the National Park Service. Further and where pollution can affect a greater variety of shallow- consructon aongthe luffnort an eas of he Ciffand where pollution can affect a greater variety of shallow- construction along the bluff north and east of the Cliff House should not be permitted, except for a modest water and wetland marine life. Prior to making a non-commercial National Park Service visitor center, located permanent commitment to the Lake Merced sewage below the line of sight from the roadway. Both because of treatment site, the City should demonstrate that: (1) the re- clamation and reuse of San Francisco's waste water is un- the sealads ci and sura ella oavoddsun cla ions whic ruse ofSeal FRacsoks, public waer ss the hazardous cliff and s urf , as well as to avoid disturbing necessary or unfeasible, and that the plant and pipeline de- the seals and sea lions wh ich use Seal Rocks, public access sign will facilitate a future reclamation option should it be- come feasible; (2) there is no superior alternate site in San Playland. The old Playland-at-the-Beach site, located on the Francisco or northern San Mateo County for the plant loca- outer edge of the Richmond District, provides the only loca- tion; (3) the plant and its outfall are designed to withstand tion in the North Central Region appropriate for intense, potential seismic forces without undue risk of massive pol- urban, commercial recreational development. Any multiple- lution; (4) the plant, if located at Lake Merced, is primarily use development plan for this site should give emphasis to underground and landscaped and is accessible for outdoor coastal-related commercial recreation facilities. recreational, open-space use, or Zoo expansion; and (5) the treatment level and outfall design assure that the effect of Ocean Beach - Great Highway. Three things are essential the effluent upon the receiving waters will not significantly to restore the high urban-beach potential of San Francisco's affect marine life. The related system of storage reservoirs Pacific shore: maintenance, supervision, and the implemen- that are proposed to be constructed under the streets of tation of the city's Great Highway Improvement Plan. An coastal neighborhoods appears compatible with Coastal adequate maintenance force - supplied with mechanical Plan policies and is an integral part of the correction of San sandcleaning machines - will be a minimum requirement Francisco's wastewater treatment problems. of the National Park Service operation. On high-use days, extensive ranger and park police supervision will be requir- Coastal Zone Boundary in San Francisco. Proposition 20 r6- ed to prevent such incompatible current activities as motor- quired that the coastal zone boundary follow the ''highest cycle-riding and galloping of horses. elevation of the nearest coastal mountain range." In San The city's creative plan for the Great Highway calls for the Francisco, such a line traverses Twin Peaks, in the center transformation of the existing eight-lane, freeway-like high- of the city, and includes many districts and neighborhoods way into a four-lane, gently curving recreation road. More which are distant or invisible from the coastline or which f~~~~~~~~~~~~~~~~~hc requn didstrant un corinvisie from the coastrce bhod Dvlipmne or witn ubnhich oe otd frequent pedestrian undercrossings would be constructed. have very little access or relationship to "coastal" neigh- Even though the road right-of-way is not included within borhoods. Development of distant urban hills does not dom- Even though the road right-of-way is not included within the boundary of the GGNRA, the recreational improvement iate the visual character of the coastal zone. of this roadway should be included in the capital budget of The Coastal Plan thus recommends that the coastal re- the Park Service, at least on a 50-50 matching basis. source management area boundary in San Francisco to fol- Fort Funston. Fort Funston, at the southern end of the low the Golden Gate Bridge, Park Presidio Boulevard and GGNRA, is already suffering from overuse. The sand dunes 19th Avenue. This would provide a management area ap- here are a favorite place for hang-gliding (an appropriate proximately two miles deep, would include all coastal por- use, though dangerous) and off-road vehicles (an inappro- tions of the GGNRA and almost all of the neighborhoods priate use), but continued indiscriminate use has damaged which view themselves (by tradition and the boundaries of sand dune vegetation and caused extensive erosion. While census tracts and civic organizations) as entire coastal some portion of the fort might be made available to neighborhoods. However, beyond walking distance to the hang-gliding, this part of the GGNRA should be made shoreline (about Sunset Boulevard), the character of urban available primarily for historic and nature interpretive pro- development is of much less statewide significance to grams. Coastal Plan policies. Virtually the only connection which areas to the east of 19th Avenue have with the coast is a Once largely surrounded by Water Department lands and view of the sunset (when it's not foggy). And that connec- golf courses, much of the open area around Lake Merced tion is too tenuous to require permanent inclusion within has, in recent years, been developed. Except for a sewage the coastal zone. treatment plant that would be mostly underground, addi- tional structural facilities should not be located on open Farallon Islands. Given the remote and barren character of lands around Lake Merced. These should be retained and the Farallon Islands and the important wildlife habitat they development limited to non-structural, water-oriented pic- provide, the Coastal Plan provides for the retention of the nicking, fishing, boating, or trail use. Structural facilities wildlife refuge status of the islands, with no facilities to be that exclude the general public (such as the National constructed and no visitor program to be provided (other Guard, police facilities, and the public shooting range) than the limited research efforts of the Point Reyes Bird should be phased out or relocated. Observatory). NORTH CENTRAL COAST * 223 NORTH CENTRAL COAST APPENDIX TRANSPORTATION Adopted Coastal Plan policies emphasize both the desira- County and to coastal neighborhoods in San Francisco. At bility of maintaining coastal Highway 1 as a two-lane rural Point Reyes, during the summer months, a shuttlebus oper- road without significant capacity improvements, and the re- ates between Park Headquarters and the beach at lated need to consider the traffic-producing potential of Limantour Spit. It is estimated that about one per cent of additional coastal developments. Generally, the present coastal travelers make use of the existing transit services to width and alignment would be retained, with improve- the Marin coast. ments limited to correction of specific safety problems. Every effort should be taken to maintain and enhance the The proposals for relieving future congestion in West Marin scenic qualities of the roadway with turnouts and overlooks depend on two strategies, balancing auto travel among provided. Private developments west of Highway 1 shall be existing routes and increasing transit patronage. Neither encouraged to provide peripheral frontage roads allowing Highway 1 or any lateral connecting route should be ex- views and access to the coast or suitable parking for trail panded beyond a two-lane roadway. access, consistent with access levels suggested in the sec- tion below. Five east-west routes provide access from Highway 101 to the coast: the southern portion of Highway 1; Panoramic A Coastal Traffic Budget. The existing or planned capacity Highway; Sir Francis Drake Boulevard; Lucas Valley Road- of the road system would act as the limit of a traffic Nicasio Valley Road; Novato Boulevard-Petaluma-Point "budget." Beginning with this capacity budget, which Reyes Road. The traffic burden should be spread as evenly represents the remaining traffic carrying ability of Highway as possible among these routes, utilizing signing and 1, the traffic-inducing impacts or capacity "spending" mapping devices. associated with public or private developments along the coast is calculated to make sure that traffic does not exceed Transit in Marin. Because of constraints of alignment and the capabilities of the planned road system. grade, none of these routes is adequate for a bus system that can provide sufficient passenger comfort to compete The Coastal Plan identifies weekend traffic congestion as a successfully with the private automobile. Unless one or major problem area requiring future study. The traffic pro- another of them is improved, it will be difficult to achieve jections given here are based on fragmentary information the transit goals of the Plan. The Marin countywide plan r and are provisional pending the collection of data tailored shows Panoramic and Lucas Valley Road as the "transit to the needs of a coastal traffic study. The figure reproduced routes"'' to the Point Reyes area. The Coastal Commission here, drawn from California Department of Transportation should work with Marin County and CalTrans to bring data, portrays the current capacity budget situation along about the road improvements to the minimum extent neces- coastal Highway 1 in Sonoma and Marin Counties. sary to provide an adequate bus system to West Marin. Planning efforts should be coordinated with planning for Sonoma County. The projections suggest a high probability the parks and with the Golden Gate Recreational Travel of future traffic congestion along Highway 1 in Sonoma Study. County through much of its length with special problems in the section from Bodega Bay to Fort Ross. This provisional Transit has a high potential as a capacity budget stretcher analysis indicates that it would be prudent to minimize but the extent to which transit can be made a viable alter- additional commitments to coastal subdivisions (which native to private auto use is unknown. The Golden Gate account for as much as half of the projected traffic) during Recreational Travel Study is seeking to develop information the time a more detailed and reliable study of coastal trans- on ways of maximizing transit use to West Marin park portation problems is conducted. destinations. However, the study is still underway and major program recommendations have yet to be tested and A recent study of transit potential on the Sonoma Coast evaluated. It seems safe to conclude, however, that pro- indicated that there was insufficient demand to justify de- viding good recreational transit to the coast will require velopment of regularly scheduled bus service but that there continued subsidies, just as present weekday commuter were persons being "trapped and isolated" by the present transit systems require subsidizing. auto-dependent system. The study recommended further investigation of a small-scale shuttle and parcel delivery It may be necessary to create auto "disincentives" in order system as an alternative to regularly scheduled bus service to generate significant levels of transit use. Disincentives - a suggestion that should receive further refinement in would be in the form of restrictions on access, with certain the proposed study of weekend transportation needs. park areas accessible only by transit, by giving priority access to transit over existing routes, or limiting the availa- Marin County. In Marin County there is little likelihood of bility of parking at coastal destinations. Any of these traffic problems along the segment of Highway 1 from the schemes requires careful scrutiny since there is a risk that Sonoma County line to Point Reyes Station, but south of efforts to discourage auto use and encourage use of transit this point the projected congestion becomes formidable. may result only in a discouragement of coastal visitation. Simple projections of auto use (as shown on the graph) Transit service must be improved to the point that it be- have to be tempered with assumptions concerning the ex- comes an attractive substitute to auto travel. The general tent of transit use. guidelines in current Coastal Plan policies on transportation The Plan places heavy reliance on public transit as an alter- will have to be refined as better information on coastal native to expanded auto travel. Present transit service to travel is developed - both by Commission studies and by the coast is now limited to the southern portions of Marin the continuing Golden Gate Recreational Travel Study. 224 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES Capacity Budget: Highway 1 in Marin and Sonoma Counties 2500 ' 2000 - I o , x000 500 -/ N T "C c�~ - -r- ?Co: c:-:!/!co::: : : :::::::i::: o C' a) E U 0- co 2 > co south to north and the labels below the chart indicate various locations along visitor facilities and park acquisition t was assumed that only minor inter- an approximate doubling from existing traffic levels rather than the tripling a 2000 unit buildout at Sea Ranch] ACCESS LEVELS Access Levels. Much of the appeal of this region's coastline Controlled Use - Areas of controlled usem always isThe lengtht e diagram represents the lengtmuch of the coastal roadtu sayste m 2000 units at Sea Ranch, construinction of ca mpsitures, development of commercial creasinguth to numbeorth, andof the labels below the chart indicate various locations along visitor facilities, and park acquisition]. It was assumed that only minormally haver- the highway. The vertical dimension to thindicraten the attractionhicles thper hourseek. SoThe solidme lnevel of restri section improvements would bether mse existing roadway and that it wouldre- on thes chart showurces hourly traffic volume and cannot s recorded for the summer of 1974 few aretain its reservnt alighment and fogrades. The effectse, of several alternative during the peak hours of use, which usually occurred on Sudependay afternoons assumpti ons is also shown: the resoure basi c t raffic projectionts The upper edge o the shaded area indicates the capacity limit of the coasts indicates trhe effect of construction of 4000 rather supporthan 2000 homes at Sea Ranch, facilities would establishment of these po"carryint of traffic flow breakdown [beginning of level s" as while thcom be dopermitted linAes below in ordicate the effects of construction of several altenour- plex process and efinvolves determining the Highway Capacity Manual, H.R.B. Special agReport Nod. nativn some rousites for Highway estraffic. The lower dotteuld line at Bodega Bay wdi-th anThe dashigned capacityne on the diagram indicates estimates of future traffic to the cates traffic remaineing eon Highway 1 with contruction of the bypass routens. tiyear 1995. For t he Maon coastline the es timate is based on trends in historic [recommended by the Plan]. The lower dotted line between Highwayes 142-144 in traffic increase proeted for 20 years; for Although more traffi estimate Sea Ranch wilrepl Low Usresents the effects of construction important, a lateral connector routei- unreflects the anglevel and pattern of thdevelopment assumed in the Coastal Plan [had along the icalignment of Annaturpolis-Skagg's Springs Road that provide exceptionally scena quic ker ida trend. This is projection been used, there identified naturaffic esilitimates would have indicatified access to Sea Ranch and Southern Mendocino County this alternati devel- assumes anresources are doubling from existing t raffic levels rather tha would include hiking a 2000 unit buildou a t Sea Ranch].amp- their contin ued exisca te nce.d usitesng Plan assumpervations - i.e., buildout of coastal subdivisions withlimited parking ~Access Levels. Much of the appeal of this region's cofacilities o- Areas of ontrolled use alpermitte always is that so much of it is in its natural state; but as ever-in- reflect significant natural resources that are need crand intensing ve use. The descriptionmber s bel ow relate olearnly to enjoy the oastline, protection. Controlled use areas would suppormally havepublic patterns and bintohrten teaesome level of access and use typicaltion on the North use, either almost endangering resources- public support facil Central Region. A high-use resources ahere for exampgile, wouland cannties would be replacermitted. ly(eg, as in a few areas reserved for scientific usepply, or par-ooms tial , depending on the resource involved. Development es It is important th i gh-use beach in Souther n picnifi c coastal activities, te nt c a mpgr ounds, horse hikin g trails the C alifornia. A general definition of cates is listed below. parking areas and in terpretive de n ter s) bu t in lmted establishment of these "ca rrying c apacities" is a com- be permit ted. A ccs in or through would t be ecou plex process and involves determining the physical, social aged In e sit restriction woul be temporar wt h a nd des igned capacity of the area (se e Controlling Recrea- ace ontrolled during bre seasons. Recreation ch a pter, Part II). Although more research will Low Use - Are as that contain important, although not oni- u ntangle many of the complexities involved, present infor- tical natural resources, provide exception ally scenic or mation and te c hniqu es p ermit a general level of use to be " natural" beauty, or possess limited necessary support identified. This is particularrly true where identified natural facilitie s w ould be identified as low use. Low use devel- resources are s o fragile that almost a ny use would threaten op ment would include hik ing trails, limited hike-in camp- the ir c onti nued existence. sites and observation areas. Only vry e y lmted parking The selected a rea s evaluated (listed below), were grouped in though perhaps regulated. Resource values would be pro- four general categories: controlled use, low use, moderate use tected. and intensive use. T he d e scriptions below relate only to the * Moderate Use - oras us area usupport plic p atterns an testieaess and tensities of tpesil and t usew rots pu al ort fNoirt- C entral Region. A high-use area here, be permitete (epg., owter supply, res, would serve m any fewer people than a high-use beach in Southern pcces , ten campgrouds, selhkn g a California. A general definition of catsed be parkin aeas an irpretv centegri best in lism ted NORTH CENTRAL COAST * 225 numbers. Construction techniques must conform to na- system proposed for the North Central region would com- tural features of land and be limited in scale. bine existing trail systems with new trail proposals, empha- sizing urban and near-urban areas in construction priority. � Intensive use - Areas that have historically supported in- The trail system will emphasize its coastal nature, but tensive levels of use; are physically quite tolerant of hea- routes should also incorporate natural features, existing vy use; and have adequate public facilities (or they can rights of way, scenic and recreation areas, and should in- be easily provided), are classified in this category. Con- clude short, loop routes in high use areas. Where the main struction of parking areas, campgrounds, visitor service trail leaves the immediate coastline, short lateral access facilities and other major construction projects may be spurs to the coast should be constructed where appropriate. permitted. Public use is encouraged. Trailheads would be established near existing coastal at- tractions, easing construction impacts on undeveloped ar- eas. Small camp and/or hostel sites may be established along longer stretches of the trail. PROPOSED USE LEVELS FOR SELECTED AREAS WITHIN NORTH CENTRAL REGION Trail Description. Precise planning for trail location must fully respect sensitive natural areas, the rights of coastal Controlled Use Areas: Del Mar Landing Ecological Reserve, residents to security and privacy and the requirements of Seaview-Highlands Coastal Frontage, Lower Lake (Planta- adjacent ranches. Bluff-edge trails must be carefully located tion, Sonoma County), Stillwater Cove Expansion, Russian or hardened to avoid erosion, for example. Proceeding from River Marsh (southwest of Penny Island), Penny Island, north to south, the proposed main trunk-line coast trail Jenner Pond (Junction of Highways 1 and 116), Duncans would enter the North Central Region at Gualala County Mills (Orr's Creek) Marsh, Willow Creek Marsh Area, Sal- Park and proceed south along the first coastal ridgeline to mon Creek, Bodega Marine Laboratory Lands', Bodega Bay Annapolis Road, and then along Highway 1 through Sea Salt Marshes, Estero Americano Lagoon and Marsh areas, Ranch. This is one of the few areas in the region where the Estero de San Antonio Lagoon and Marsh Areas, Hog Is- trail would pass through forested lands. An alternate loop land, White Gulch', Tomales Bay Marsh Areas (Walker trail for the northerly two-mile stretch would provide both a Creek Marsh, Millerton Marsh*, Olema Creek Marsh, Liv- bluffedge trail linking Gualala Point Park with the Del Mar ermore Marsh, Shields' Marsh, Tomasini Point Marsh, and Landing marine reserve as well as a short segment along several other small marshes around bay), Point Reyes the Gualala Riverway. National Seashore (Ledum Swamp-upstream from Schoon- er Lagoon, Bolsa Beach at Double Point, Point Reyes and Continuing south of Black Point, the trail would move away Estero de Limantour Reserves, and Point Reyes Headland from the highway on the coastal terrace, where it would fol- Uplands), Rodeo Lagoon Marsh and slope areas, Golden low the top of the bluff to Timber Cove. At Timber Cove Gate Bridge to Cliff House (steep slopes), Seal Rocks*, the trail would join Highway 1 through the subdivision be- Farallon Islands*, and all offshore rocks and seastacks*. fore returning to the bluff top. At Fort Ross, the trail would (*Restricted to scientific use.) again work up to the first ridge line, following the old Rus- sian road and Seaview-Plantation road down to Russian Low Use Areas: Gualala River Mouth Marsh, Black Pointian road and SeaviewPlantation road down to Russian Headland, Point Reyes National Seashore (Pastoral Zone, Tomales Point, Abbotts Lagoon Area, Drakes Estero, Es- Going along Highway 1 from Russian Gulch, the trail would tero de Limantour, and Limantour Spit), Kruse Rhododen- pass through Jenner and cross the Russian River at Bridge- dron Reserve, Russian River Mouth, Bodega Head, shore- haven. From the Russian River, the trail proceeds south line between Doran Spit and Dillon Beach, Tom's Point, along the bluff and beach of the Sonoma Coast State Beach, Bolinas Lagoon, Duxbury Reef, Slide Ranch (Rocky Point to running from Arched Rock to Salmon Creek. Crossing back Muir Beach), and Tennessee Cove. to the highway and continuing to Bodega Bay, the trail would leave Highway 1 and skirt the east side of the com- Moderate Use Areas: Gualala Point County Park, Stillwater munity before joining Highway 1 again at Cheney Creek. Cove Beach, Russian Gulch, East and West Shores of To- Spur trails would lead to Cypress Dunes, Bodega Head, males Bay (except as identified elsewhere), Olema Valley, and Doran Spit. Seadrift Spit (ocean side), Muir Beach, Kirby Cove, Fort Funston, and Lake Merced. Following Highway 1 up Cheney Gulch, the trail would then cut across country to Valley Ford where it would cross the Intensive Use Areas: Salt Point State Park, Fort Ross State Estero Americano. From there the trail would follow the Historic Park, Sonoma Coast State Beach, Doran Spit Valley Ford-Franklin School Road, pass Dillon Beach and (ocean side), Dillon Beach, Lawson's Landing, Tomales Bay travel cross-country, circling the beaches and dunes of Sand State Park, Point Reyes National Seashore (Drakes Beach, Point to pick up an old railroad grade above Preston Point. Santa Maria Beach, and Park Headquarters Area), Stinson Again, several spur trails could lead from the trail to the Beach State Beach, and Ocean Beach/Cliff House. coastal bluffs along this section. It is also recommended that standards be established for A trail bridge across Walker Creek would reconnect the old control of dogs. Generally, dogs should be required to be railroad right-of-way and, by using alternate sections of leashed or, in some cases, excluded from intensive use ar- that right-of-way and portions of Highway 1, the trail would eas or from agricultural areas where free roaming dogs continue south to Point Reyes Station. Few segments of the could harm livestock. old railway exist; precise study would be required to deter- mine how much of this right-of-way could be used. TRAILS From Point Reyes Station, the trail moves west of Highway To maximize the recreation potential of the coast as well as 1, following Olema Creek and portions of Pine Gulch Creek to provide alternative means of access, Coastal Plan policies to Bolinas Lagoon. Trail spurs would connect with the recommend the establishment of a coastal trail system. The existing trails within the Point Reyes National Seashore and 226 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES Samuel P. Taylor State Park as well as future trails within areas would have to be carefully tailored to individual situa- the Golden Gate National Recreation Area. In this area, it tions. Restoration might include such actions as fencing would intersect with the east-west Cross-Marin Trail, which grazing lands adjacent to streambeds to permit growth of is to originate at the Larkspur ferry terminal. streamside vegetation, removal or redesign of structures that inhibit stream-flows or tidal exchanges, and dredging Continuing south, the trail would follow Highway 1 past to reduce the buildup of sedimentation. Further studies Stinson Beach to Muir Beach where, leaving the highway, might indicate that some areas listed are inappropriate for the trail continues south following the bluffs around Ten- restoration. In all cases, however, a consideration of resto- nessee Cove, over old Fort Cronkhite and drops down to ration. In all cases, however, a consideration of restoration Rodeo Lagoon. In this segment, the trail would provide loop options would be a required component of any private or connections with existing trails in Mount Tamalpais State public development proposals affecting these areas. Park, the GGNRA and the Marin Municipal Water District lands. The final portion of the trail would follow the road along Restoration Area Study Issues the headlands of the Golden Gate, across the Golden Gate Bridge and up to the bluff top through Fort Winfield Scott. Marshes at north end of Tidal circulation Continuing along the bluff top, the trail would proceed Bodega Bay around Lands End and eventually drop down and parallel the Great Highway along Ocean Beach. At Lake Merced, Airport Area at Bodega Visual concerns and the trail would climb the bluffs again and continue south- Bay increasing water surface ward along the coastline and into San Mateo County. area "Golf Course" marsh at Remove golf course, Trail systems, some quite extensive, have been developed Bodega Bay enhance tidal circulation in the Point Reyes National Seashore, Samuel P. Taylor State Park, and Mount Tamalpais State Park. First priority for future coastal trail development should concentrate on Esteros Americano and Cattle grazing in marshes providing connecting links between the existing systems in San Antonio these parks, as close to the metropolitan population. Marsh areas near Point Removal of dikes RESTORATION Reyes Station Every effort should be made to restore habitat values where Bolinas Lagoon Sedimentation, public use they have been degraded. Consideration of restoration ac- tions shall be routinely considered as part of each decision Rodeo Lagoon Pollution regarding future coastal development. Where appropriate, restoration actions will be made a condition of development and activities which degrade the environment will be declared "nonconforming" and abated (phased out) over In addition to the above listed areas, stream restoration to time. enhance vegetative cover and the potential for spawning runs should be considered in Salmon, Walker, Pine Gulch, A number of areas in the region appear to be appropriate Olema, Papermill, and Redwood Creeks, and the Gualala for restoration efforts. Restoration plans for each of these and Russian Rivers. CENTRAL COAST � 227 CENTRAL COAST The Central Coast Region extends 209 miles south of the densely populated hills of San Francisco to the rugged Central Coast Subregions 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 econo- my. Tourism, centering on the cities of Santa Cruz and the Monterey Peninsula but relying on the region's wide 8.FRAN-i beaches and spectacular natural beauty for support, also \. plays a major role. Attractions such as Point Lobos, the - Carmel Mission, Pebble Beach, Cannery Row, the Santa ' Cruz Boardwalk, and Steamer Lane are known far beyond i P 5- the region's borders. From the rugged coast of northern San Mateo County, the region stretches south through the fertile Half Moon Bay coastal plain to the rolling hills and terraces of the Ano Nu- evo Coast. The terrace widens at Santa Cruz, and the Santa Cruz Mountains form a backdrop for the Pajaro Valley and U.a Watsonville. As the Santa Cruz Mountains march southeast to become the Gabilan Range, the broad Salinas Valley 6 dominates the coast. Between the Pajaro and Salinas, an : - Monterey' / extensive slough system drains toward Monterey Bay with - Moss Landing at its head. The high dunes protect the -i shoreline for many miles, before giving way to the plains of P" Monterey. Dominated by the Santa Lucia Mountains, the Monterey Peninsula juts out into the Bay. Carmel perches 10 8 on the hillside just south overlooking Carmel Bay. South of Point Lobos the coast is again rugged, traversed by scenic ,, Highway 1 through Big Sur. ,, MONTEREY N LUIS OBISPO SUBREGION 1: DALY CITY AND PACIFICA [See. Plan Map 20] This coastal subregion, dominated by the suburban cities of Recreational Resources. Both Daly City and Pacifica contain Daly City and Pacifica, combines high accessibility to popu- major coastal recreational attractions. Thornton Beach State lation with severe development hazards and important rec- Park provides the only public access point to the wide reation opportunities. Daly City, straddling the San beaches below Daly City's cliffs. The beach is the major at- Andreas Fault and rolling terrain which drops off 400 feet traction, but remains of the old Coastal Highway, 150 feet at the edge of the coastal bluff, is almost totally developed. above the beach, offer a spectacular hiking experience. If Pacifica, which strings together several communities this route is safe, it would be an ideal location for the nestled in the coastal valleys, anticipates a substantial in- coastal trail recommended in the Plan. Additional access to crease in population by 1990. Much of the remaining open the beach should be sought, since heavy use is now con- land in this subregion is on brush-covered hillsides; this centrated near the Thornton Beach parking lot. Two possi- feature is a significant scenic resource. bilities are Avalon Canyon (where a park is proposed) and 228 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES the San Andreas Fault trace (now a solid waste disposal Pacifica Hillsides. Development of the Pacifica hillsides will site). be a major subregional plan issue. Local planned-develop- ment zoning and proposals for increased access promise to Pacifica's beaches and new fishing pier are also heavily restrict buildable areas to lesser slopes, but have not yet used. The need for more convenient access, parking facil successfully overcome concerns expressed by local residents ties, and aesthetic improvements of the beachfront (all rec- and the Coastal Plan policies for potential erosion, public ognized by local and Coastal plans) must be balanced with hazards, loss of significant open space, and impact of popu- maintenance of special coastal neighborhoods (West Sharp lation. Coastal Plan policies must be translated into oper- Park) and with the development of coastal commercial rec- able hillside development standards to meet these concerns. reation facilities (Rockaway Beach), also advocated by Coastal Plan policies. Pacifica SUBREGION 2: HALF MOON BAY [See Plan Map 20] The Midcoast side of San Mateo County lies in the shadow Subregional planning will examine closely the urban and of the Coast Range, tied to San Francisco by the precipitous agricultural potentials of such areas as Shore Acres, Surf Devil's Slide highway and to the populous Bay side by the Beach, Miramontes Tract, and Wave Crest. Protection of winding Highway 92. Much of the fertile coastal terrace agriculture may call for some redevelopment of subdivided was subdivided after the 1906 earthquake, but little devel- but undeveloped agricultural lands, careful applications of oped. The historic agricultural center of Half Moon Bay, policies to deal with the existing checkerboard development now a city of 5,500, projects growth to at least 28,000. En- pattern, and the establishment of positive programs to sup- couraged by a new sewage treatment plant, the large port continued agricultural uses of the land. number of existing lots, and an aggressive developTo~r,1ihe Recreational Resources. State Beaches at Montara and Half city has overseen the conversion of agricultural land into residential subdivisions. Four unincorporated communities Moss Beach (Fitzgerald Mar ine Reserve) at t ract man y Moss Beach (Fitzgerald Marine Reserve) attract many (Miramar, Princeton-El Granada, Moss Beach, Montara), day-visitors. Planned State and county purchases will make separated by agricultural lands, contain 7,000 people, and the public shoreline virtually continuous. Development of are building up rapidly on existing lots, expanded beach facilities and a coastal trail called for by Agriculture. The Half Moon Bay area supports a strong flo- Plan policies will thus require little acquisition. riculture industry, both field- and greenhouse-based. Arti- chokes, other vegetables, and seasonal specialty crops are Public Services. Transportation, sewer and water services, grown on subdivided land as well as on larger parcels. and the basic community infrastructure are the keys to de- Much valuable agricultural land is under-productive be- velopment in Half Moon Bay. Further study will focus on cause of high taxes and water costs and the fragmented these public services, establishing key decision points, lev- ownership pattern resulting from premature subdivision. els of development, and alternative development patterns CENTRAL COAST � 229 which are consistent with and implement the Coastal Plan. serving commercial areas (Half Moon Bay State Beach, Pil- City, county, harbor district, sanitary district, and major lar Point Harbor) are in close proximity. A special study of landowner (Westinghouse) participation will be crucial to this area should be undertaken with the goals of encourag- this effort. ing timely development of adequate recreational facilities and coastal access while enhancing agricultural lands and Special Study Area - North Half Moon Bay. In the north existing residential communities. (Note: See Plan Appendix Half Moon Bay area, prime agricultural land, residential section on Examples of Subregional Plans for case study in- subdivisions, and underdeveloped recreational and visitor- volving Half Moon Bay.) SUBREGION 3: ANO NUEVO COAST [See Plan Maps 20-23] The rural coastline from Half Moon Bay to the northern owned with no facilities. Where public use exists, access fringe of Santa Cruz at Majors Creek contains a scenic often crosses agricultural lands, and vandalism is common. stretch of Highway 1, gently rolling grazing lands, produc- The subregional plan will attempt to provide both improved tive agricultural benchlands, commercial timber resources, access and greater protection for agriculture. several well-used beaches, and a major wetland at Pesca- several well-used beaches, and a major wetland at Pesoa- Because the coastline of this subregion is irregular, with dero. The settlements of Davenport and Pescadero are many small beaches, steep cliffs, and a hazardous tidal small but historic, and are designated as special coastal many small beaches, steep cliffs, and a hazardous tidal communities. Ano Nuevo Island, at roughly the center of area, application of the policies establishing a coastal trail the subregion, is an important wildlife habitat within the and increasing public use of the shoreline will require spe- Big Basin-Ano Nuevo State Park complex. The maintenance cial attention. The proposal to extend Golden Gate National of open space and commercial agriculture and provision of Recreation Area through San Mateo and Santa Cruz beach access compatible with croplands and natural habitats Counties should be evaluated accordigly. are important Coastal Plan policies for this subregion. Development Issues. Both Davenport and Pescadero would be affected by application of policies which would concen- Recreational Resources. The beaches in this subregion vary trate development in existing towns. Neither has excess greatly in size and potential. Most beaches in San Mateo public service capacity, but they might provide the least- County are part of the State Park system, but only minimal impact locations for new visitor-serving facilities or farm- permanent parking, and restroom facilities have been de- worker housing. A proposed nuclear power plant north of veloped. Miramontes Point, Franklin Point (magnificent Davenport might be incompatible with increased develop- beach-dunes area), and Pigeon Point/Bolsa Point area ment. Major changes in the limited land-related economic beaches are the major beaches remaining in private owner- bases of the towns would have significant impacts on use of ship. Most northern Santa Cruz beaches are privately surrounding areas, and so would conflict with Plan policies. SUBREGION 4: SANTA CRUZ [See Plan Maps 22-24] The urban area of northern Monterey Bay occupies terraces but recent and proposed State acquisitions (Wilder Ranch, and valleys between the Santa Cruz Mountains and eroding Terrace Point, Natural Bridges addition) preempt urban de- coastal bluffs. This subregion contains three cities (Santa velopment over much of the area. State Park and University Cruz, Capitola, Scotts Valley) and several unincorporated of California plans include campgrounds, beach access, and suburbs. Settled originally as agricultural and timber-pro- a marine research station. The level of access needed, cessing centers and summer-home communities, the Santa environmental safeguards for development, and protective Cruz area communities now serve as a major recreational measures for valuable coastal agriculture, archaeological re- and retirement location for inland residents. sources, and impacted urban neighborhoods will be estab- lished by a special study. North Santa Cruz Coast. Northwest of Santa Cruz, the coastal benchlands and creek valleys produce about 90 per Urbanized Area - Recreational and Development Issues. cent of the nation's brussels sprouts, as well as artichokes The urbanized area between Natural Bridges and New and other crops. The uplands support grazing and commer- Brighton Beach State Parks contains the bulk of recreation- cial timber. The area southeast of Majors Creek has been al facilities in the subregion as well as several significant designated by the City of Santa Cruz for urban expansion, coastal open spaces (e.g., Lighthouse Field, Yacht Harbor 230 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES uplands) and special coastal neighborhoods (e.g., Beach Moran Lagoons (bird habitats), and ponds near La Selva Hill, Capitola Village). One of the last amusement parks on Beach (a home of the endangered Santa Cruz long-toed sal- the California coast, safe beaches, and two fishing wharfs amander). Preserving these areas and restoring, where draw millions of visitors each summer. South of Capitola possible, degraded areas (such as Neary's Lagoon, Soquel suburban development predominates, and State Beaches Creek, and Rodeo Gulch) are important Coastal Plan poli- are interspersed with exclusive homes and beach cottages cies and shall be implemented through appropriate methods. below the coastal bluffs. To encourage increased recreational use with minimum ad- Special Study Area - Santa Cruz Harbor. In the Santa verse impact, application of policies encouraging coastal Cruz Harbor area, from Seabright Avenue in Santa Cruz to trail development, improved public beach management, in- 17th Avenue in Live Oak, and south of Capitola Road, are town parking and transit to the beaches will be the main fo- focused issues of protecting residential neighborhoods, cus of the subregional plan. Policies encouraging orderly maximizing access to coastal recreation, protecting remain- development, coastal-dependent uses and protection of ing open lands and wildlife habitats, and concentrating ur- agricultural lands will also be important in view of projec- ban growth. With the assistance of local residents, city, ted area growth. county, and port district, a special study of this area will at- Natural Habitat Areas. Important wetland habitats remain tempt to improve regional use of the harbor facility, as well despite urbanization: the San Lorenzo River (an important as determine appropriate land uses, access patterns, and anadromous fish stream), Younger, Schwan, Corcoran, and recreational-commercial balance of harbor use. SUBREGION 5: PAJARO-ELKHORN [See Plan Maps 24-26] This predominantly rural subregion stretches from the edge ment of the critical watershed. Location of the largest fossil of the Santa Cruz urbanized area to Moss Landing in Mon- fuel power plant in California at the mouth of Elkhorn terey County. It contains the lower Pajaro River Valley and Slough, the potential of a deepwater tanker terminal off- watershed, and four of the slough drainages that make up shore, and a proposed freeway extension from the Pajaro the Elkhorn Slough System. River to Castroville have raised major issues of oil spillage, Pajaro Valley - Agricultural Issues. The Pajaro Valley, air quality protection, and wetland preservation. covering 120 square miles, is one of the richest agricultural Although the major part of Elkhorn Slough is in public regions in California. The moderate coastal climate, fertile ownership, neither the critical watershed nor the wetland soils, intensiveness of cultivation, improved fertilizers and resource itself is adequately protected. A special study is technology, and the adoption of multiple cropping methods support a wide variety of food crops and return a high in- veopent in the critical watershed of the entire slough sys- velopment in the critical watershed of the entire slough sys- come per acrei But increasing drafets of groundwater, for tern and to establish priorities for the type and intensity of urban and agricultural use, have had adverse effects; the development in areas affecting the sloughs. water supply for 50 square miles of agricultural land be- tween the Pajaro Valley and Marina is currently threatened Watershed management and acquisition programs are rec- by saltwater intrusion. ommended to properly manage Elkhorn Slough as an estu- The urban center of the valley, Watsonville (population arine sanctuary and wildlife refuge. Monterey County, the 17,000), has grown rapidly, sprawling into surrounding Department of Fish and Game, and the Moss Landing farmlands. The healthy economy of the area, based on food Harbor District, as well as local residents and industries, production and processing, encourages expansion of Wat- will participate in identifying other areas of concern, sonville and its suburbs, Freedom and Pajaro. Substantial including wetland restoration and recreational facilities. growth of these communities would involve the loss of valu- able agricultural lands designated for protection under Recreation and Development Issues. Much of the coastline county plans and the Coastal Plan, and would necessitate in this subregion is in public ownership, but inadequate expensive solutions to the water supply problem. Plan poli- public access and a shortage of support facilities hamper cies call for concentrating development in existing urban recreational use. Second-home development of existing par- areas, such as Watsonville, Pajaro, Castroville, and Moss cels on the oceanfront south of La Selva Beach and the re- Landing, rather than allowing continued conversion of agri- cent completion of Highway 1 freeway from northern Santa cultural land. The agricultural lands of the Pajaro Valley Cruz County to the Pajaro Valley could accelerate develop- should be preserved; agricultural zoning and tax program ment pressures on agricultural and potential recreational changes could help greatly. Elkhorn Slough System. Elkhorn Slough, one of the largest Expansion. of Moss Landing industrial and harbor facilities and most important estuaries and wetland habitats in Calif- to meet new or existing demands, and new recreational and ornia, lies between the Pajaro and Salinas Valleys. It is residential concentration,will depend primarily on protec- threatened by locally planned expansion of existing indus- tion of the wetland and agricultural resources and provision trial and harbor developments, and by residential develop- of sewage treatment facilities. CENTRAL COAST * 231 Moss Landing power plant and marina SUBREGION 6: LOWER SALINAS VALLEY [See Plan Maps 26 and 28] This subregion, like the Pajaro Valley, contains some of Recreational Facilities. Recreational facilities in the sub- coastal California's most productive agricultural lands. Ex- region are minimal. Salinas River State Beach and Toro Re- tending from the old Salinas River channels to Fort Ord, gional Park (inland) should be augmented by public acqui- the valley is best known for its artichoke and lettuce crops, sition of the Marina Dunes, local or regional park develop- which enjoy important climatic and market advantages. The ment in Marina, and development of a coastal and Salinas lower valley contains three population centers-Castroville, River trail system. Marina, and Salinas, each of which has grown rapidly in re- cent years. Because these settlements are largely surround- Water Quality Issues. Agriculture depends heavily upon ed by prime agricultural lands, fragile dune and wetland maintenance of water quality; seawater intrusion and de- habitats, and a military reservation, their options for gradation by agricultural and domestic wastewater are seri- growth are severely limited. ous threats. A regional wastewater treatment facility to serve Salinas and the majority of the Monterey Peninsula Dune Protection. Recent developments such as Monterey has been proposed for location in this subregion. Disposal Dunes Colony and the Marina-Castroville freeway have en- options include a large Monterey Bay outfall, streamflow croached upon substantial segments of the unique coastal augmentation to the Salinas River, land treatment on the dune complex. Protection of the remaining dunes (few of highly porous pre-Flandrian sandhill grasslands north of which are now in public ownership) is an important Plan Marina, injection wells to establish a saltwater intrusion priority. barrier, and possible re-use for irrigation of selected agri- 232 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES cultural lands. Several of these disposal options could The impact of changing land use on groundwater supplies accommodate growth elsewhere, but would preserve exist- must be carefully investigated before subregional growth ing land use patterns at the mouth of the Salinas Valley, in can be consistent with agriculture and watershed manage- accordance with Coastal Plan policies. ment policies. S South of Moss Landing SUBREGION 7: MONTEREY PENINSULA [See Plan Maps 27-30] Fronting on Monterey and Carmel Bays, this subregion can be found in close proximity here, and should be inte- contains six cities and a growing military presence and grated into the Monterey State Historic Park. Local imple- tourist industry. Its resident population numbers about mentation programs shall establish appropriate means for 100,000. From the Victorian homes of Pacific Grove to the restoring and enhancing natural and manmade resources: redwood groves of the Carmel River watershed, the penin- dune habitats (Asilomar and Sand City), wetlands (Canyon sula offers a wide variety of scenic and recreational Del Rey), plant communities (17 Mile Drive), and historic attractions. sites (Royal Presidio of Monterey). Natural and Manmade Features. Some of the attractions of the subregion are natural features to be protected under Development Issues. Growth potential, from an influx of Coastal Plan policies: Point Lobos State Reserve, the pines personnel to Fort Ord, expanding convention and tourist- and cypresses of Del Monte Forest, the white sand beaches commercial facilities, and new subdivisions in Del Monte of Carmel and Asilomar, the high dunes from Marina to Forest, must be balanced against the limited water supply Monterey. Remaining agricultural lands in the Carmel and protection of remaining natural areas and special urban Valley area are recommended for preservation. Indian occu- communities. The Carmel Valley and Seaside area aquifers pation sites, Spanish and Mexican-era adobes, and have been degraded by overuse, and restoration of water representative buildings from American historical periods quality underground and water flow in the channels could quali~~~~~~~~ty ndrgrud wtrflo ntecanl ol CENTRAL COAST � 233 have many benefits. A management plan for the Carmel rare dune plants, vernal ponds, commercial sand mines, Valley watershed would be one major concern of the sub- Army rifle ranges, three sewage treatment plants, a hotel, regional plan. a freeway, and residential developments share the sandy environment. A special study of this area is recommended Recreational Opportunites. Implementation of Coastal Plan to establish appropriate levels of residential and commercial policies establishing management areas along the shoreline development, public access and recreational use, and and a coastal trail system will require special consideration wastewater treatment. in the Fort Ord-Sand City area, Pebble Beach, and south of Point Lobos. State acquisition of oceanfront meadows is The study will involve residents, local jurisdictions, and the underway, and will preserve a beautiful landscape from U.S. Army in joint efforts to plan for the housing needs of Carmel Point to Point Lobos. Another important recreation Fort Ord, orderly community growth and concentration of policy will seek to improve access to excellent diving areas development, effective management of water resources, such as Cannery Row and Carmel Bay in a manner consist- avoidance of geologic hazards, and protection of the mas- ent with resource protection and public safety. sive dunes and other natural features in the study area. Recommendations for protection of the scenic bay frontage, Special Study Area - Monterey Bay Dunes. The Monterey and for potential restoration of bay views from the freeway Bay Dunes area is literally a sea of sand. Cattle, begonias, will be made. SUBREGION 8: BIG SUR COAST [See Plan Maps 27 and 29-32] The scenic Big Sur area is world-famous for its rugged Highway 1 Capacity Constraints. In addition to possible wa- beauty. Highway 1 from Carmel to San Simeon is a recrea- ter supply problems, however, the most obvious constraint tional area of national significance, visited each year by on future development is the capacity of Highway 1. Ex- more than a million people. Existing conventional and wild- pansion of the road would be very costly and cause severe erness camping facilities are used to capacity, and thou- environmental impacts, conflicting with Coastal Plan poli- sands of visitors are turned away every year. cies. Peak weekend traffic is already congested, causing competition between residential and recreational users. Vir- Scenic and Recreational Resources. Grazing remains an im- tually a closed system, the 90-mile stretch of Highway 1 portant land use, and is a primary factor in the mainte- along the Big Sur Coast must serve several major purposes, nance of vast scenic landscapes. Access to the shoreline is both in response to traditional demands and to meet Coast- limited to a very few locations; there is no publicly owned al Plan policies. access north of the Big Sur River. Thus, the most popular attraction is the recreational motoring experience, enhanced Special Study Area - Carmel River to Cambria. A special by brief stops at scenic vistas, restaurants, and craft galler- study of the Big Sur Coast, from Carmel River to Cambria, ies along the highway. is required to resolve access issues, particularly the priori- ties between recreational and residential use of the remain- The U.S. Forest Service manages much of the back country, in cai o a and estals re ain ing capacity of Highway 1, and to establish preservation part of which is protected as the Ventana Wilderness. Between the ocean and Los Padres National Forest, the measures for the scenic landscape. Participation by the Between the ocean and Los Padres National Forest, the prime scenic corridor and day-use area of Highway 1, de- U.S. Forest Service, Monterey and San Luis Obispo Coun- prime scenic corridor and day-use area of Highway 1, de- ties, and coastal property owners will be essential. velopment conflicts are most acute. Although the existing ties, and coastal property owners will be essential. Monterey County Coast Master Plan calls for the mainte- The study should consider several options for achieving the nance of scenic quality through "low-density" residential objectives of the Coastal Plan: (1) improve service facilities zoning, its 21/2- to 10-acre minimums could permit as many within existing communities such as Big Sur Village and as 10,000 residences to be built within a 100-square mile San Simeon Acres; (2) create alternative development coastal watershed area. Water supplies may be inadequate patterns, particularly the clustering of permitted uses out- for such growth. side the viewshed; (3) reduce ultimate residential buildup through substantial acquisitions of land (or development Because of inadequate public facilities, the lack of a public rghsb tatal aciiti anae information center, and no public agency with overall man- rights) by State or Federal agencies; (4) initiat e manage- ment actions, such as parking restrictions, to improve the agement authority, the recreational promise of the Big Sur agemnt athorty, he rcreaiona proise f th BigSur quality of the recreational experience while protecting sen- coast is unfulfilled; problems of trespass, litter, vandalism, quaity of the recreational experience while protecting sen- stream pollution, and overuse often go unchecked. Disas- sitiv e areas from overuse; (5) provide Yosemite-style pu blic trous forest fires and mudslides in 1970 and 1972 underline tra nsportation, the use of which could be encouraged through a modest tell on private recreational vehicles; (6) the need for improved, unified resource protection. Never- th est to iate Pra i theless, because of outstanding scenic qualities, unspoiled convert the existing highway to a Big Sur State Parkway in beaches, old-growth redwood forests, and central location order to provide a practical means of controlling automobile within a few hours drive of both the State's major popula- access, providing visitor information, improving fire protec- within a few hours drive of both the State's major popula- tion centers, the Big Sur coast represents one of the na- tion,and funding acquisitions and improvements; and (7) create a system of reserves for management of sensitive ~~tions'bstreaiingprsevaio orunareas such as the Malpaso Beach-Soberanes Point area. 234 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES SUBREGIONS 9 AND 10: MONTEREY BAY AND CENTRAL COAST OCEAN AREA 0 [See Plan Maps 20-21, 23-24, 26-27, 29, and 31-321 The Central Coast Region encompasses approximately 600 and access and onshore facilities (restrooms) for surfers and square miles of offshore waters under State jurisdiction. divers will be important concerns of the subregional plan- The narrow continental shelf is penetrated by several ning effort. submarine canyons, including the mile-deep Monterey Canyon off Moss Landing. Sheltered waters are rare out- Water Quality and Resource Management Measures. Mon- side the 25-mile-wide Monterey Bay; of four harbors in the terey Bay's currents, marine invertebrates, sand supply region, two were dredged from wetlands and two are pro- systems, and mineral resources are the subject of much tected by large breakwaters. Elkhorn Slough, whose mouth study. Encouraging the development of information, sub- forms Moss Landing Harbor, is a highly productive marine regional study will attempt to apply Plan policy guidelines habitat, home of two endangered bird species, and to particular problem areas; open-water sewage discharges represents a valuable potential aquaculture resource if wa- from local or regional sources, expansion or restriction of ter quality is improved. the sea otter habitat, assessment of harbor expansion needs on a bay-wide basis, development of new port facilities for Many important marine biological communities thrive here: Pacific Gas & Electric Company, increasing recreational im- The California sea otter, once nearly extinct, now ranges pact on special underwater areas, and establishment of north of its official refuge well into Monterey Bay; the nor- scenic protection measures for the highly visible bay shore- thern elephant seal breeds on Ano Nuevo Island within a line. State reserve; regulations protect the numerous offshore rocks for sea lions and seals that "haul out" and birds that Protection and improvement of water quality are vital to all breed there. Valuable kelp beds support fish, invertebrates, uses of coastal waters, and Coastal Plan policies dealing and otters. Rich tidepools are located along much of the with agricultural, toxic, thermal, sewage, and other dis- rocky shoreline; outstanding examples at Point Lobos and charges. Nearshore and poorly treated sewage discharges Moss Beach are preserved and provide recreational and (as at Pillar Point, Soquel Point, and Point Pinos) pose se- educational opportunities. vere aesthetic and biologic problems, and must be phased out. Scientific research in marine biology and oceanogra- Commercial and Recreational Use of the Marine Environ- phy, as conducted by Hopkins Marine Station, U.C. Santa ment. Commercial use of marine resources is an important Cruz, Moss Landing Marine Labs, U.S. Navy postgraduate component of the regional economy and includes kelp har- school, and the California Department of Fish and Game at vesting, aquaculture, commercial fishing, and sea water Granite Canyon, is strongly supported by the Plan. The magnesium extraction. The Coastal Plan supports coastal- data provided by these studies will be especially valuable dependent activities such as these, and requires locations for the establishment of effective resource management and levels of extraction that have minimal impact on biolog- strategies. ic systems, scenic and recreational resources. The State sanctuary currently prohibiting oil drilling in Popular recreational uses of the coastal waters include div- Monterey Bay could be extended to cover other sensitive ing in Carmel Bay, surfing at Steamer Lane, and sailing on offshore areas of the region, or a Federal Marine Sanctuary Monterey Bay. Swimming (in warm waters at Santa Cruz), could be established, covering a larger area. Important surfing and diving at many other locations, and fishing off benefits would accrue, particularly in protection of special piers, breakwaters, and boats are also attractive features of habitats and beaches from the hazards of oil spillage, and this subregion. Encouragement of recreational use which such action would recognize significant hazards and con- does not harm the environment is an important policy of straints to the establishment of onshore petroleum facilities the Plan; locating areas for recreational boating expansion along most of the Central Coast. SOUTH CENVTRAL COAST *2,35 SOUTH CENTRAL COAST The South Central Coast Region extends some 250 miles suhCnrlCatSbein from San Luis Obispo County to Ventura County. The SuhCnrlCatSbein region's landscape changes dramatically, alternating from MONTEREY steeply sloping mountain ranges to broad alluvial plains......... and rolling foothills. Some parts of the region provide an uninterrupted view of ocean, beach, bluff, grassy terrace, L. and hillside, through which one can travel for many miles. Attractive coastal communities enhance the experience of , the natural landscape of this region, providing necessary 2 SAN LUIS OBISPO . services and diverse cultural values. But these natural and - manmade coastal resources are in danger of being lost, in- undated by inconsistent developments. The continued exis-4 tence of clean water and air, areas rich in marine life and wildlife, offshore reefs and nesting sites, rare plant comn munities, rocky and sandy beaches, and sand dunes that have not been altered by development, is vital to the entire 11iSANTA BARBARA State as well as to the social and economic viability of theI region. IVENTURA Because the South Central Coast contains many valuablePot ncjtn and relatively unspoiled areas, it presents an almost un -.8 paralleled opportunity for coastal resource protection. It7 also constitutes a major opportunity for meeting increased 9i- recreational demand in the future. Simultaneously, how -SnMgte ever, the region is feeling massive pressures for energy-\.- ~ a~ rri related developments. In no other location is the challenge ~Rs for wise balancing of future needs so compelling, nor the value of what is not yet committed so great. SUBREGION 1: SAN SIMEON-CAMBRIA [See Plan Maps 33-34] The San Simeon-Cambria area is the physical transition be- end of the subregion the highway emerges at the mouth of tween the mountainous coast of Big Sur and the oak wood- Villa Creek and traverses southeast along the inland edge land hillsides, terraces, and bluffs typical of San Luis of an open grassy terrace from which it is possible to see Obispo County. From Ragged Point south the coastal ter- the community of Cayucos (lying ahead across Estero Bay) race widens and the hills become more gentle, covered with and, on a clear day, Morro Rack. grass and oaks rather than chaparral. Those traveling south- ward on the winding scenic road along the Big Sur coast Open Space Values. The open character of this section of are greeted by the flashing 50-foot signs of San Simeon coastline is recognized by the Coastal Plan and in San Luis Acres calling attention to the motels, restaurants, and gas Obispo County zoning and open space; plans, but not in stations. South of San Simeon the coastal highway passes adopted general plans. For example, the old general plan through the village of Cambria and the remnants of the would allow a community of 70,000 on the undeveloped Cambrial Monterey-pine forest. Highway I continues south- Hearst Ranch. Current agricultural land uses are primarily 0 ~~~ward behind the coastal hills, past grassy slopes scattered responsible for the maintenance of the outstanding scenic is ~~with clumbs of trees and a few weathered barns along with character of the subregion. This subregion provides grazing the recently revived village of Harmony. At the southern for beef cattle with early calves. 236 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES The community of Cambria is concerned with the preserva- Plan policies for this subregion, as detailed in the Map tion of streams and hillsides, the continued existence of the Notes, stress protection of marshes, sand dunes, habitats of pine forest, and the loss of views from their homes, as in- rare and endangered species, and valuable marine and land creasingly larger homes are built along the immediate habitat areas. The Plan calls for special protection for the shoreline. Cambria was originally subdivided into 25-foot- designated special communities of San Simeon and Cam- wide lots in the 1920s, but only a third of the lots have bria. Highway 1 is to remain a rural two-lane road. The been built upon. Steep hillside lots that presently form the conflicts between agriculture and recreational uses through- wooded backdrop of the town would be unbuildable if the out this subregion will be resolved by establishing a clear trees are to be saved; other lots on the bluffs will probably, demarcation between the two in the special study described in the long run, require retaining walls and riprap on the below. beaches to protect the houses. Natural Habitats. Anadromous fish streams and numerous Special Study Area-Monterey County Line to Cayucos. A small marshes, canyons abundant in biological life forms, special study is proposed for the area from the Monterey and scattered varied habitats for land species are common County line to Cayucos to (1) resolve conflicts between agri- and important natural coastal resources. Habitats for aba- cultural uses (primarily grazing) and the residential and lone, lobster, and other nearshore species and their preda- recreational uses of Cambria, San Simeon, and Highway 1; tors, including the sea otter, lie offshore. Kelp beds sustain and (2) establish a clear demarcation between agricultural fisheries and reflect the relatively undisturbed and delicate uses and the public recreational uses along the coastline. marine environment of the subregion. To maintain this subregion as a scenic open space area, the Recreational Resources. San Simeon State Park attracted present low-intensity grazing agricultural uses should be 1.2 million visitors during 1974, and the majority toured encouraged through appropriate zoning, limitations to ur- Hearst Castle State Historical Monument. Highway turn- ban services to serve existing developed areas, and agricul- outs and the State Parks currently provide over 300 day-use tural preserve contracts. The proposed Coastal Trail shall spaces, which are used to capacity during the warmer not interfere with agricultural use, but should be establish- months. Some bluff-front lots in Cambria are State-owned, ed to connect State-owned recreational land and beaches. providing small parks with wild flowers and natural bluffs. This would provide another public access to recreational The cold and rocky beaches of the subregion are used for areas, other than the use of automobiles. The trail shall not walking, photography, fishing, and SCUBA diving. South of contribute to the degradation of the environment by passing Cambria the only coastal access and view of the untouched through sensitive biological areas, such as the estuaries of coastal terrace is provided by the Cambria Air Force Base San Simeon and Santa Rosa Creeks. Urban encroachment parking lot, will be kept at a minimum by keeping residential develop- ment to the subdivided areas of Cambria, but at the same Plan Issues and Proposals. Public comment in the subre- time protecting and maintaining the native Monterey-pine gion has strongly supported urban limit lines, preservation forest. The villages of San Simeon and Harmony shall be of agricultural land uses, protection of the existing high wa- kept small and tourist-oriented. The San Simeon Acres ter quality of the ocean and streams, restrictions on stream commercial area along Highway 1 could provide additional bed mining, and prohibition of electrical generating plants. commercial tourist facilities as the demand increases. SUBREGION 2: ESTERO/MORRO BAY [See Plan Maps 34-36] From Point Estero to Point Buchon the Central California Oro State Park, which occupies 7,000 acres at the end of Coastline curves inland to meet two stream valleys that join the public coastal road near Point Buchon. in Morro Bay, one of the largest estuaries on the coast. South of the bay are high sand dunes, which were trapped Coastal Communities. Three distinct coastal communities in Pleistocene times by the natural groin at Point Buchon are found along the shore. Cayucos, formerly an agricultur- and are known today as the Baywood Park-Los Osos Area. al village, is still small enough to tour on foot. Morro Bay is The Irish Hills form a mountainous barrier between the a tourist town which began as an early fishing settlement. northern county coast and the subregions to the south. Baywood Park-Los Osos, subdivided in the 1890s and sold to midwesterners through magazine advertisements in the Highway 1, running southeast from Point Estero along open 1920s, has experienced a recent building boom. agricultural coastal terraces, bends around Cayucos and parallels Atascadero Beach. At Morro Bay it turns inland These communities provide relatively smog-free retirement and follows the string of Morros through agricultural and spots with small populations and distinct boundaries. Such institutional land to the City of San Luis Obispo. A traveler communities have what respondants to a Regional Commis- following the coastline drives southward through the City of sion questionnaire called "a small town atmosphere"--a Morro Bay and the State Park on the edge of the bay, along slow pace and information about local events. They are a suburban roads through Baywood-Los Osos, to Montano de safe as well as an economical place in which to retire. In SOUTH CENTRAL COAST * 237 these communities a few feet of height on a house, a par- quality, water pollution levels, and numbers and kinds of ticular tree, a view of a small promontory, or other unmap- species found. pable features of the physical environment are important to a great many people. At the same time community resi- Priority Plan policies for this subregion stress protection dents expect government to be close, informed, and flexi- and restoration of the estuarine and marine resources, with ble, and not to unnecessarily regulate what a person may development proposals to be regulated accordingly, and do with privately owned land. special protection for the coastal communities of Cayucos, Morro Bay, and Baywood Park. Selected acquisitions are Natural Habitats. The most important natural resources of designed to protect sensitive habitat areas and rare species this subregion are the profuse, complex system of upland and to aid in protection of the designated special communi- streams and valleys, marshes, bays, and nearshore reefs ties. A coastal hiking trail advocated for the presently inac- that provide nesting and feeding sites for thousands of fish, cessible stretch south of Montana de Oro will increase pub- migratory birds, and marine animals. Pelagic birds fish in lic enjoyment of this stretch of the coast. Estero Bay; migratory geese land and herons nest in Morro Bay. Shorebirds, hawks, and falcons rest near the bay and Special Study Area--Monterey County Line to Cayucos. See prey on rodents and other birds. The abundance of birdlife description above under Subregion 1. is an indication of the quantity of food available in the Special Study Area--Morro Bay Watershed. Morro Bay, marshes and offshore in Estero Bay. Fishermen take which is listed as one of the top 10 priority wetlands in Cal- advantaqe of the clams and oysters living in the bay mud ifornia by the State Department of Fish and Game and the and of the variety and number of fish in Morro and Estero U.S. Bureau of Sport Fisheries and Wildlife, should be the Bays that feed on plankton or other fish. More than 300 subject of a special study. The study area boundary should fishing boats of various sizes operate out of Morro Bay; be considered with two objectives in mind: the primary stu- landings of fish caught in nearshore areas in Morro Bay in dy area would be the natural watershed drainage surround- 1973 were worth $1.2 million. ing Morro Bay; and a secondary study area would include Other natural resources include agricultural land, excellent other bay issues such as marine littoral and coastal dynam- quality groundwater, rare dune plants, and unique combi- ics. The special study area would make use of the Intergov- nations of scrub and chaparral that shelter the remaining ernmental Comprehensive Morro Bay Watershed Study to population of the local endangered species, the kangaroo include policies on present and future land uses with an rat, emphasis on natural resource conservation. In recent years abalone has ceased to be a viable commer- There should be regulation of land use within the water- cial fishery in the subregion; in addition, the increasing sil- shed area to protect sensitive biological areas such as Mor- tation of the estuary and the inexplicable dying off of oy- ro Bay estuary, the kangaroo rat, peregrine falcon, great sters have increased concern for the vulnerability of this blue heron habitats, and unique and landmark vegetation. subregion's natural resource system. The sensitive biological areas would also be protected from recreational overuse by the public. Existing communities Plan Issues and Proposals. Within the next year major deci- should plan for water supply, sewage disposal, urban de- sions may be made on converting existing small oil termi- velopment and open space. Within the South Bay area, nals to (1) a major supertanker facility to handle immedi- particular attention should be paid to establishing a growth ately 520,000 bblsiday, with an eventual capacity of 1 mil- rate that does not adversely impact the existing system of lion bbls; and (2) a major fuel oil terminal for the power water supply and groundwater recharge. The provision of plant. The industrialization of the shoreline and the ocean urban services should be consistent with the demand and in the area could result in major changes in ambient air the ability of the community to finance them. SUBREGION 3: SAN LUIS BAY AND PISMO DUNES [See Plan Maps 36-37] From Port San Luis southward extends a string of small through the Nipomo dunes and into Santa Barbara County. towns-Avila Beach, Pismo Beach, Grover City, and Oce- The Pismo clam is a valuable and increasingly scarce food ano-that have distinct social and geographic identities. resource found in only a few spots along the California Highway 101 emerges from San Luis Obispo valley at Pis- coast. At Pirates Cove and Beach, there are 40- to 80-foot mo Beach, turning inland again south of town. The pres- bluffs. ence of this access to sandy beaches has made Avila and Pismo Beach "the beach" for San Luis Obispo County and Manmade Features. Avila is a small commercial fishing vil- for communities as far east as Fresno, as well as northern lage. All the coastal communities provide inexpensive Santa Barbara County. homes and overnight accommodations. Pismo Beach retains some of the original small-town feeling of a beach commun- ity. Pismo Beach, Oceano, and Grover City together provide South of Pismo Beach a pattern of agricultural plains, small the only widely used off-road recreational vehicle beach in creeks, wetlands, and sand dunes begins that continues the State. 238 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES At Port San Luis a lightly used harbor, little motels, small brought use fees and restrictions on camping, reducing the houses, an amusement park, and the State Park provide the numbers of sites available. opportunity for access by people of a wide range of incomes and interests. Behind the dunes, freshwater marshes remain relatively untouched. They are listed for preservation in every official Recreation and Natural Resource Issues. At Pirates Cove conservation document. Proposals under discussion for this beach, one drives out a county road, parks on the bluff top, area include increased vehicular access to the Dune Lakes and scrambles down precipitous narrow paths to the beach. and increased development around them, both apparently In parts of Shell Beach, tiny paths cross subdivided lots in conflict with Plan policies that accord them special pro- along the brink of the bluffs. The Dinosaur Caves are sur- tection. Coordinated watershed management policies are rounded by foot paths. Automobiles, dune buggies, and crucial to the protection of the valuable freshwater habitats campers drive south from Grover City to enter the dunes. of Oso Flaco and the other dune lakes. Communities of In all cases, access and use is uncontrolled, primitive, un- special character to be protected include Avila, Pismo safe, and possibly damaging to the land, vegetation, and Beach, and Oceano. animals. Construction of houses and motels, the conversion Other resources of the subregion include prime agricultural of the dunes portion of Pismo State Park, and wear and land, stabilized dunes planted with eucalyptus trees, and tear caused by the increase in the numbers of visitors will grazing land. Plans to straighten the winding rural section make necessary restrictions in public access over the next of Highway 1 on Nipomo Mesa are under consideration, but few years. may conflict with Plan policies. Between Pismo and Nipomo Dunes are 15 miles of sandy Plan Proposals. Plan policies detailed in the Map Notes en- beach and dune coastline essentially dedicated to recreation visage continued high recreational use for this area, includ- and limited industrial use. The tall and dramatic dunes are ing expansion of recreational and commercial fishing facili- singled out in many reports for their statewide and even ties at Port San Luis, and acquisitions of public access and national interest and unique vegetation. The beach south of use areas, but with controls as necessary for resource pro- Pismo has historically been used for camping and clam- tection. Coordinated watershed management policies are ming. The advent of off-road vehicles and the increase in crucial to the protection of the valuable freshwater habitats the popularity of recreational vehicles over the last 10 years of Oso Flaco and the other Dune Lakes. Communities of has heightened conflicts between preservation and recrea- special character to be protected include Avila, Pismo Beach, tional use. State ownership of some of the dunes has and Oceano. Nipomo Dunes, near Pismo Beach, San Luis Obispo County : air - :b:, I' ' + ' J '"- /;� ..: ,/, - ... " / ,' r: ~~~~~~~~~~ 8� i�~~~~~Al 0~~~~~~~~~~~,a~ N ~~ ~ i% ~� 2;-~ � SOUTH CENTRAL COAST * 239 SUBREGION 4: NORTH SANTA BARBARA COUNTY [See Plan Maps 37-40] The northern part of Santa Barbara County is physiographi- Edison once considered building a nuclear power plant. Be- cally part of San Luis Obispo County. Dune complexes con- cause too little is yet known about the potentially severe tinue south to the natural groin at Point Arguello. Rolling hazards of LNG operations, an isolated spot such as this hills, a coastal terrace, and bluffs continue east of Point may be considered to protect human safety, although strict Conception to the Santa Barbara area. Public access is controls would be required to orevent further disruption of available at only three points (Surf and Jalama Beaches and the pristine environment. In general, the Plan advocates Point Sal) between Guadalupe and Gaviota, a distance of clustering of industrial facilities that must be located out- about 60 miles. side of urban centers and, where safety to urban popula- tions can be assured, prefers location of industrial facilities Natural Resources and Recreational Opportunities. Present- within existing developed areas. Coastal agency approval ly, the use of the Guadalupe Dunes, Vandenberg, and Bix- would be required for any major energy installation, as by and Hollister Ranch properties is low intensity, resulting would already-required local government approval for any in the presence of a large variety of plant and animal spe- privately owned facility. cies, some unique to this undisturbed area. Kelp beds off the coast east of Point Conception provide good fishing for The Plan policies would preserve the open quality of this Santa Barbara's commercial fishing fleet. Fishing is restric- subregion. Habitat protection, including special protection ted off Vandenberg. for the Santa Ynez River, and appropriate increases in con- trolled public access are also priority policies in this area. The surfing at Hollister Ranch has international renown. The Guadalupe Dunes shall be preserved for wilderness Three large properties provide the longest stretch of unde- and for low-intensity recreational use. A special study veloped coastline in central California and an unprece- called for in the Santa Barbara Channel area (see Subregion dented opportunity for preservation with controlled access 9 summary) will also affect development decisions along and a single coastal trail. this section of the coast, especially in regard to energy-re- lated facilities. Plan Issues and Proposals. There has been some discussion of a liquefied natural gas (LNG) facility at Cojo Bay, just Special Study Area--Santa Barbara Channel. See description east of Point Conception, on land where Southern California below under Subregion 9. SUBREGION 5: SOUTH SANTA BARBARA COUNTY/ GAVIOTA-RINCON [See Plan Maps 41-42] This subregion contains many urbanized areas, starting runoff, conversion of uplands to tree crops, and removal of from Ellwood on the west and stretching almost continually vegetation cover from the hillsides. The Goleta Slough has through Carpinteria to Rincon Creek on the east. Highway an airport in it; what was once the Santa Barbara estuary 101 is the major and only transportation corridor, serving has warehouses and sewage treatment plants; and El local as well as intrastate traffic. Where the coastal plain Estero of Carpinteria is kept biologically alive by periodic widens in Goleta, development has spread out over agricul- dredging. In spite of their endangered state, these tural land, leaving only scattered parcels in farming. The estuaries supply habitat to a surprising number of birds. Santa Barbara metropolitan area extends east to Rincon Mountain, encompassing Goleta, Santa Barbara, and Car- Local agricultural land has been in lemons and avocados as pinteria, and north up to the foothills of the Santa Ynez long as 50 years. As flatland orchards age, they are re- mountains. placed by flowers, greenhouses, or housing, while new tree crops are being planted on hillsides denuded for the pur- Natural Resources. There are well-established kelp beds off pose. The air, until possible construction of refineries, will the Santa Barbara coast that support many fish. Small remain relatively clean. coastal streams support some steelhead trout. At the mouth of each little stream is a small lagoon, some large enough Plan Issues and Proposals. The subregion's water supply is to maintain a pair of whitetailed kites. The foothills are from local aquifers and reservoirs in the nearby Santa Ynez 0 covered with abundant chaparral. Mountains. Development is presently very near or over the safe yield level of local aquifers, and plans under discussion The larger estuaries are in the populated valleys and these include groundwater mining and importation from the State have suffered from siltation and pollution from storm drain Water Project. 240 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES Coastal Plan policies call clearly for resolving substantial large-scale condominium development. Too much develop- conflicts between development pressures and resources in ment at too fast a pace will hasten the loss of the smaller favor of protection of coastal resources. Proposed acquisi- town community-neighborhood aspect it now has. Also, fur- tions, trails, and support facilities will substantially increase ther urban development would conflict with present land access and recreational opportunities; acquisitions will also use-agriculture. This area is primarily Class I and II soils, help give necessary special protection to Goleta Slough, and the coastal climate makes it an ideal area for agricul- Devereaux Lagoon, and El Estero. Also slated for protection ture, especially lemons and avocados. Flowers are also are the special coastal communities of Isla Vista, downtown grown, but the greenhouses often cover Class I and II soil Santa Barbara south of Highway 101, Montecito, Summer- which could be used for food crops. Further development land, and Carpinteria (from Carpinteria Avenue to the should also be controlled because water is in short supply beach). in the entire Santa Barbara South Coast area. Additional Resolutions to difficult conflict areas are to be worked out building could cause a water shortage and drive the cost of in detailed special studies of the Carpinteria Valley and the water up for the farmer. The sewage treatment plant in Santa Barbara Channel, which will affect decisions about Carpinteria is nearing full capacity and any extensive devel- on-shore energy-related facilities in this subregion. opment will necessitate large capital outlays for plant im- provement and expansion. Access to and within the Carpin- Special Study Area-Santa Barbara Channel. See descrip- teria Valley is by Highway 101, which is also the primary tion below under Subregion 9. transportation link for the entire State. Special Study Area-Carpinteria Valley. A subregional plan should be prepared for the Carpinteria Valley, with the Stringent protection of El Estero, otherwise known as the primary objectives being to (1) resolve the conflict of com- Carpinteria Slough, should be enacted. It is one of the 10 peting uses (urban, agriculture, and greenhouses) of prime sloughs listed by the Department of Fish and Game for pri- agricultural lands; (2) determine the total available water ority acquisition. The biological diversity of the slough has supply within the coastal watershed; and (3) establish a already been reduced due, primarily, to urban encroach- system of preservation and restoration for El Estero ment and siltation. Protection can be given the slough by (Carpinteria Slough). not permitting any further urban encroachment into the slough and by reducing siltation by use of upstream water- The Carpinteria Valley is unique because it retains a small shed conservatioi practices that minimize grading on steep town atmosphere, even though there are plans for further slopes and the provision of debris basins. SUBREGION 6: RINCON [See Plan Map 42] Petroleum processing, surfing, and beach cottages have being replaced by large houses, but the clustering that now been the traditional uses on the narrow terraces at the foot exists minimizes their impact. Highway construction on the of Rincon Mountain in Ventura County. The surfing limited beach and into the water has caused loss of sand beaches of the subregion are well known. The subregion al- from some beaches. The old coast highway provides access so functions as a transportation corridor between the Los to the beaches, spots for weekend campers, and a possible Angeles area and Santa Barbara. site for the coastal trail. Manmade Features. Several clusters of cottages are found Oil processing takes place alongside the highway and out of where the terrace widens. The beach cottages are slowly view on adjacent terraces. The current oil separation plants serve both onshore and offshore oil production facilities. Plan Issues and Proposals. Pressures exist to intensify uses within this subregion. Plans are being discussed to build a dump in a coastal canyon and to convert agricultural lands to condominiums. Currently the brush on the hilltops is being cleared for avocado production, resulting in some in- creased erosion. There are several small parcels of agricul- tural land that afford a textural contrast with the chaparral. Policies for this subregion, as detailed in the map notes, call for maintaining the scale of existing development, pro- tecting the special character of the Rincon beach communi- ties, protecting natural resources, and increasing appropri- ate recreational use. Special Study Area--Santa Barbara Channel. See description below under Subregion 9. SOUTH CENTRAL COAST * 241 SUBREGION 7: VENTURA AND OXNARD PLAIN [See Plan Map 43] The Ventura and Santa Clara Rivers have cut wide flood- ment. Even with sand loss and previous bulldozing of plains through the coastal mountains. The Ventura and dunes, there remains a pattern of broad sandy beaches, low Santa Clara River estuaries, Mugu Lagoon, and McGrath dunes, and freshwater lagoons. Lake are jeopardized by effluent, fertilizers, and siltation. This area is no longer self-sufficient in terms of water; the Three major intensive uses of the coastline are presently Calleguas District imports water from the Los Angeles area. under discussion: Port Hueneme beachfront redevelopment, Air pollution levels are the highest in the Region. the Ventura Marina, and an LNG terminal. In all of them, continued public use of the coastline is a major benefit to Agricultural Lands. The most important resource of this be protected during more detailed planning. (See also the subregion is the prime soil on the Oxnard Plain. While Subregion 9 discussion regarding special study of energy- these lands provide a statewide agricultural resource, they related impacts throughout the Santa Barbara Channel.) are relatively cheap potential building sites. On the Oxnard Plain there is an immediate and difficult conflict between Access to the beaches in the subregion is good, but support the Coastal Plan policy of preserving prime agricultural facilities and parking are lacking. Plan policies call for im- land and local plans for development, which include the ex- provement of access to the marinas, canals, and ports of pansion of neighborhoods with self-contained schools and the subregion, which is presently inadequate. The proximity parks. to Los Angeles and Thousand Oaks and the large popula- tion of Oxnard itself make it necessary to plan for fairly Subregional study on a parcel-by-parcel basis is necessary heavy use of the beaches. to carry out agricultural preservation policies in this subre- gion and to establish appropriate urban-rural boundaries Other priority policies included selected acquisitions (pri- and agricultural buffer areas. marily for regional recreational use), water quality protec- tion through control of upstream discharges and runoff, and Manmade Features. The subregion's economic base- . . . agriculture, oil, and the military - is reflected in the de- sign of its cities. With the exception of parts of Ventura, Special Study Area-Ventura-Oxnard Plain. A special study the cities do not focus on the coastline. of the Ventura-Oxnard Plain area is needed to resolve con- Different and distinct beach neighborhoods are identified flicts between projected urban growth and prime agricultur- by the Plan for special protection. These are Pierpont al land. The primary objectives will be to (1) determine Beach in Ventura, Hollywood and Silverstrand Beaches, reasonable conversions of agricultural lands necessary for Beach in Ventura, Hollywood and Silverstrand Beaches, and Oxnard Beach. The relation of each to the coastline is the logical completion of existing neighborhoods within the different, but they are the only neighborhoods that relate Cities of Oxnard and Ventura, in accordance with Coastal directly to the ocean. Plan policies; (2) ensure that all other prime agricultural lands will remain in agriculture; and (3) develop further Plan Issues and Proposals. Loss of sand from rivers and the programs for tax equity for agricultural lands. interruption of littoral drift have contributed to the loss of beachfront houses on Oxnard Shores. The Plan calls for re- Special Study Area--Santa Barbara Channel. See description medial programs and interim control of beachfront develop- below under Subregion 9. Citrus grove, east of Ventura 242. PART IV: PLAN MAPS AND REGIONAL SUMMARIES SUBREGION 8: POINT MUGU SOUTH [See Plan Map 44] South of Point Mugu is an area relatively unchanged by hu- The Regional Water Quality Control Board has designated man intrusion. The steepness of the Santa Monica Moun- the intertidal and offshore waters as an Area of Special Bio- tains limits development but encourages recreational use. logical Significance. This also enhances the area for recrea- Within the mountains, Point Mugu State Park preserves tional use and limits any further development along the much of the beauty of Big Sycamore Canyon and permits small portions of coastal terrace. Since the mountains are recreational use of the mountains. too rugged for further development, the area should remain open for wildlife habitat. This subregion functions as a transportation corridor for the Plan Proposals. This area is already heavily used for Los Angeles area beach users. There are turnouts along recreation. More day-use facilities should be accommodated Highway 1 that campers, fishermen, and hikers use for out- by starting a bus line along Highway 1 to keep traffic door recreation. There is a small cluster of beachfront down. More trails in the Santa Monica Mountains will en- homes in the southern portion of the region, but the steep courage foot and bicycle travelers, as will a few hostels hillsides and narrow coastal shelf limit their growth. This along those routes accessible only by such modes of trans- area is designated by the Coastal Plan to remain as open portation. Recommended expansion of Leo Carrillo State space. Park will further increase recreational opportunities. SUBREGION 9: SANTA BARBARA CHANNEL AND THE CHANNEL ISLANDS [See Plan Maps 45-49] The Santa Barbara Channel stretches from Point Concep- The only islands open to the public are Anacapa and Santa tion to Point Mugu across from the south Santa Barbara Barbara Islands, comprising the Channel Islands National coast to the Channel Islands. The wide stretch of sea is of- Monument. However, Santa Barbara Island is not as easy ten used by boating enthusiasts as an area for good week- to reach or land on as Anacapa. Legislation now before end sailing. The numerous points and reefs are excellent Congress would establish a Channel Islands National Park habitats for aquatic species which sport fishermen readily that would extend protection to San Miguel, Santa Rosa use. Unfortunately, there is a conflict over the channel by and Santa Cruz Islands as well. recreationists, commercial fishermen, and the oil industry. The Coastal Plan recognizes the ecological value of the San- The conflict has been going on for years and continues to ta Barbara Channel Islands and supports efforts to study intensify. them as a preserve. No development shall occur on the The Channel Islands are unique because they provide some Santa Barbara Channel Islands and in the channel waters of the remaining native plant and animal habitats. Marine- inconsistent with their status as a fragile resource area. The related animal species use the islands for rookeries since islands shall not be developed significantly beyond their they are relatively undisturbed by man and marauding land present levels, with only low-intensity recreational use animals. Also, since the islands have been cut off from the allowed. Limiting the number of visitors in the future may mainland, differences in evolution have occured; thus uni- be necessary to preserve the islands' delicate habitat. que animal and plant species have developed, such as the Those islands which now are or in the future come to be Those islands which now are or in the future come to be Island Fox. The bluffs and relatively barren slopes provide publicly owned shall be administered on a low-intensity, a sequence of linear forms from the sea. The miles of open limited-entry basis. shoreline offer innumerable habitat areas for all forms of life and the openness offers to man a sense of isolation not Energy Facilities. The number of oil installations permitted available anywhere on the mainland. From the mainland, within the channel and the outfalls connected with such in- the islands appear and disappear as the weather changes stallations alter the channel considerably for recreational from crystal clear to fog. and commercial fishing uses. At the moment, fishing Access and Resource Protection. Access to the channel and grounds in the channel are on the Ventura Flats, immedi- the islands is by boat. Small pleasure craft cruise the chan- ately west of Goleta, and around the islands, where there is nel and anchor in island coves for a closer look at the is- little onshore devlopment of any kind. Marine installations, lands. Another recreational use is offered by the sport fish- even underwater completions, interfere with commercial ing boats with day trips for fishermen without their own fishing operations for a considerable distance around them, boats. depending on the currents. SOUTH CENTRAL COAST � 243 The Santa Barbara Oil Spill of 1969 has created a great an- Special Study Area-Santa Barbara Channel. The Santa tipathy between the general public and the oil companies. Barbara Channel and the adjacent onshore areas on both The people want greater restrictions on the methods of the islands and the mainland are under pressure for in- drilling so that another spill will not repeat the tragedies of creased use. A special study of this area should be under- the 1969 oil spill. Also, stricter laws for drilling and waste taken, with the primary objectives to determine (1) the off- disposal would stop the amount of excess tar along the shore and onshore impacts of State and Federal Outer Con- beaches. tinental Shelf (OCS) oil and gas development; (2) the im- pacts on the social and economic structure of the South No additional industrial development shall be allowed with- Coast Area of Santa Barbara County (Ellwood to Carpinter- in the continental shelf, on onshore island areas, or where ia); (3) the cumulative impact of all existing and proposed the fragile island resource area would be adversely affec- energy production and distribution facilities (such as two ted. Completion of operations on existing leases shall be proposed LNG facilities, a proposed oil and gas separation reviewed for consistency with relevant Coastal Plan poli- facility, and additional oil production platforms on Federal cies. The necessary detailed evaluations of any extensive OCS lands); and (4) the impact and safety of increased energy development proposals shall stress the goal of pro- tanker traffic within channel waters. Other objectives will tecting valuable natural coastal resources. be established at the time the study is initiated. SOUTH CENTRAL COAST APPENDIX SPECIAL PLAN CONCERNS IN THE SOUTH CENTRAL REGION. In addition to the general guidelines contained within the Bluff Protection Structures. The visual impact of any per- Part II policies, the following detailed provisions shall apply mitted bluff protection structure shall be minimized in the to development within the South Central Coast Region. following ways: (1) no structure may be more than eight feet in height without proof from a qualified engineer or Agriculture. Protection of threatened prime agricultural geologist that a larger structure is needed; (2) walls shall lands, especially in the Oxnard Plain, Ventura, Carpinteria, not be of rubble, sandbags, or unfinished concrete; (3) Goleta, and Oceano, are a prime concern of the Plan in this walls shall be of natural materials, or of colors and textures region, as are shifts to greenhouse agriculture and to non- compatible with the colors found in the rocks and sand at food production. Use changes on other agricultural lands, the site; (4) no retaining wall or seawall shall extend more including grazing lands, on coastal terraces and hillsides than 100 feet in length without a change in direction andlor between Ragged Point and Morro Bay, south of Montana wall texture; and (5) any wall over 8 feet tall or 10 feet in de Oro State Park, and intermittently through Santa Bar- length shall be approved by a qualified landscape architect. bara County to Ventura, such as erosion-prone conversions to avocados or development of energy-related facilities, Bluffs and Public Access. The public access provided in ac- shall be given special consideration by the coastal agency. cordance with Plan policies shall reflect the density of the community and the type of use expected, and the current use by the public of the site. The access shall take into Ocean Views from Subdivisions. Houses built in existing use by the public of the site. The access shall take into subdivisions will be required to provide views of the blue account the erosion rate of the bluffs so that it can continue subdivisions will be required to provide views of the blue for the life of the project. Where possible, access along the water from the street. This may be achieved by side set- for the life of the project. Where possible, access along the building top of the bluff shall be provided. Maintenance and liability backs, by not planting tall tree species, and not building shall be assumed by an appropriate'State agency. fences more than four feet high. Engineering of Blufftop Development. Any significant Bluff Stairways. Stairways over bluffs shall be limited, and changes in loading, grading or filling in a bluff area, as de- only wooden stairways may be constructed without a full termined, if possible, by a local planning agency in consul- engineering study. No stairway may be built over a bluff tation with qualified engineers, shall require justification by more than 25 feet high without engineering and geological a qualified engineer or geologist. Before any construction is justification that it will be safe and not increase erosion. No permitted in a bluff area, an adequate drainage plan must stairway may be built over the face of a bluff more than 25 be presented. In projects involving 3,000 square feet or feet high without allowing public access from the beach to more of floor area together with paved areas, said plan the nearest public way. Any stairway to be built on a bluff shall be prepared by an engineer. All surface runoff, in- must be approved as to design. It may not overwhelm the cluding streets and paved areas, shall be drained away face of the bluff and may not come so close to another from the bluff face, or ample conduit capacity provided to stairway that it adds clutter to the environment. A prolifer- carry this water to the toe of the bluff. No septic tank shall ation of stairways should be avoided, and each stairway be allowed closer than 50 feet from the 2:1 plane of the used by many owners. No bluff may be cut, faced, paved, equilibrium slope. Landscaping shall consist of plant or walled to allow a stairway to be built except for neces- species that will tend to limit the possibility of percolation sary footings. deep into the soils of the bluffs. 244 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES SOUTH COAST 4 The South Coast Region-Los Angeles and Orange Coun- ties-is essentially urbanized, but a few key areas still re- South Coast Subregions main in a natural or nearly natural state. These remaining cliffs, hills, mountains, estuaries, and wetlands create dra- matic contrasts to the region's urban character. Traveling VENTURA 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 LOS ANGELES physical development is matched by substantial variations I ( in social structure, economic and financial well-being, land ownership patterns, and jurisdictional control. Coastal recreational and resource areas have come under severe and increasing pressures in recent years. Population ORANGE \ growth in Orange County continues to increase rapidly. In 6Santa Ana Santa Ana/ Los Angeles, though, the population of seven million has - �10 ~/ stabilized, tremendous shifts of population and job locations within the region to the west and southwest (especially 12,1-, along the coast, to the airport and Marina del Rey areas, SAN the Palos Verdes Peninsula, east Long Beach, and southern IG Orange County) are combining with increased recreational Santa Catalina V.% ~ demands to create severe access and use conflicts. The general level of congestion has increased tremendously; historically congested areas such as Malibu and Laguna are increasingly impassable. Beach usage regularly numbers in the millions, although physical access to many areas remains poor or nonexistent. Severe degradation of the once-flourishing South Coast marine life has accompanied San Cremefte i. this growth; present watershed and water quality regula- tions are not effectively protecting or restoring this major resource. Current conditions promise to worsen since the . South Coast will bear the burden of much of the energy production and distribution demanded in the future. Key Planning Issues. Given this situation, and the projec- tions of continued growth in the Los Angeles and Orange tion of consumption. These actions will yield, over the Counties coastal areas, pressure for new urbanization and long run, vastly increased benefits from the naturally utility facilities to meet energy demands, certain Plan poli- productive southern California coast. cies must be regarded as vital to effective coastal planning within Los Angeles and Orange Counties: � Energy Conservation. Because all of the major proposals for meeting future energy demands can substantially � Meeting Vast Recreational Demands. The Coastal Plan harm the South Coast's priceless recreation, natural, and advocates that substantial improvements in public access productive resource values, a third key policy focus of the to existing beaches be made. Proposed acquisitions will Plan must be the conservation of energy. Siting and de- provide new beach and view areas, and almost as impor- sign standards can only slow the degradation of the tant, the campsites, trails, bike paths, and parking to State's resources, both coastal and inland; only complete make these fully usable. The Plan stresses meeting the devotion to energy conservation will adequately reflect bulk of the future southern California recreational the true value of the coast. demand within the region, thus reducing dependence on parks, campsites, and commercial recreation facilities in Other policies are very important to the South Coast as distant locations, traveling to which consumes energy. well, and they are highlighted in each of the following sub- regional discussions. However, these three key areas form � Protection and Restoration of Marine Resources and the core of the Coastal Plan's proposals in the region. It is Water Quality. The Plan strongly advocates concerted an ambitious undertaking-to reverse simultaneously a de- private and public action to restore water quality and the pendence upon continued urban and industrial expansion, marine resources dependent upon it. This will demand much directly affecting the coast, as a base for economic (1) strict enforcement of present water quality standards; activity, and along with it, a tremendous surge of residen- (2) improved siting practices for major pollution sources; tial and recreational activity toward the shore as more and (3) stricter development controls and wastewater prac- more people come to view it as one of the few available re- tices within upstream watersheds; (4) reversal of the his- fuges. But any lesser goal would be unworthy of the splen- toric trend of destruction of wetlands; and (5) such addi- dor which the coast once represented, and which it can of- tional remedial measures as stocking and stricter regula- fer to sustain human needs and the human spirit. SOUTH COAST * 245 SUBREGION 1: MALIBU [See Plan Maps 50-51] This subregion extends some 25 miles from the Ventura panga Canyon Road link the San Fernando Valley with the County line to Sunset Boulevard and includes unincorporat- beaches. The Civic Center area, located at the mouth of ed Los Angeles County territory and a small section of the Malibu Canyon, is the major urban node. City of Los Angeles; the rugged Santa Monica Mountains backdrop is cut by deep, narrow canyons perpendicular to Canyon residential development occurs most notably in To- the coast. Malibu Creek is the largest watershed in the panga, Tuna, and Malibu Canyons. Both commercial and subregion, draining some 67,000 acres; it terminates at the residential strip development flank Pacific Coast Highway Malibu estuarine lagoon. This lagoon and many of the can- from Point Dume to Sunset Boulevard. Residential develop- yons are prime habitat for birds and other wildlife. Fire, ment seaward of Pacific Coast Highway has blocked access floods, and landslides periodically threaten development in along some 13 miles of the Malibu Coast. these areas. The marine environment of this subregion these areas. The marine environment of this subregion Development Issues. The key issue is how to retain the nat- from Malibu Point westward to the Ventura-Los Angeles ural and scenic coastal resources responsible for Malibu's County line is essentially in a natural state. Kelp beds ex- tend intermittently in this area, providing habitat for many that threaten to suburbanize tent development pressures species of sea life. The marine environment from Malibu Point eastward to Topanga Canyon has suffered some blo- alone, more than 2,300 dwelling units have been approved logical impairment; kelp beds have disappeared, but reef and rocky zones still provide habitat for many fish species. s zoned for a communitional 1,694 units. Other and a 140-ropos- als include a community shopping center and a 140-room Broad sandy beaches at Leo Carillo, Zuma, Westward and hotel-and-condominium tennis club in the Civic Center Surfrider beaches provide excellent sun bathing and area. Development approved between February 1973 and swimming opportunities for the public. Access to these August 1974 represented a four-fold increase over the beaches and the entire Malibu Coast is provided by Pacific Southern California Association of Governments' population Coast Highway. Its road capacity is exceeded regularly on allocations for the area. Based on the 2,300 dwellings ap- summer weekends as recreationalists attempt to reach the proved and pending, the 1990 Master Plan population of beach or enjoy a scenic drive. Newly opened Dume-Kanan 23,000 persons will be reached before 1980. Adverse im- Road, Malibu Canyon Road, Encinal Canyon Road, and To- pacts on coastal resources are evident: much of the ocean Malibu -P"~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~2 246 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES view along Highway 1 is already blocked and the road is shelf properties east of the Civic Center, and new point- severely congested (the California Department of Transpor- source discharges prohibited. A master plan for the Civic tation says "it cannot be expected the Route 1 can ade- Center area shall afford full protection to the lagoon. Wid- quately handle the anticipated future traffic"); public ac- ening of Pacific Coast Highway should be avoided and new cess to coastal resources has deteriorated; and failing septic access through the Santa Monica Mountains discouraged; tanks threaten to pollute streams and offshore waters (Mal- recreation shall be given priority for the remaining existing ibu is not served by a sanitary sewer system). capacity of the highway. Greater utilization of public transit for recreational and nonrecreational trips should be promoted; Plan Proposals. Key Plan proposals in Malibu will preserve parking shuttle systems should be instituted. Private devel- its historic function as a resort and recreation area, especi- opment on the beaches should be prohibited; land used for ally through improving public access to beaches. The Plan semi-public recreation should be retained in this use for designates Malibu as nonurban, with priorities focused on public recreation. open space, recreation and agriculture. Other important policies in this area include creating a No major employment centers such as industrial facilities or marine park and reserve from the Ventura-Los Angeles shopping centers should be permitted except for tourist County line to Malibu Point; planning for such a park commercial facilities to be accommodated primarily east of should stress protection of water quality and should be co- Point Dume; commercial facilities for residents should be ordinated with the Santa Monica Mountain Park plans. clustered inland of Pacific Coast Highway. Canyon recreation trails should connect upland parks with beach areas; these trails could serve as spurs off an upland Very low-density residential use on the low rolling hills in- coastal trail, and should be included in a State coastal trails land of Pacific Coast Highway may be appropriate after full sta raiansounin tte a s l al system. Trams from mountain parks to the beach should al- consideration of Plan watershed, design, and development so be considered. A coastal scenic route should be estab- policies. Maximum open space within each development plshed with special directional signs, vista points, and rest shall be retained. Public buildings might also be situatedlihdwtspcadreiolsgnvtaonsndet shall be retained. Public buildings might also be situated stops. To increase beach access, a State agency should be here. given the authority to bring suit on behalf of the public to enforce existing access rights; additional easements for Existing natural watersheds should be protected from in- both physical and visual access should be acquired. tensive development; growth-inducing projects such as damrns should not be allowed within the natural watershed. Other acquisition proposals identified in the Map Notes will Both the Santa Monica Mountains and the Pacific Palisades further increase public access and enjoyment, and help pro- should be designated as areas of high geologic risk; devel- tect valuable natural areas. The county and State should opment in these areas should meet stringent safety stan- jointly explore how further development could be phased to dards without major alteration of the landform. Higher hills relate to improved transit and parkland acquisition and de- should be limited only to possibly very low density residen- velopment. tial uses. The mooring capacity of Paradise Cove should be increased Major public service expansion proposals should be limited by approximately 100 boats for overnight use as a harbor of as necessary to protect key habitat and recreation refuge. The possibility of establishing an interpretive center resources. A sewer system should be restricted to coastal adjacent to Malibu Lagoon should be investigated. SUBREGION 2: SANTA MONICA, VENICE, AND MARINA DEL REY [See Plan Map 51] This subregion is bounded by Sunset Boulevard and the pairment. Both domestic and industrial wastes have ad- Ballona Creek Channel and includes the City of Santa Mon- versely affected water quality throughout the bay. The Ball- ica and its neighborhood of Ocean Park, part of the City of ona Creek area, once an extensive wetland, has been artifi- Los Angeles, including the communities of Pacific Pali- cially modified to accommodate the canal community of sades, Venice, and Palms-Mar Vista, Culver City, and the Venice and the more recent development of Marina del unincorporated community of Marina del Rey. Development Rey. Nevertheless, the marina, good surf, wide beaches, in this subregion varies from single-family residences on and fishing piers provide outstanding ocean-oriented recre- the unstable hills of Pacific Palisades to concentrations of ation of regional significance; inland access is provided by high-density and high-rise residential and commercial uses the Santa Monica Freeway. along the bluffs in Santa Monica and in the vicinity of Ma- rina del Rey; generally, residential densities are high in the South Santa Monica and North Venice seek to regain and strip of land directly abutting the coast. restore the character they once knew as pleasant resort vil- lages beside the sea. The high level of recent urban devel- Development Issues. The marine environment of the entire opment has made parking and access to the shoreline diffi- Santa Monica Bay has suffered significant biological im- cult. Old oil derricks, utility lines, fences, and walls of SOUTH COAST � 247 structures that block views of the ocean and marina detract Peninsula areas should be permitted until the following from the scenic qualities of the subregion. problems are solved through local and State agency coordi- nation; adequate public access and open space, traffic con- Plan Proposals. A priority Plan proposal throughout thisnai;adqtepbcacssndonsaerfico- subregion is to increase beach andhl proposal throughout this gestion, and land use priorities, and appropriate on-site fa- subregion is to increase beach and shoreline utilization,dtisadoespcrquemn. cilities and open space requirements. especially south of the Santa Monica Freeway. One major means will be by developing a pedestrian and bike path The old Venice area, including the Canal and South Beach system linking existing public beaches, remote parking, and areas of Santa Monica, should be protected and preserved. Marina del Rey. Also important will be restoring the origi- Preservation and, where necessary, restoration of remain- nal development concept of the Marina as a public recrea- ing older structures characteristic of Venice and Ocean Park tion area, increasing access to existing recreation areas in beachfront should be encouraged. Plan policies call for pro- Venice and the Marina, and increasing the amount of pub- tecting and rehabilitating existing moderate-price housing lic recreation area in Ocean Park, Venice, and the Marina. in Venice and Ocean Park and obtaining additional such units wherever possible. Joint planning should (1) work Access to the currently underutilized beaches, especially in with the county to develop "second generation" develop- the Venice-Marina del Rey areas, should be improved. A ment policies for the Marina that would return significant ment policies for the Marina that would return significant coastal access plan should include a possible remote park- areas to public use when existing leases expire (remaining ing-transit shuttle operation to serve the Marina, Venice development should be concentrated to promote transit use; Beach, and possibly the Santa Monica Beach area. priority sites for hotel-motel use should be related to an Development shall not exceed recreational access capacity, internal transit system); (2) explore with the city and the particularly in Venice and the Marina. particularly in Venice and the Marina. county the eventual transfer of residential density from the To increase coastal recreation and viewing opportunities, Marina peninsula to the eastern portion of the Marina; (3) the bicycle trail along the beach should be completed. Win- explore with the City of Los Angeles the possibility of using tertime-use plans should be prepared to utilize beach re- city-owned lots in Venice for subsidized housing and to ab- sources efficiently, sorb development that would occur on unbuilt lots in the Marina peninsula (perhaps through a transfer of develop- Acquisitions and possible restoration will complement the ment rights); (4) work with the City of Los Angeles in access goals of the Plan, and will also supplement the down-zoning the Venice area and implementing low-cost Plan's water quality policies in attempting to restore the housing programs. Commercial recreation sites near the subregion's naturally high productivity. Acquisition of a Venice peninsula and the Santa Monica beach should be park adjacent to the east side of Ballona Lagoon and the designated. The amount and location of commercial office north side of the main channel is proposed. Additionally, an development in the Marina should be limited, with the bulk interagency study should be carried out to determine the of new office space relocated to areas with better mass potential for wetland restoration and maintenance in the transit potential such as downtown Santa Monica and the Ballona Creek and Ballona Lagoon area. Los Angeles International Airport area. The Plan's development proposals for this subregion are Other policies for this area include the acquisition of private designed to support the primary goal of improving public lands seaward of Palisades Beach Road. The entire Pacific access and enjoyment. The Plan calls for concentration of Palisades area is one of high geologic hazard and no devel- high-density development in downtown Santa Monica to en- opment in this area should be allowed unless stringent courage mass transit improvement. No intensification of safety standards are met. land uses in the Venice, Marina del Rey, and Venice Santa Monica -� '~~~~~~~~~~~~Z 248 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES SUBREGION 3: PLAYA DEL REY TO EL SEGUNDO [See Plan Map 51] This subregion extends from the Ballona Creek Channel to carefully reviewed to determine their appropriateness under the southern boundary of El Segundo. It includes the City Coastal Plan policies. The neighboring communities are of El Segundo, portions of the City of Los Angeles, the facing the problems of open space preservation, traffic con- communities of Playa del Rey and Westchester, Inglewood, gestion, noise, smoke, and odors due to the intensification Hawthorne and unincorporated Los Angeles County of land use. territory. It is characterized by intensive commercial and in- dustrial activities. Los Angeles International Airport, the Plan Proposals. The Plan's long-term goal for this Hyperion sewage treatment plant, the Scattergood power subregion stresses improving the desirability and accessi- plant, the Southern California Edison power plant, and the bility of this potentially major public use area. The recycl- Standard Oil refinery dominate the nearshore. ing of non-coastal industries as they become obsolete to more coastal-dependent land uses shall be considered. No The marine environment has suffered significant biological new non-coastal-dependent industry shall be permitted in impairment resulting primarily from the discharge of waste the oceanfront area. Water quality improvements and con- water and sludge from the Hyperion plant. The subregion sistent application of the Plan's energy conservation pro- is heavily urbanized and includes high-rise hotels, offices, posals will also be important in moving towards this goal. and intense commercial development in the vicinity of the Los Angeles Airport. However, major undeveloped open Other relevant policies include maintenance of adequate space remains adjacent to Ballona Creek with potential for buffers between incompatible uses and provision of recrea- wetland restoration. Wide sandy beaches are heavily used tional uses in these buffer areas. The Plan advocates allow- by inland public. Dockweiler Beach is especially popular ing the Airport Dunes to revert to their natural state, to with minorities. The Airport Sand Dunes, the major surviv- serve as habitat, and for use for educational purposes and ing dune formation in the South Coast Region, lie between compatible recreation. A proposed golf course does not ngthe airpor m ation in the South Coast Region, lie between appear consistent with Plan policies. To increase public vis- ual access and to preserve natural landforms, the acquisi- Development Issues. The expansion and modification of in- tion of bluffs is recommended as a long-range objective. dustrial and commercial facilities is being planned. Pres- Stable single-family neighborhoods should be preserved sures also exist for offshore oil development. Both shall be and protected from pressures for recycling to higher densi- ties SUBREGION 4: SOUTH BAY [See Plan Map 52] Redondo Beach This subregion extends from the northern limit of El Porto to the southern limit of Torrance. It includes the unincor- porated community of El Porto, the cities of Manhattan Beach, Hermosa Beach, Redondo Beach, Torrance, Lawn- dale, and portions of Hawthorne and Gardena. The sea and the wide sandy beaches are the only remaining natural elements in this area; coastal-related commercial activities attract intensive public use. El Porto, Manhattan Beach, and Hermosa Beach are old beach communities with typical small-lot subdivision. The characteristic straightlined medium-rise apartments of Redondo Beach, King Harbor, the commercial pier, and the power generating plant are the visually dominant points along the shoreline. Strip com- mercial development flanks the north-south road-net and includes several high-intensity commercial districts; inade- quate public parking results in severe traffic and parking problems during summer months, and effectively excludes non-residents in some areas. Development Issues. 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 Harbor area. De- SOUTH COAST � 249 velopment pressures in Torrance may adversely affect Residential recycling and rehabilitation should be encour- Madrona Marsh, an important freshwater habitat, aged at existing densities, retaining opportunities for social Plan Proposals. The Plan calls for improving access from diversity. No intensification of residential uses which are Plan Proposals. The Plan calls for improving access from inland areas to increase utilization of beach areas as a incompatible with the existing character, or ability of the inland areas to increase utilization of beach areas as a transportation, water, and sewer systems to provide an major regional recreation asset and developing local transit transportation, water, and sewer systems to provide an adequate level of service,shall be permitted. The Plan en- and remote parking to take pressure off Pacific Coast High- adequ ate level of serviceshall be permitted. The Plan en- way and to connect shoreline facilities. No development, courages concentr ation of commerci al uses in inland centers whether private or public, shall be permitted to inhibit free ncorporating pedestrian circulation and coastal access. access to the shoreline; the Plan stresses improving access from inland areas to increase utilization of beach areas as a Other relevant Plan policies call for encouragement of pri- majo regonalreceatin aset. he otenial or lcalOther relevant Plan policies call for encouragement of pri- majot regional recreation asset. The potential for local transit and rem o te parking to relieve the poressure on vate groups and property owners to participate and contri- tranit ad reote arkig torelive te prssur onbute to the beautification and enhancement of the visual Pacific Coast Highway and to connect shoreline facilities bute to the beautification and enhancement of the visual should be evaluated. To improve public accessibility of the character of thes coastal communities; and for replacement i- of non-coastal-dependent industries, as they become obso- South Bay's fine beaches, the Plan would limit further lete, with more coastal-dependent land uses. Plan policies creases in housing density until there are major improve- also strongly support the City of Torrance's proposal for ments in beach access, traffic circulation, and the amount prern roa r preserving Madrona Marsh. of open space. SUBREGION 5: PALOS VERDES PENINSULA [See Plan Map 52] This subregion includes the City of Palos Verdes Estates, hiking trails, equestrian trails, and bicycle paths is also Rancho Pales Verdes, Rolling Hills Estates, Rolling Hills, advocated. and portions of unincorporated Los Angeles County tern- Marine restoration, including upgrading of existing dis- tory. The Pales Verdes Peninsula, with its hills, cliffs, and ar es , is i io ro o ese su rocky shoreline, has significant open space, some agricul- charges, is of high priority. A rocky shre reserve should be established between Resort Point and Point Vicente. The tural uses, and coastal sage scrub and chaparral habitat in- be established between Resort Point and Point Vicente. The tertwined with development which has resulted in very protection of bluffs, rocky beaches, and important wildlife tertwined with development which has resulted in very pleasant residential communities. Harmony without mono habitats are also major Plan priorities. The sand supply in ple asa besentigal othscommunities. hearine etotmn- pocket beaches should be studied to aid in developing and tony has been a goal of these communities. The marine en- vironment, however, has suffered significant biological implementing appropriate preservation methods. impairment; minor kelp beds in poor health remain. The Plan further seeks to assure that development intensi- ties and locations will protect scenic and recreation oppor- Development Issues. High-value land is creating pressure tunities, valuable habitats, and productive resource areas, for increased urbanization and high-density uses. There is a and avoid natural hazard areas. The Palos Verdes Hills are demand for public access to the bluffs at the edge of the considered high geologic hazard areas and development water and for preservation of scenic resources, including should not be permitted without a report evaluating faults, the rocky shore. landslides, slumps, soil and rock creep, mudflows, drain- age, erosion, and other factors affecting safety and Plan Proposals. High-priority Plan policies in this area in- stability. clude increased recreational usage, and protection and res- toration of coastal resources, especially water quality, Most of the remaining undeveloped areas seaward of Pales marine life, and unstable coastal bluffs. The Plan proposes Verdes Drive West and South might be used for very low- exoandinq public shoreline access (where appropriate) and density residential projects meeting Coastal Plan design cri- recreational opportunities by establishing a perimeter teria and providing substantial permanent open space for coastal trail seaward of Pales Verdes Drive West and South, recreational and view corridor purposes, the preservation of linking existing and proposed recreation areas and pro- agricultural lands, the protection of valuable habitat areas, posed acquisitions, and by retaining a substantial portion of and protection from geologic hazards. Plan policies will the remaining capacity of Pales Verdes Drive for scenic discourage ridge and canyon development. No new major drive use. employment centers, such as industry and service facilities which would encourage significant increases in population Lighthouse property in public ownership should be retained growth or traffic generation, should be permitted. Cluster- for historic, scenic, and recreational purposes and adjacent ing residential and commercial uses will assure maximum properties acquired for compatible recreational and open retention of open space. Commercial uses should be space use. Acquisition of an easement along the bluffs at generally limited to neighborhood and community uses; re- the edge of the water and on Federal land to increase the gional shopping centers should be prohibited unless the public's acr..s to the coastal scenic experience and for transportation system can adequately support their needs. 250 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES SUBREGION 6: SAN PEDRO HARBOR AREA [See Plan Map 52] This subregion includes the communities of San Pedro, should meet all Coastal Plan policies, including not being Wilmington, and Harbor City, the cities of Lomita and larger than needed to accommodate tankers of about Carson, the Ports of Los Angeles and Long Beach, and un- 150,000 dead weight tons (dwt) of conventional design or incorporated Los Angeles County territory. Housing covers larger capacity wide-beam tankers of comparable draft. the hills of San Pedro and along with undistinguished com- mercial areas overlooks a major urban renewal project, in- Where recreation use does not interfere with public health tensive harbor activities, oil extraction sites, a freeway, and safety, port operations, and security, public access heavy industries, and major public utility plants (sewer and shall be permitted. Public information programs shall be power). Military reservations provide magnificent views and expanded to encourage public participation in port open space opportunities adjacent to the ocean in this high- planning. Scenic access, bicycle routes, and ferry service in ly urbanized and industrialized area. A breakwater approx- the South Coast areas shall be developed for recreational imately eight miles long protects the twin harbors of Long purposes as part of the general plans of the ports, consis- imately eight miles long protects the twin harbors of Long Beach and Los Angeles; dredging and filling of the harbor tent with public safety and non-interference with cargo ac- tivities . Recreational water travel along the entire South area have had significant environmental impacts on the area's marine environment. Coast Region shall be encouraged. area's marine environment. Development Issues. Planned harbor development includes Public recreational use is an important coastal asset to be major filling and dredging to accommodate increased ship- safeguarded in future planning for development in the San ping traffic and related development, and the construction Pedro area, as is the community's present diversity and of small-craft marina facilities at Fish Harbor. In the resi- function as a recreational destination for low-income and dential areas there is a trend to recycle from low- and minority group persons. Harbor area shoreline access medium-income housing to costlier multiple-family develop- should be increased by bike routes, walkways and public ments, resulting in the relocation of a portion of the resi- ferries for educational and recreational purposes. Existing dent population. recreation areas, such as Cabrillo Beach and the Marine Museum, should be expanded and linked by trails to other Plan Proposals. The Plan clearly contemplates some expan- parts of the harbor, to major visitor destinations, and to the sion of existing port facilities, but gives priority to indus- Palos Verdes Peninsula. Fort MacArthur should be retained trial, energy, and shipping uses which are dependent on a in public ownership as a major public park, and linked with port location, and to tourist commercial marina develop- a regional trail, campsite and hostel system. Water access ments that would not conflict with other recreational needs. by ferry should link the harbor with Alamitos Bay; boat It also requires efficient use of existing land and water tours of harbor activities should be provided consistent with areas to minimize the need for additional landfill or public safety and port security; dry storage, efficient dredging. Bay-wide economic and port facilities studies marina development and utilization, and tourist-commercial shall be conducted on a continuing basis for San Pedro Bay, uses in suitable areas of the harbor should be encouraged. taking into account regional, national, and international economic factors as well as social and environmental im- To preserve the unique character of San Pedro, the general pacts. Such studies shall guide future expansion and plan and the downtown redevelopment plan should be up- renewal programs. dated stressing maintenance of the social and economic di- versity and taking into account the community's close ties Water quality improvements and appropriate restoration with the harbor, and its residential-recreational use by low- measures will also be important aspects of further harbor and moderate-income families. Additional commercial de- development under Coastal Plan policies. Major oil-related velopment and most new residential development should be and LNG development proposals shall be reviewed for con- channeled to the downtown area. formance with the Coastal Plan. Terminals for petroleum SUBREGION 7: LONG BEACH [See Plan Map 53] This subregion is bounded by the Port of Long Beach and single-family to high-rise development, typifies the great the Los Angeles River on the west and the Los Angeles- diversity of lifestyle that exists in this city. Downtown Orange County line on the east. It includes the cities of structures are high-rise, medium-rise, and massive- a Long Beach and Signal Hill, and sections of Lakewood, mixture of old and new. Gradual redevelopment is changing Hawaiian Gardens, and unincorporated Los Angeles County the city's character as old buildings are replaced by new of- territory. The Long Beach city profile, which varies from fice, residential, and civic structures. The eastern part of SOUTH COAST � 251 Long Beach to Alamitos Bay is generally stable and well vironmentally acceptable concurrent measures to handle maintained; however, unique single-family development traffic are provided and appropriate measures are imple- along the shore is being replaced by multi-storied high- mented to safeguard the water quality of the bay and to density development. The Queen Mary, the Arena, Belmont protect Cerritos Lagoon. Residential recycling in Long Pier, and the Long Beach Marina attract recreationists from Beach should be primarily at existing densities, with future inland and surrounding cities. high-rise development concentrated and limited to the immediate downtown area, west of Alamitos Avenue. De- Development Issues. The City of Long Beach is planning sign of new development shall stress maintenance of pedes- redevelopment projects for the downtown area, coastal trian access to the shore. areas, and industrial areas. Pressures exist for a major marina at Pier J, tourist commercial complexes, high rises Residential development should include units designed for in the vicinity of the central business district, and major a wide range of income and age groups; recycling and development on vacant land in the vicinity of Alamitos Bay. rehabilitation of residential areas at the same densities Plan Proposals. While the Pier J and downtown proposals should be encouraged. Development in the special com- may be compatible with Plan policies, the latter must be munities of Naples and Belmont Shore should be regulated carefully evaluated in terms of Plan policies. The Plan calls to enhance coastal views, improve public access to the for protection of both recreational and marine resources in beach, and protect the lifestyle and character of these considering development proposals for this area. Energy areas. conservation goals will also be important in evaluating future development patterns. Further Alamitos Bay devel- Other relevant policies include restoration and enhancement opment, particularly adjacent to Pacific Coast Highway, of historical character as a beach community, and the en- hancement of view points and view corridors by appropriate should depend upon circulation and access improvements, hancement of view points and view corridors by appropriate including transit and trail linkages between Alamitos Bay acquisition. If found to be consistent with Plan policies, a and the Pacific Terrace area of Long Beach. The Plan also potential regional marina site at Pier J should include de- velopment of a major tourist and commercial recreation stresses water quality protection and substantially im- velopment of a major tourist and commercial recreation proved beach and recreational access at Alamitos Bay, project and require joint utilization of existing downtown Belmont Shore, Naples, and the Marina. Protected waters, and shoreline parking facilities tied in with a local shuttle Belmnt hore Nales andtheMaria. rotctedwatrs, system. The Plan supports the Long Beach policy to convert a real recreational asset, are also protected by the Plan. system. The Plan supports the Long Beach policy to convert oil islands to recreation use after resource depletion, and Increased public access to beaches and linkages between the establishment of a coastal trail for biking and hiking. the central business district and the harbor and Alamitos Major open space vista points should be incorporated into Bay should be provided. Intensification of land uses around recycled land uses on Signal Hill. Existing historic struc- Alamitos Bay should be permitted only if adequate and en- tures should be maintained. SUBREGION 8: SANTA CATALINA AND SAN CLEMENTE ISLANDS [See Plan Maps 56-57] The offshore islands of San Clemente and Santa Catalina Camping and picnicking are now permitted at many of the make up this subregion. San Clemente, the more remote of coves which indent the shoreline and at designated interior the two islands, is currently restricted to military use. locations. Skin diving is a popular underwater recreation Unique natural habitats flourish on San Clemente Island, activity frequently carried out from charter boats moored and the marine life offshore is. in a healthy state. offshore. Development Issues. The nearshore island of Santa Catalina The City of Avalon is the major entrance and destination remains almost entirely open and undeveloped except for point of visitors crossing from the mainland either by boat the City of Avalon and a small developed enclave at the or airplane; it is also the major residential and commercial Isthmus. As a result of a recently signed agreement be- area providing a variety of tourist commercial, cultural, and tween the Santa Catalina Island Company and the County recreational facilities. Residential development is of Los Angeles, 41,000 acres of company property will be proceeding slowly and will be contained by the extent of maintained for conservation, soil reclamation, and recrea- the open space easement, and the capacity to expand exist- tion and education uses. Additionally, a soon-to-be-com- ing utilities and water supply. pleted agreement between the company and the Santa Catalina Conservancy will provide for the transfer of open space easement lands, White's Landing, and Parson's space easement lands, White's Landing, and Parson's Plan Proposals. The Plan strongly stresses maintaining the 0 ~ ~Landing to the Conservancy for permanent conservation. natural productivity of the intertidal and nearshore environ- Once the agreement is effected, these lands will be con- ment around Catalina and San Clemente, along with devel- served in perpetuity. oping a complementary fisheries management program. 252 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES Kelp beds and reets are proposed to be designated as na- cur, it shall be designed to be compatible with the existing tural reserves, and all islets protected as sanctuaries for sea character of the special community of Avalon and other birds and marine mammals. Research and educational op- settlements on the island. Plah policies also state that de- portunities shall be encouraged and access to currently re- velopment should allow the profile of the islands to domi- stricted areas should be permitted for such uses. nate (hence ridgetop development should not be permitted), and that it should not exceed that limit that can be suppor- Coastal hill areas should be retained in permanent open ted by the local natural resources (such as water) on Santa space for recreational purposes to the maximum extent pos- Catalina. Design standards should strongly emphasize sible. In the unincorporated areas residential uses might be pedestrian and transit circulation and prohibit or discourage permitted only in a few clustered, planned communities, automobile usage; the distinctive character of Avalon and primarily for the resident population. other settlements on Catalina shall be maintained. Riding trails and other public recreational facilities should be in- Other relevant policies include the prohibition of medium- trails and other public recreational facilities should be in- and high-rise development. Wherever construction does oc- corporated in permanent open space areas. LA Avalon, Santa Catalina Island SUBREGION 9: NORTH ORANGE COUNTY [See Plan Map 53] The 12.5 miles extending from the San Gabriel River The highly valuable and extensive nearshore tidal and allu- channel to the Santa Ana River channel constitutes the vial wetland system has become increasingly characterized Orange County north coast. This area encompasses Seal by residential, recreational, and both onshore and offshore Beach, Huntington Beach, and portions of Los Alamitos, oil field development in recent years. Coastal Seal Beach Cypress, Garden Grove, Westminster, Fountain Valley, and has become partially isolated as it is wedged between the unincorporated areas including the Sunset Beach San Gabriel River and the Seal Beach National Wildlife community. Refuge. The two beach communities of Surfside and Sunset SOUTH COAST � 253 Beach form a continuous strip just south of the Refuge. that water quality is maintained and boating capacity is not Just east of these beach communities lies Huntington Har- exceeded. bour, which was created by the dredging and filling of Sun- This subregion offers an important opportunity to fulfill the set Bay. It is a high-income, boating-oriented development in which public access to Harbour waters is extremely limit- restoration goals of the C oa stal Plan t hrough the Bolsa Ch- ed except for the county-maintained boating facility at Sun- ca restoration project. These restorable wetlands in the Bol- set Aquatic Regional Park. set Aquatic Regional Park. sa Bay area should be protected both from encroaching res- idential development (which should be redirected to other To the southeast of Huntington Harbour is the subregion's areas that already have urban services) and from intensive largest city, Huntington Beach, which has grown from a recreational proposals (marinas). The Plan calls for prohibi- truck-farming community of 5,200 to a city of 150,000 in tion of development of Bolsa or Anaheim Bays or surround- only 25 years. The area overlays large oil reserves,and most ing lands which would seriously impact the ecological re- of the rich agricultural soil of the Santa Ana River flood- serves. Open space for wildlife habitat and recreational plain within the city limits has been converted to residential uses should be restored and maintained in the vicinty of the or commercial use. Santa Ana River mouth; and at Anaheim Bay, existing and restorable wetlands should be protected by directing resi- This subregion possesses outstanding recreational and en- dential growth to other locations and by instituting coordi- vironmental resources. The wide sandy beaches are almost nated watershed and floodplain management. entirely in public ownership and are popular for both swim- ming and surfing. Two excellent fishing spots are the Seal Development patterns should support the major goals of the Beach and Huntington Beach piers which also function as Plan in this subregion. Strip commercial uses along Pacific fine viewing areas for coastal activities. The extensive wet- Coast Highway should be redeveloped into planned com- land system serves as a valuable habitat for both flora and mercial clusters; a portion of the remaining capacity of the fauna. highway should be reserved for recreational use and as a scenic drive, and trails should be stressed. No more park- Plan Proposals. Increasing public recreational access and ing lots should be built on the beaches; transit and upland use are key Plan policies for this subregion. This will mean parking areas should be used to relieve shoreline conges- providing new commercial recreation facilities at Hunting- tion. The bluffs should be protected; vista points should be ton Harbour and downtown Huntington Beach, a buffer preserved and acquired. Agricultural uses should be evalu- area and low intensity parks around Bolsa Chica, and up- ated and,where appropriate, preserved and protected. The land support facilities and trail linkages in the central park Plan also supports the anadromous fish "put and take" corridor to increase use of the publicly owned beach. Sup- program and provides public access consistent with protec- porting measures provided for in the Plan call for reserving tion of the national wildlife refuge. Recycling and rehabili- much of the remaining Pacific Coast Highway capacity for tation of residential areas at the same densities should be recreational use as a scenic drive, but stressing trails, encouraged in most areas. transit, and upland parking areas to remove day-use autos from congested immediate shoreline areas. Opportunities for low- and moderate-income families and minorities to reside in the area and enjoy recreational facili- Additional Plan proposals include maintaining the nine-acre ties should be protected and expanded. Oil-related struc- Department of Water and Power parcel in Seal Beach in tures in the Huntington oil fields should be removed as the public ownership primarily used for open space and recrea- resource becomes depleted. The proposed 1,400-megawatt tional use, and providing beach access from the nearest expansion of Southern California Edison's Huntington public right-of-way in Surfside. Visitor serving facilities Beach plant may not meet Coastal Plan siting criteria. uses shall have priority on the remaining undeveloped acre- (Note: See Appendix section on Examples of Subregional age in Huntington Harbour. Monitoring water quality and Plans for an illustrative case study on Huntington Beach.) boating capacity in this area is important as well, to insure SUBREGION 10: NEWPORT BEACH/COSTA MESA [See Plan Map 54] The Newport Beach-Costa Mesa subregion extends some those who reside on the small isles within the bay and on 6.5 miles from the Santa Ana River mouth south to the the Balboa Peninsula. Visitors can enjoy ocean and bay vis- southerly limits of Newport Beach. Newport Beach, Costa tas from the beach walk and two city piers, or from Mesa, and portions of Santa Ana, Tustin, Irvine, and unin- restaurants which line the perimeter of the Bay. Extensive corporated Orange County territory are within the subre- swimming and bathing opportunities are available in this gion, and important natural areas include Upper and Lower subregion, but traffic congestion and lack of parking are Newport Bay and the San Joaquin freshwater marsh. major barriers to beach access. Wildlife observation oppor- tunities are available in Upper Newport Bay and the San O~ ~ ~Lower Newport Bay serves as a major marina resource with Joaquin Marsh. Current plans call for an interpretive center a public and private berthing capacity of some 7,000 boats. and bike path along the recently acquired Upper Bay edge, The lower bay is the focus of a water-oriented lifestyle for and opportunities still exist to acquire blufftops above the 254 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES bay for viewing and wildlife observation. The Upper Bay already committed. Undeveloped upland areas adjoining area which was purchased by the State is plagued by major Upper Newport Bay should be publicly acquired as a buffer runoff and siltation problems. for the bay's habitat and for compatible recreational uses; all necessary measures shall be undertaken to protect and Major employment centers are located at Newport Center, a enhance the water quality of the bay. recently developed regional shopping and office complex, and inland at the Irvine Industrial complex adjoining the To preserve vestiges of historic Newport, the character of Orange County Airport. The University of California at Ir- the area surrounding the Balboa Pavilion, as well as the vine also provides a significant employment and cultural re- pavilion itself, should be preserved. New structures should source, retain the character and density of the surrounding environ- ment. Development Issues. This subregion offers significant op- portunities for implementing Plan policies on resource re- Another key issue for this subregion involves improving storation and protection. Key issues include protecting and public access to existing shoreline recreation facilities; the restoring the water quality of Newport Bay for habitat and Plan gives access by trails, trams, and transit priority over low-use recreation, and preparing a waste discharge plan automobile access. No intensification of uses should be per- for the watershed (including non-point source effluent). Al- mitted in areas severely impacted by traffic congestion. A so important will be protecting productive agricultural lands portion of the capacity of Pacific Coast Highway should be from encroaching residential, commercial, and industrial reserved for recreational use; resort and recreational devel- land uses; encouraging the concentration of these uses in opment shall have priortiy over other commercial develop- areas already committed; and limiting development as nec- ments on the highway and the Newport Peninsula. The ma- essary to protect recreational travel capacity. rine repair industry should be protected from displacement. Plan Proposals. Policies applying specifically to the subre- The Plan also calls for connecting the coastal trail network gion or especially appropriate for implementation here in- to the Santa Ana Corridor; and for improving visual and clude acquiring undeveloped land from the Santa Ana River physical access to Lower Newport Bay by providing inland mouth to Victoria Street as a regional park for public recre- parking areas linked by trails and public transportation to ation and wildlife habitat. Significant agricultural lands the beaches and shoreline recreation facilities. should be protected by concentrating development in areas SUBREGION 11: IRVINE COASTI [See Plan Map 54] This little-developed subregion, extending some 3.5 miles These very substantial development proposals could severe- between the city limits of Newport Beach and Laguna ly harm the area's coastal resources. Substantial residential Beach, is owned primarily by The Irvine Company. The off- growth could destroy valuable natural areas, diminish pub- shore is characterized by sand and mud bottoms and sub- lic access to recreation and commercial facilities along the merged rocks and reefs; kelp beds provide habitat for many coast, and create a substantial increase in vehicle miles tra- marine species. The landforms are relatively unaltered phy- veled, placing further stress on already poor air quality. sically, with coastal bluffs and marine terraces backing sandy beaches and rocky tidepools. The back shore is char- Plan Proposals. The overall subregional growth should be acterized by ridge and canyon topography, with coastal restricted based on air quality, habitat and productive sagebrush, grassland, and riparian vegetation; grazing act- resource protection, and recreational use and circulation ivity is presently supported on these uplands. Although constraints. Land between the Pacific Coast Highway and there are no incorporated cities, residential development the shore should be limited to permanent open space for exists at Irvine Cove, Crystal Cove, and the El Moro trailer active and passive public recreation, highway view corri- park development located an the beach just north of dors, and planned clusters of water-oriented resort, recrea- Abalone Point; an equestrian center exists on the marine tional and tourist uses (such as restaurants, hotels, and terrace seaward of Pacific Coast Highway. This subregion is boating facilities) which serve the general public. A large almost entirely undeveloped and remains the major oppor- acreage east of the highway shall be designated for a low- tunity for open space preservation along the Orange County cost family-oriented camping facility available to the gener- coast. al public (such as Camp Curry in Yosemite); this might be provided through private means or it might be a further Development Issues. Most of this subregion is owned by public acquisition and publicly provided facility. The Irvine Company. It has recently proposed a coastal community of 30,000-50,000 persons, with a major shoreline In the hillside area above the coastal shelf, the steep resort at Crystal Cove. The Irvine plans, in cooperation with slopes, deep canyons, and very narrow ridges should be the county, anticipate the completion of a six-lane extension primarily limited to open space uses. Some portions of the of Highway 73 through the hills to connect with Interstate 5 gentle slopes, elevated terraces, and broad ridges may be behind San Juan Capistrano. Four roads through the hills utilized for low-density residential communities including would connect inland areas with Highway 1. related commercial and institutional uses, provided these SOUTH COAST * 255 uses are located and designed in a way to protect the sensi- corridors linking canyon bottoms; and (4) canyon bottoms tive natural resources. No commercial use abutting Pacific should be retained in a natural condition. Coast Highway should be permitted; all commercial uses should be restricted to carefully selected sites to serve resi- Allocation of highway capacity is a major concern of the 0 shoulden t s and visitors as appropriate.i Plan. Vista points of special aesthetic significance should be developed for coastal parks and coastal trails for hiking, Of primary concern is the retention of the immediate shore- biking, and equestrian uses by the public. Los Trancos, line (and the access routes necessary to serve it) as a major Moro, Emerald, Boat, Shady, and Willow Canyons should public recreation resource. Primary concerns focus on es- be preserved as natural areas. A marine reserve and under- tablishing recreation access by systematically coordinating water park should be established from Cameo Shores to trail, overlook, and recreation areas. To this end: (1) the Abalone Point, and watershed policies especially relevant shoreline and area west of the highway should be reserved here include acquiring upland areas for camping and habi- for public recreation and visitor serving uses; (2) significant tat preservation (coastal canyons) and linking them with the terrace areas immediately east of the highway should be re- coast by transit, trails, and bikepaths. A coastal trail served as support areas for beaches; (3) key ridges and through Irvine, Laguna, and Laguna Canyon should be promontories, especially in the southern portion, should be established. reserved as public overlooks and as habitat and recreational SUBREGION 12: LAGUNAS [See Plan Map 55] The Laguna-South Laguna subregion extends along some 10 Beach and the unincorporated community of South Laguna. miles of shoreline from the northern limits of Laguna Beach Rising behind these developed areas, the rugged hillsides to the southern boundary of the planned community of La- are largely covered with coastal scrub and chaparral which guna Niguel. The subregion includes the City of Laguna enhances the setting of these coastal communities. Major Laguna Beach 0ided ';P hi A71,- B 256 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES canyons leading to the coast include Laguna, Aliso, and for recreational use, and linking with the coastal trail Salt Creek. Aliso Creek and watershed provide riparian system and Laguna greenbelt. Pedestrian access to tideland woodland, coastal sage scrub, chaparral and grassland hab- areas should be provided through private communities in- itat. Many water-associated bird species frequent the lower cluding opening existing public easements now blocked by creek. A private golf course is situated at the mouth of the private roads. An observation center should be established canyon. Other prime habitat areas include the Laguna at Crescent Bay Point to increase visual access and enjoy- Lakes in Laguna Canyon and Niguel Lake, now part of ment of marine resources. Recreation shall be given priority Laguna Niguel Regional Park. for the remaining Pacific Coast Highway capacity, and unde- veloped lands seaward of the highway which could provide Development Issues. The offshore marine habitat of the significant open space recreational opportunities, vistas, or subregion is extremely sensitive. Significant offshore areas view corridors and/or commercial recreation facilities, such are now protected as part of the Laguna, South Laguna, as resorts, hotels, and campgrounds, which serve the and Niguel Marine Life Refuges; increased public education genera l public shouls d cfor pubic rereational programs should be established at these sites to aid in their u se. use. preservation. The undeveloped headland overlooking the county's beach Access to the coast from the inland areas is limited to La- in Laguna Niguel should be acquired for public recreation; in Laguna Niguel should be acquired for public recreation; guna Canyon Road and Crown Valley Parkway; access to guna Canyon Road and Crown Valley Parkway; access if this is not feasible, it should be reserved for visitor-serv- the beach in areas such as Emerald Bay and Three Arch ng uses (resort and recreation). Development policies ing uses (resort and recreation). Development policies Bay is blocked by private development. Pacific Coast Bay is blocked by private deelopment. Pacific Coast should also keep in mind the Plan goals of improving public Highway is highly congested, and this congestion is likely use opportunities and maintaining coastal resources. use opportunities and maintaining coastal resources. to increase with development pressures currently being ex- perienced (especially in Laguna Niguel, in the hillsides Policies applying specifically to the subregion or especially above Laguna and South Laguna, and in other sections of appropriate for implementation here include the maintain- southern Orange County). Local citizens are advocating a ing of the higher hills for open space use, with probably greenbelt concept to control hillside development and pro- only very limited low-density residential uses in selected tect habitat. ~~~~~~~tect habitat. ~locations. Watershed management should stress improve- Plan Proposals. Important Plan policies in this subregion ment of water quality. Residential uses permitted in the lo- will protect watershed, habitat and open space values in the wer hill areas would require maximum retention of open San Joaquin Hills, and endorse the local government sup- space. New commercial uses should be limited to planned ported Laguna greenbelt concept for preservation of open clusters inland of Pacific Coast Highway; no major commer- space,natural land contours, habitat, and recreational use. cial centers, industry or service facilities, which would gen- Establishing hiking and equestrian trails in the hills will erate significant increases in traffic congestion and change provide scenic vistas; public transit should be employed to the existing scale and character of such special coastal take people from inland parking areas to the beach. The communities as Laguna and South Laguna, should be per- Plan also advocates acquiring the mouth of Aliso Canyon mitted. SUBREGION 13: SOUTH ORANGE COUNTY [See Plan Map 55] This subregion extends along approximately 9.5 miles of A.T.&S.F. railroad also passes through the valley and oper- southern Orange County shoreline from the southern ates over a seven-mile section of beach. The railway repre- boundary of Laguna Niguel, to the San Diego County Line. sents a major opportunity to provide mass transit service to It includes the cities of San Clemente and San Juan Capis- the beach from major urban areas in Los Angeles and trano, and the unincorporated communities of Dana Point Orange Counties; however, its present alignment acts as a and Capistrano Beach. The offshore area is characterized barrier to beach access. by submerged reefs, rocks, and kelp beds, some of which are protected within the Doheny and Dana Point Marine Intensive residential development is taking place in the Life Refuges. A major marina serving southern Orange subregion. The Capistrano Valley is rapidly developing with County is located below the bluffs at Dana Point; associated tract housing. Planned residential development just north of with the marina development are tourist facilities as well as Dana Point, if approved, will eliminate one of the few a picnic and temporary camping area. South of the marina, remaining opportunities to provide recreation opportunities Doheny and San Clemente City and State Beaches provide where access is relatively good and so would conflict swimming, bathing, and camping. Between Doheny and strongly with Plan policies. San Clement City Beach, a strip of private single-family dwellings and trailers are located directly on the beach. dwellings and trailers are located directly on the beach. Plan Proposals. A substantial portion of the remaining road Development Issues. Access to the subregion is provided by capacity on Pacific Coast Highway shall be preserved for the San Diego Freeway which cuts through the Capistrano recreational use. Major new recreation facilities accessible Valley to parallel the coast about one mile inland. The to the public should be added at Dana Point, and existing SOUTH COAST - 257 access and use throughout the subregion should be ex- subregion. Appropriate policies include maintaining sub- panded. The eastern portion of the Lantern Bay property Is stantial open space with very limited low-density resi- proposed for acquisition as upland support for the harbor dential uses in designated locations in the higher hills. Ex- and State Beach with tourist commercial uses having priori- isting natural watersheds should be protected from inten- ty; recreational vehicle camping use should be provided if sive development; growth-inducing structures such as dams possible. should not be permitted to block streams in undeveloped watersheds. Sand supply should be studied in packet The Plan proposes acquisition of the other major undevel- beaches. Productive and potentially productive agricultural oped holding on the Dana Point headland, the Chandler land should be protected from urban encroachment; public Sherman property, and maintenance In a natural condition service improvements should be expanded only if consistent as a low-intensity public recreation area. The feasibility of with resource protection. Lower elevations might be relocating the railroad abutting the beaches from San Cle- appropriate to accommodate residential and commercial mente to Dana Point should be studied. Removal of housing uses in planned clusters retaining maximum open space. and trailers from beach sand should be undertaken through Undeveloped land above and immediately adjoining coastal public acquisition; prior to this action, public access to the bluffs should be limited in accordance with Plan policies beach should be sought through negotiation. A public over- and where possible, to open space uses for public look should be established at San Mateo Point. recreation and view corridors. Grading should be allowed Faithfully meeting Plan goals In the crucial areas of air only in accordance with Coastal Plan design guidelines; qualtywillif haitat prtecionof rodutiv reouresnew structures should not eliminate or reduce coastal views recreational needs (including adequate traffic circulation), fo aea od rrmiigvsapit.N ao energy conservation, and concentrated urban development employment centers or other population generators should will necessitate severely limiting residential growth in this be permitted until traffic congestion can be resolved. 258 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES SAN DIEGO COAST The San Diego coastline is 76 miles long. It includes areas San Diego Coast Subregions of eight cities and the unincorporated county, State-owned lands and tidelands, and substantial Federal, mostly mili- \ tary, holdings. The San Diego coastline is varied in natural physical char- / acteristics and in the patterns of use by man. It is charact- ORANGE erized by the scenic but fragile bluffs of Camp Pendleton, the San Dieguito area, La Jolla, and Point Loma; the indus- X trialized and urban waterfront of San Diego Bay; and the -' _.... highly urbanized communities from Oceanside to the Mexi- " can border. Some of these communities possess physical and social qualities, or serve functional purposes enhanced " by their coastal location, which render them manmade re- sources worthy of protection, much the same as the protec- 2 i tion of the natural resources. The San Diego coast is also characterized by large open spaces which provide contrast to its urbanization. Such 4 SAN DIEGO open spaces are typically large Federal holdings, such as - Camp Pendleton and Point Loma, and agricultural and flori-t'.~ cultural lands, which are important productive resources of 6 statewide and even national significance. , Another important distinguishing characteristic of San ,, Diego's shoreline are the lagoons and estuaries, and San marshes and mud flats, many of which are still biologically .10 productive or capable of restoration. All are in need of - careful and consistent management. San Elijo Lagoon and 12 .----- the Tijuana Estuary have received state and national recog- MEXICO nition for their resource qualities. The lagoons also act as open spaces lending more distinct geographic identity to some of the region's coastal communities. Because of its exceptional climate, San Diego has become an important national and international tourist center. Its recreational resources including Mission Bay and its dential market demands in coastal communities have led to beaches, draw millions from within and without the region. several problems. Traffic congestion in coastal communities Tourism is a major regional industry which between Ocean- near the region's population centers is particularly severe side and Imperial Beach promises to grow. in the summer months. In some areas it is virtually impos- While the region's beaches have been and will continue to sible for the non-residents to have access to the beaches. be in growing demand, offering a variety of recreational The need for alternative modes of transportation is thus experiences, they have, over the last several decades, been ighlighted in such areas. gradually eroding largely because of the damming of Overly intense development on some coastal bluffs such as coastal streams as well as the construction of some shore- in Solana Beach, and on Mission Bay's Crescent Bay Shore, line structures. Beach sand along the San Diego shoreline have not only created access problems, but have detracted moves in the Oceanside littoral cell from Orange County to from the openness and visual qualities one often associates La Jolla, terminating in the "sand sink" of the La Jolla with the coast. However, a drive along the coastline does Scripps Submarine Canyon. Along the Silver Strand, littoral reveal much of the beauty that remains. Such is particularly flow is from the Tijuana River mouth north to Coronado where the sand has also been depleting and is being lost to Mission Bay The Plan recommends the designation o f off the Zuniga jetty. Sand depletion problems also exist in that route as a scenic highway. the Ocean Beach littoral cell. In Oceanside, where the beach was 300 feet wide 15 years ago, shorefront houses Historically, the region's power plants, including the South must now be protected from wave action in the winter-time Bay, Broadway, Encina and the San Onofre nuclear power by seawalls. San Diego is in dire need of a sound beach plant, have been sited along the coastline. sand management and replenishment program to protect shoreline development as well as its critical recreational With the larger power plants utilizing ocean water for cool- resources. ing, and with the growing amounts of sewage being dis- charged into the ocean, came the growing concerns with The increased demand for shoreline access and the resi- the impacts of sewage and thermal discharges on the re- SAN DIEGO COAST * 259 gion's marine resources. Such resources include the abund- portunities for each coastal area as a first step toward de- dant kelp beds and associated sport and commercial fish- lineating what the implementation of the Coastal Plan may ing, which are major basic industries in the Region. mean in the San Diego Region. The special studies fre- The following discussion focuses on each of the 12 subre- quently called for in the following narrative are expected to gions identified for the San Diego Region for purposes of be undertaken largely by local government in cooperation this Plan. It is designed to focus on the problems and op- with the coastal agency. SUBREGION 1: PENDLETON COAST [See Plan Map 59] Camp Pendleton. Camp Pendleton is a U.S. Marine Corps south from the State Beach to the roadside rest. Both areas base characterized by vast open areas. It serves as an open could be acquired by the State through a transfer of public space buffer between the developed coasts of Orange-Los lands. With the exception of San Onofre State Beach, which Angeles and San Diego Counties, and includes some 17 has been designated as an intensive use zone, the Plan ten- miles of coastline. tatively designates the Pendleton beaches for low intensity day andlor overnight recreational use. Additionally, several Most of the coastal viewshed in Camp Pendleton is unde- classic surfing areas-Trestles, Church, and San Onofre- veloped. With the exception of 24,000 feet of beach front- should be reserved for this coastal-dependent activity. age that is under a 50-year lease to the California Depart- ment of Parks and Recreation and is open to public use, the Plan Proposals. The greatest existing pressures for devel- entire shoreline is controlled by the military. On the imme- opment within Camp Pendleton are around Basilone Road diate shoreline in northern Camp Pendleton is the San Ono- and east of 1-5, where a recently constructed shopping com- fre nuclear power plant; unit 1 has been built and the sec- plex serves military families residing to the east. To comply ond and third of the projected units are under construction. with the Plan's development policies, any further develop- At the Camp's southern end are agriculture lands under ment in the area shall conform to existing landforms, be lease to private growers. designed to enhance the scenic qualities of the area, and 0 The open scenery of Camp Pendleton contrasts with south- should be located inland (east of 1-5) where alternative sites ern California's urbanization. The chaparral which covers exist. its hillsides east of 1-5 is a rich wildlife habitat. The most Upon the certification of the State Coast Plan by the Feder- prominent physical features of the Camp Pendleton shore- al Government under the Coastal Zone Management Act of line are the uniquely scenic coastal Torrey sandstone and 1972, all construction activity proposed by the military Del Mar bluffs and barrancas, shaped partially by natural should be required to be consistent with the Plan to the and man-induced drainage patterns. Some of the sand on maximum extent practicable. Present cooperation between the beaches below is supplied by the eroding bluffs and State and Federal agencies should continue. transported along the coast by wave action (littoral drift). Any coastal areas of Camp Pendleton declared to be sur- The Marine Corps manages Camp Pendleton's three wet- plus land should be retained in public ownership with first lands as part of its nationally acclaimed natural resource priority given to public recreation with careful control and conservation program. The San Mateo and Las Flores management stressed. Additional shoreline that is open to Marshes are non-tidal. Santa Margarita Marsh, the largest, the public should be reserved for low-intensity recreation. is subject to tidal action. As late as 1958, steelhead trout The wetlands shall be preserved with only minimal altera- were observed near the mouth of the Santa Margarita Riv- tions as necessary to carry out a coastal agency-approved er. Because of their natural resource qualities, all three watershed management plan. Restoration of the mouth of marshes have been designated as special study areas. the Santa Margarita River as spawning habitat should be explored. Any alterations to existing landforms and habitat San Onofre State Beach. The State Department of Parks shall include specific provision for rehabilitation of cuts and and Recreation has expressed interest in obtaining more of restoration of vegetation. The Camp Pendleton coastal area the Camp Pendleton shoreline for public use. Of particular shall continue to serve as a non-urbanized buffer between interest is the beach frontage from the San Onofre State Orange-Los Angeles and San Diego Counties. Beach north to the county line, and the beach frontage SUBREGION 2: OCEANSIDE [See Plan Map 59] The Oceanside/San Luis Rey subregion extends from Camp include Buena Vista Lagoon. The inland boundary encom- Pendleton to Oceanside's southern boundary. It does not passes the coastal-related agricultural and potential agricul- 260 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES tural lands of the San Luis Rey River Valley east to the coastal erosion in the south, the beaches of Oceanside are of good zone, line, then west along Highway 76 to Interstate 5, south quality and can support intense recreational use. With ad- on Interstate 5 to Highway 78, and east to El Camino Real. ditional access facilities, and non-auto transportation sys- stems, the Oceanside beaches could easily accommodate more use. The Plan designates Oceanside as an intensive A major natural resource of the subregion, the relatively more use. The Plan designates Oceanside as an intensive recreational use zone. undeveloped San Luis Rey River floodplain, is mainly used recreational use zone. for strawberry and tomato production. The important wild- life areas of the San Luis Rey River are the river mouth San Luis Rey River Valley. To eliminate or mitigate adverse and narrows (east of 1-5). Another wetland area is the Loma effects upon the San Luis Rey River Valley, its floodplain Alta Slough. The ocean shoreline and sandy beach areas of and agricultural areas, the following development proposals Oceanside are also significant regional and statewide re- should be carefully evaluated for consistency with the sources. Coastal Plan: (1) the proposed relocation of a freeway (new Route 76) through part of the valley and its agricultural In addition, the Oceanside Pier, which is a popular fishing areas; (2) a major flood control channel improvement pro- spot for tourists as well as residents, is one of the few ject proposed by the Corps of Engineers; and (3) continued areas in the region open to ocean fishing without a fee or scattered residential development in the floodplain which license. may result in the conversion of coastal agricultural areas and the inducement of a costly flood control project. Sand Transport Disrupted. Construction of the Del Mar Boat Basin and Oceanside Small Craft Harbor has disrupted HarborlStrand Area. The Harbor/Strand area felt consider- longshore sand transport in the Oceanside littoral cell. The able development pressure prior to the passage of Proposi- harbor has become a sand trap for an estimated 2.5 million tion 20, resulting in a 17-story condominium near the har- cubic yards of sand which must be dredged out periodically bor, a 550-unit apartment project on the beach, and a and deposited on the beaches to the south. The winter tides proposed nine-story hotel, also in the harbor area. Continu- have washed away the beach, once 200-300 feet wide, and ing pressures have resulted in some fragmented develop- have created the need for shoreline structures to protect the ment along the Strand area. South Pacific Street beachfront homes. Replenishment of the lost beach sand and the institution of a program for sand maintenance and bypass around the harbor entrance Development Proposals. The two most significant develop- are of high priority. ment proposals are expansion of the small craft harbor to a proposed 2,000 slips by the Army Corps of Engineers, and Scenic Roadways. Pacific Street, which runs along a coastal the redevelopment of the Harbor/Strand area. Both can and bluff parallel to the beach, is a scenic roadway. Another should have a positive influence on the immediate area and important vista designated for protection by the San Diego the region. Expansion of Oceanside Harbor will relieve the Comprehensive Planning Organization is the view of the pressure for new marinas elsewhere (e.g., Agua Hedionda ocean and San Luis Rey River from I-5 at the point where Lagoon), and can make a significant contribution to correct- the freeway crosses the river. The height of development ing the sand bypass/beach erosion problem. The proposed along the Strand should be controlled so as to maintain the redevelopment project would revitalize a deteriorating ocean views along the open sections of Pacific Street for beach area. Along with the harbor expansion is an oppor- drivers, pedestrians, and cyclists. Although suffering from tunity to create a beach-oriented tourist commercial resort Oceanside Harbor O"--;" SAN DIEGO COAST � 261 area. Both projects should be undertaken only with careful Special Studies. The Coastal Plan calls for special studies attention to enhancing public access to and enjoyment of on the lower San Luis Rey River marsh areas and Loma the shoreline, and protecting and preserving the habitat Alta Slough to develop a management plan for their future areas in the San Luis Rey river mouth. In basic confor- protection and management. Special study of the Harborl mance wih CPO's Initial Coastline Study and Plan, the Strand area should apply appropriate policies on resource Coastal Plan recommends the wetland areas of the San Luis preservation and enhancement (especially in the river Rey river mouth and narrows for priority acquisition as a mouth area), appropriate land use and intensity of use, wildlife reserve. Planning for the harbor area, the river development standards, landscaping and design themes, mouth, and the Strand should be carefully coordinated to transportation alternatives to the automobile (e.g., Amtrak ensure that cumulative development enhances coastal re- stop, trams), and the potential of the Strand as a pedestrian sources and access. mall in developing a specific area plan. SUBREGION 3: CARLSBAD [See Plan Map 59] This subregion extends from the north shore of Buena Vista symphony of color. Other distinct architectural and histori- Lagoon south to the Carlsbad city limit along the north cal landmarks in Carlsbad are the Twin Inns and Royal shore of Batiquitos Lagoon. The eastern boundary of the Palms. subregion extends generally to El Camino Real. B each Access. Carlsbad possesses some of the finest beach The coastal area of Carlsbad between Buena Vista Lagoon frontage in the entire region, but there are problems of and Agua Hedionda Lagoon west of 1-5, is largely develop- public access along several segments of the shoreline. That ed. In contrast, the area to the south, consisting largely of area extending southward from Buena Vista Lagoon to areas annexed over the past several years and areas that Carlsbad State Beach does have parking, but it is insuffici- Carlsbad is in the process of annexing, is mainly undevel- ent to meet the overall demand and some of the parking is oped, the major exception being the San Diego Gas & Elec- located on the sandy beach. Additionally, the recent rapid tric's power plant and some residential development adja- transition from single- to multiple-family residential devel- cent to and near the shoreline south of Aqua Hedionda opment along the major access routes to the State Beach Lagoon. The southern and inland portions of the subregion could have adverse impacts upon public beach access. support considerable agricultural use. The Encina Water Farther south, the private beach owned by the San Diego Pollution Control Facility is also in this subregion as is Gas & Electric Company is reserved for the use of its much of the area's newer industrial development, which is employees. located west of I-5. ~~~located west of 1-5. ~The other State-owned park, South Carlsbad State Beach, Habitat Areas. The prime natural resource and habitat presents another type of access problem. While its primary areas of the subregion are the two lagoons. Buena Vista La- function is to meet the ever-growing and legitimate demand goon is a coastal freshwater body which because of its bio- for shoreline camping facilities, only minimal facilities have logical significance, has been acquired as a State wildlife been provided for day use. preserve. Agua Hedionda Lagoon is subject to tidal action, Development Pressures. Of all the areas in the San Diego with the tidal prism maintained by San Diego Gas & Elec- e o n rsus tere in the s eg Region, Carlsbad is experiencing the most severe pres- tric. The lagoon supports recreational uses such as boating esA Crepricin th t e pres sures. A CPO report anticipated that the present population and water skiing. of 17,500 could grow to 46-60,000 by 1985. Of greatest con- Agricultural lands. The subregion includes many acres of cern as supported by the CPO report, is that most of the prime and potentially prime agricultural lands, intensively new development would occur on new lands, lands now in cultivated for nursery and truck crops and flower and bulb or suitable for agricultural use, and vacant lands that serve production. Carlsbad floricuture production, enhanced by a as buffers to the lagoons and agricultural lands. Current coastal location, is of statewide and national importance. property tax assessment practices accelerate the conversion The ocean shoreline itself is also a significant resource. of agricultural lands. Many parcels too small to qualify under the Williamson Act are especially suitable for coast- Visual Qualities. The Carlsbad area contributes much to the al-dependent floriculture and agriculture. Carlsbad's new visual qualities of the San Diego Coastal Region. The two Land Use Element of the General Plan recognizes the unde- lagoons create visual corridors from 1-5 to the ocean and to sirable impacts of uncontrolled growth and proposes sev- inland areas. The lagoons and surrounding open spaces eral strategies to manage future growth and preserve open provide visual relief in contrast with nearby urban areas. space and resources. These include a growth monitoring Perhaps the most prominent visual features of the subre- plan, an urban reserve program, and the designation of 0gion are the flower and bulb fields. When in bloom, they "special treatment areas." Another issue critical to the provide the passerby and coastal visitors with a veritable future of Carlsbad is the redevelopment of its central busi- 262 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES ness district, now in its initial stages. This district is desig- special study areas, along with the productive and potenti- nated as a Special Study Area to promote the preparation of ally productive agricultural lands. Four sites for priority a new redevelopment plan that would revitalize the down- acquisition of title or public use rights have been identified. town area while simultaneously relieving development pres- sures on resource areas. Through redevelopment, the The Plan proposes acquisition of the land area immediately positive characteristics of the downtown area can be further surrounding Buena Vista Lagoon to promote preservation enhanced to create a truly distinctive coastal business and allow passive recreation. More intensive recreational district, use should be accommodated in an acquisition surrounding Agua Hedionda Lagoon, and lateral access should be pro- vided along the shoreline. Plan Proposals. Protection of the lagoons and surrounding areas, protection of floriculture and agriculture, and maxi- The proposed acquisition of the Encina Power Plant beach- mum public access to beaches are prime concerns in the front and extension of South Carlsbad State Beach to the Carlsbad subregion. Accordingly, the Coastal Plan desig- north and south will provide much needed public beach nates the lagoons and their buffer and drainage areas as frontage for the region's fastest growing area. _--~~~~~~ m Batiquitos Lagoon SUBREGION 4: SAN DIEGUITO: LEUCADIA, ENCINITAS, CARDIFF, SOLANA BEACH [See Plan Map 59] The San Dieguito subregion includes the unincorporated south. The inland boundary follows El Camino Real. Most communities of Leucadia, Encinitas, Cardiff, and Solana of the land is already developed, although at a very low Beach. The boundaries extend from (and include) Batiqui- density, consisting primarily of single-family residences and tos Lagoon on the north to the Del Mar City limits in the duplexes. SAN DIEGO COAST * 263 Critical Resouce Areas. The most critical and valuable re- Beach Access. The beaches of the San Dieguito subregion source areas include Batiquitos and San Elijo Lagoons, and offer substantial recreation potential. Anticipated use may the ocean shoreline and adjacent coastal bluffs. Some kelp be of low or moderate intensity due to the physical barrier harvesting takes place off Leucadia and Encinitas. The San created by the coastal bluffs. Because of the desirability of Dieguito communities also contain substantial lands being the San Dieguito beaches, the increased population in the used for agricultural and floricultural production. North County, and the lack of improved public beach access facilities, the public has carved out foot paths on some of Batiquitos Lagoon. Batiquitos Lagoon, rarely open to tidal the bluffs, resulting in accelerated erosion. In response to action in recent years, has been polluted by sewage and this increasing problem, the Board of Supervisors directed runoff from San Marcos Creek. Selective and careful dredg- preparation of a comprehensive beach access plan, approv- ing and restoration of tidal flushing along with appropriate ed in May of 1975, that will help meet Coastal Plan access controls in areas draining into the lagoon could revitalize goals. Before the passage of the Coastal Act, portions of the lagoon as a valuable coastal resource for habitat and the San Dieguito bluffs area experienced extensive condo- some recreational activities. The county has designated it minium development. Unfortunately, some of this was in- as a regional park. consistent with the established character of the San Sal Elijo Lagoon. San Elijo Lagoon has been recognized by Dieguito communities. It destroyed the previous sense of the local, State and Federal governments as an outstanding openness along the coastal bluffs, and failed to provide phased public access to the adjacent beaches. A case in coastal resource. However, it has been threatened by devel- phased public access to the adjacent beaches. A case in point is the solid wall of condominium developments along opment in and around it. The 1973 completion of the Es- point is the solid wall of condominium developments along the South Sierra Avenue bluffs in Solana Beach erected condido land outfall terminated the daily flow of some 2.5 the South Sierra Avenue bluffs in Solana Beach erected over the past seven years. million gallons of treated sewage effluent into the lagoon over the past seven years. from Escondido Creek. This caused substantial drying up of An additional problem in some coastal areas of San Diegui- the inner lagoon, which continued into the migratory shore- to is the lack of visual access corridors toward the sea bird nesting season in 1974. This also aggravated problems because of continuous fences protecting the privacy of the of water stagnation and closing up of the lagoon mouth. bluff top residents. Accordingly, the Coastal Plan stresses The County of San Diego is preparing a management plan improved physical and visual access to the San Dieguito for the lagoon which, when combined with its pending shoreline and designates them for moderate use with inten- public acquisition, should enhance and protect it. Some of sive nodes located throughout, with protection of the two the hillsides around the San Elijo Lagoon have been signifi- "classic" surfing breaks, Sea Cliff County Park and Cardiff cantly graded and developed. The remaining natural hill- Reef. sides should be protected from excessive grading to pre- serve the visual amenities of the lagoon surroundings and Development Pressures. Other valuable resource areas un- prevent excessive sedimentation. der development pressure are the lagoon areas and the ag- ricultural lands. To date, the valuable and irreplaceable la- Shoreline Bluffs. The shoreline bluffs of the San Dieguito goons have not been privately developed, although residen- area are extremely fragile, and are subject to severe ero- tial marina projects have been proposed. As in other coastal sion and sloughing. In some areas, excessive and ill-design- subregions, conversion of agricultural lands to urban uses ed blufftop developments without adequate public beach is a continuing and growing problem. Coastal Plan policies access have aggravated bluff erosion and failure induced are designed to protect both of these valuable resources. by water and foot traffic. Special Communities. Based primarily upon their low-densi- A potential issue or possible difference between the Coastal ty, semi-rural character, the communities of Leucadia, Plan and the San Dieguito Community Plan is the impor- Encinitas, Cardiff, and much of Solana Beach are desig- tance attached to the preservation of agricultural lands. nated in the Coastal Plan as communities with special qual- This is a central concern of the Coastal Plan. Although the ities of greater than local significance for all users of the San Dieguito plan discusses the importance of preserving San Diego coast. In combination with the lagoons and agricultural lands, the plan recommendations and land use beaches of northern San Diego County, these communities map designations do not reflect this same commitment. The praces o ternt an uniqeg opprunity, fors providing ifenttye present an unique opportunity for providing a different type county's recently adopted initial growth policy also calls for of recreational experience that balances the more intense the preservation of agricultural lands. beach uses in the San Diego city area. Additional reasons Special Studies. Batiquitos and San Elijo Lagoon, the for this designation are the small physical scales of the LeucadialEncinitas business districts, the blufftop areas of communities which are complementary to coastal land- the San Dieguito communities, the Cardiff duplex transition forms, contribute to the area's visual attractiveness, and area, along the ocean terrace, overlooking Cardiff State encourage pedestrian access to the shoreline; the diversity Beach, and the Solana Beach business district are desig- of coastal housing opportunities and beach-oriented com- nated as special study areas. The intent in so designating mercial uses; and the existence of low-profile blufftop de- the lagoons is to coordinate County and State efforts to velopment set back far enough from the edge of the bluff to develop a management program that will guide their be visually unobtrusive from the beach. In order to protect long-term protection. The management plans for San Elijo the special qualities and pedestrian orientation of the San and Batiquitos should consider the drainage areas of Escon- Dieguito communities, the scale of new residential and dido and San Marcos Creeks, respectively, and the impact commercial development especially west of Interstate 5, of any alteration on the lagoon environment. Both San Elijo should conform to existing community character and needs. and Batiquitos Lagoons are recommended for priority Because of the opportunities for low- and moderate-income acquisition. housing and its low-density character, Eden Gardens is also a community with special qualities of greater than local In addition, the Plan proposes acquisition of four beach ac- significance. Downtown and beach sections of Leucadia and cess points and support facilities throughout the San Encinitas also offer lower-priced housing, especially rentals. Dieguito area. Designation of the blufftop areas of San 264 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES Dieguito will support the community beach access study, protect special manmade and natural qualities. Two other and include it in a comprehensive beach access plan. The designated priority acquisition sites would create extensions other special study area designations should ensure the of existing State Beach units. preparation of specific area development plans that would SUBREGION 5: DEL MAR [See Plan Map 60] The Del Mar subregion includes the City of Del Mar and Beach Areas. The Del Mar beaches, between San Dieguito the Torrey Pines community planning area of the City of Lagoon and 15th Street, are wide and sandy. During the San Diego, which is made up of Del Mar Heights and Del summer months they support intensive recreational use. Mar Terraces. The boundaries extend from Via De La Valle However, due to chronic sand depletion problems and lack on the north to Carmel Valley on the south. Its inland of suitable parking facilities and areas for additional park- boundary extends inland to the coastal zone boundary to in- ing, present use of the beach sometimes approaches capac- clude the agricultural lands of the San Dieguito Valley, then ity. The beach areas south of 15th Street are suitable only south along El Camino Real. The area is characterized by for moderate use because of unstable bluffs over which low-density, mostly single-family development. The largest there is no convenient access. Limited available public parcels of vacant land include San Dieguito Lagoon and parking tends to discourage beach use by non-Del Mar resi- Crest Canyon, dents, as do the signs posted by the Del Mar Civic Associa- tion, reading: "This Beach Is For The Use Of Residents of San Dieguito Lagoon, Crest Canyon, and the Ocean shore- Del Mar. line and adjacent coastal bluffs are the prime natural habi- tat and scenic resource areas. From 1-5, San Dieguito La- Development Pressures. Prior to the passage of the Coastal goon and the lands immediately surrounding it are especi- Act of 1972, the Torrey Pines community planning area ex- ally scenic. The State-owned Torrey Pines Reserve Exten- perienced considerable development pressures, with most sion also reaches into the southern portion of the sub- obvious being the construction of several large region. The coastal bluffs of South Del Mar are geologically condominium projects on the hills north of Los Penasquitos unstable and susceptible to erosion and landsliding. Lagoon, overlooking the lagoon and the ocean. Special Community. The City of Del Mar, 3/4 square miles Currently, the major development activity in Del Mar in area, is already substantially developed and is one of the Heights and Del Mar Terraces is, with the exception of most scenic communities in the San Diego Region. Its commercial development on Carmel Valley Road, single- special mixture of natural and manmade features creates a family residences. However, several issues of concern have truly unique visual environment. Development in Del Mar emerged. Most critical has been the encroachment of devel- is generally low-profile and small-scale and is located and opment on the Torrey Pines Reserve Extension and Crest designed to blend with and complement natural landforms. Canyon. View blockage by new hillside development is also Because of its small scale and visually attractive village-like a concern. The commercial development along Carmel character, its historic function as a resort destination, in- Valley Road has raised issues of appropriate land use, cluding the race track, and because of the opportunities for building design, landscaping, and impact on the aesthetic pedestrian and bicycle access, beach-oriented commercial and natural character of Los Penasquitos Lagoon. uses, and opportunities for moderate-income housing used Plan Proposals. The recently adopted Torrey Pines Corn- primarily by students, the Coastal Plan designates Del Mar Plan opas he reel a e is munity Plan, encompassing the areas of Del Mar Heights as a community with special qualities of greater than local and Del Mar Terraces, has as its foundation the retention and Del Mar Terraces, has as its foundation the retention significance. In addition, the Del Mar Racetrack, based of the residential character of the community and the upon its historic contributions to the community and the re- preservation of open space . The Plan also rcomm end the preservation of open space . The Plan also recommends the gion, has also been designated as a manmade resource. acquisition of Crest Canyon and additional areas to be acquisition of Crest Canyon and additional areas to be The City of Del Mar has taken steps to retain its existing made part of the Torrey Pines Reserve Extension. character. A design review board reviews all construction, other than within some single-family residential areas, for The Coastal Plan designates San Dieguito Lagoon a special aesthetic quality, height limitation and view preservation. A study area and a prime acquisition site to protect and en- May 1974 general plan proposal recommends open space hance its resource and habitat values. A lagoon manage- preservation and regulation and additional public acquisi- ment plan should be based on the work of the recently tion of beachfront, blufftop, and other environmentally sig- established Del Mar Task Force to prepare a management nificant areas, which appear consistent with Coastal Plan plan for the San Dieguito Lagoon. Other priority acquisition policies. The City of Del Mar has already purchased land sites are the Del Mar coastal bluffs, Crest Canyon, and for two blufftop parks, one of which has been improved, several small parcels of land proposed for rounding-off the and in conjunction with the City of San Diego, is planning Torrey Pines Reserve Extension. The Del Mar Terraces are the purchase of Crest Canyon. north of Carmel Valley Road and overlooking the Los SAN DIEGO COAST * 265 Penasquitos Lagoon should have special study to prepare a sure that the special amenities of these valuable building specific area development plan that will assure that the sites are used for coastal-related tourist-commercial devel- visual and natural resources of the lagoon and surrounding opment for the use and benefit of the people of the region hillsides are enhanced. and State as a whole. The coastal bluffs which parallel Del Mar present an opportunity to create a linear park with a The site of the old Del Mar Hotel and the lands below it to coastal trail as a main feature, to be investigated in another the beach are also designated as a special study area to en- special study. SUBREGION 6: TORREY PINES/LA JOLLA [See Plan Map 60] The northern boundary of this subregion includes the Los shoreline, coastal bluffs, numerous tidepools, two marine Penasquitos Lagoon and extends to Carmel Valley Road. ecological reserves and kelp beds. Los Penasquitos Lagoon The southern boundary approximates the line between La possesses exceptional coastal lagoon qualities, already doc- Jolla and Pacific Beach. The inland boundary extends east umented in several studies as having unique educational to the coastal zone boundary to include the Carmel Valley and research values. Other studies have investigated meth- and Los Penasquitos Valley areas, then south along El ods of enhancing the lagoon's tidal prism, thus improving Camino Real. The northern portion of the subregion (Los tidal flushing and habitat quality. The Torrey Pines State Penasquitos Lagoon, Torrey Pines Reserve) is undeveloped, Reserve protects the very rare Torrey Pine and also in- while the southern portion (La Jolla is developed very cludes portions of Los Penasquitos Lagoon. The ocean intensively). shoreline includes some of the most beautiful and varied shoreline in the San Diego Region: from the wide, sandy The prime natural resource and habitat areas are Los Pen- beaches of La Jolla Shores to the rocky headlands and asquitos Lagoon, Torrey Pines State Reserve, the ocean pocket beaches of La Jolla, and the high and precipitous La Jolla SOWNS. , \ -.M. , . i. ... ; a 266 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES bluffs and narrow beaches of Black's Beach. The La Jolla airways. A recently begun planning effort will address ma- area also posses many excellent tidepools, such as the jor issues for the proposed Torrey Pines City Park on the Bird Rock area. Protection of these valuable resources is a bluffs above Black's Beach, including improved emergency priority concern of the Coastal Plan in the area, access to Black's Beach, resolution of use conflicts between hang-gliders, soarers, and model airplanes, and long-term La Jolla. La Jolla is a community with special qualities of parking solutions. other than local significance. The visual qualities of the res- idential and commercial village-like districts, the attractive Like other coastal communities, La Jolla suffers from criti- and important visitor designation centers, and the remain- cal traffic congestion and parking problems. Exacerbating ing low and moderate income housing combine to create a these are pressures to intensify commercial districts and coastal community of variety and charm. These attributes residential neighborhoods. Although most neighborhoods attract visitors from San Diego and beyond during all are stable, an existing enclave of older, low-income housing seasons. is being replaced by expensive developments at higher den- sities. The La Jolla community has lost more than 360 low- A major ingredient of La Jolla's charm is its scenic setting. income units since 1960. If this trend continues, the eco- With hills set back from the shore, many natural promon- nomic and racial diversity remaining in La Jolla will soon tories exist where the visual amenities of this unique com- vanish. Also downtown La Jolla has been undergoing a munity can be enjoyed. Prime vista areas include Los Pen- transition that threatened the charm of the community it- asquitos Lagoon and the ocean from 1-5 and old Highway self, with small specialty shops and restaurants, which con- 101. The view of the ocean and downtown area from La 101. The view of the ocean and downtown area from La tribute so much to La Jolla's character, being replaced by Jolla Shores Drive above Scripps Institution and of course corporate and financial headquarters. The continued loss of from the top of Mt. Soledad, offer unforgettable panoramas. low-income housing units or substantial intensification of Also, in addition to its value as an open space resource and the commercial district with large office buildings appear habitat area, Mt. Soledad itself is one of the highest points contrary to Plan policies on development and manmade along San Diego's coastline and, consequently, an easily rsc. identifiable landmark. Plan policies stress careful protection of these scenic resources. The La Jolla/La Jolla Shores community plan provides a Beach Use. An additional attraction of the subregion is rec- basis, consistent with Coastal Plan policies, upon which to reation. La Jolla Shores, along with Mission and Ocean solve many of La Jolla's problems. Included are well-con- Beach (in subregion 7), consistently has the highest annual ceived proposals for residential and commercial design cir- beach attendance figures of the San Diego Region. Wide, culation (shuttle service) and improved public access to sandy beaches, warm and clear water, good surf, and pub- beach areas. lic parking all contribute to their popularity. The pocket Special Studies. Special study areas designated by the Plan beaches of La Jolla offer less intense recreation exper- are Los Penasquitos Lagoon (where a nuclear power plant is are Los Penasquitos Lagoon (where a nuclear power plant is iences. Until recently, Black's Beach was sparsely used due projected by San Diego Gas and Electric Company), Torrey projected by San Diego Gas and Electric Company), Torrey to the barrier presented by the high bluffs. Used only by Pines City Park (proposed), and the La Jolla community surfers and nude bathers, it offered a relatively remote rec- planning area. A management plan is needed to guide fu- reational experience--a truly unique situation considering ture management and preservation of Los Penasquitos La- ture management and preservation of Los Penasquitos La- proximity to La Jolla. However, as a result of the publicity goon. Because of its high resource value, the Plan recom- given the "free" beach movement, Black's Beach now ex- mends that the State Department of Parks and Recreation mends that the State Department of Parks and Recreation periences intense use during summer weekends. complete the acquisition of the lagoon for inclusion in the Plan Proposals. Based upon the variety of use levels, the Torrey Pines Reserve. The two sites proposed for acquisi- Coastal Plan recommends intense, moderate, and low in- tion are 280 acres of estuarine habitat owned by San Diego tensity recreational use zones throughout this subregion. Gas and Electric Company and an 18-acre parcel of land Several "classic" surfing spots have been designated by lying southeast of the intersection of Camino Del Mar and the Western Surfing Association. Black's Beach, Wind 'n Carmel Valley Road. For the proposed Torrey Pines City Sea, and Big Rock are best known. Park and La Jolla, the intent of the Plan's special study area designations is to coordinate the planning of the City Blufftop areas above Black's Beach and adjacent to the Salk of San Diego, La Jollans Inc., other community planning Institute offer coastal wind currents, and here hang-gliders, groups, the Regional Commission and successor coastal soarers, and model airplane enthusiasts compete for the agency. SUBREGION 7: PACIFIC BEACH, MISSION BEACH, OCEAN BEACH, MISSION BAY [See Plan Map 60] The land within this subregion is intensively urbanized with units per acre, has the highest average density. This is also predominantly residential and commercial uses. Of the the highest density in the City of San Diego. Although three beach communities, Mission Beach, at 33 dwelling certain districts of Ocean Beach and Pacific Beach have SAN DIEGO COAST � 267 equivalent residential densities, other districts are predom- special coastal qualities, meriting protection, including an inantly single-family and bring the average density figures important visitor destination center for recreation and other down. Of all the beach communities in the San Diego coastal-related commercial activities, and a significant wild- Region, these three are the most socio-economically life habitat area. Sea Woirld, Vacation Island, the Ocean ibalanced. Beach Pier, and Belmont Park are identified as man-made resources because of the recreational, tourist, and commer- Mission Bay Park is a multipurpose recreational resource of cial functions they serve. regional and statewide significance, and contains the major undeveloped parcel of land in the subregion, Fiesta Island. Belmont Park. The retention of Belmont Park versus its Valuable natural resource areas of the subregion include conversion to a passive landscaped park was the source of the ocean beaches and the beaches of Mission Bay. Also of much controversy during the preparation of the Mission importance are the San Diego rivermouth and floodplain, Beach Precise Plan adopted by the San Diego City Council the Kendall-Frost Preserve in Mission Bay, the very fragile in 1974. Since community consensus whether or not to re- Sunset Cliffs and tidepools, and the Famosa Street Slough. tain Belmont Park could not be reached, the Community Plan recommended that if the City Council chooses to retain Special Communities. Mission Beach and Ocean Beach are it, physical improvements to it should be required. Belmont communities with special qualities of greater than local sig- Park's roller coaster and carousel have been officially crass- nificance to be protected. Mission Beach is identified as ified by the San Diego Historical Society as historical sites. such because of its low-profile medium-density housing; Visual Amenities. Mission Bay Park is a prime visual re- Visual Amenities. Mission Bay Park is a prime visual re- owner-occupied and medium-priced rental housing, serving source because of the many vantage points around its student and young professional housing needs; its commer- perimeter, especially the vistas provided from 1-5. Certain cial/residential mix, which encourages pedestrian and bi- sections of Mission Beach, Ocean Beach, and Pacific Beach cycle use; and the existence of Belmont Park as a regional possess visual amenities to be protected under Coastal possess visual amenities to be protected under Coastal recreational shoreline resource, which complements beach Plan policies, as evidenced by Ocean Front Walk and Bay use. Ocean Beach's special qualities include a low-profile Front Walk in Mission Beach. The undergrounding of over- Front Walk in Mission Beach. The undergrounding of over- scale of existing development and community character; di- head power lines and improvements along Mission Boule- head power lines and improvements along Mission Boule- verse housing opportunities for low- and moderate- income verse housing opportunities for low- and moderate- income yard will do much to improve the visual qualities of Mission residents, both young and old; a visitor destination of Beach. regional significance; a small scale of development, which provides opportunities for pedestrian and bicycle Beach Access. The three beach communities of this sub- movement; a municipal fishing pier; and numerous beach- region (along with La Jolla Shores in subregion 6) receive oriented commercial uses. As a man-altered environment the heaviest beach use of the Region. The wide, sandy with substantial recreational value, Mission Bay also has beaches are of high quality and could well accommodate Mission Bay Park, San Diego 268 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES more use without significantly lowering the quality of the Development Pressures. Pacific Beach, Mission Beach, and recreational experience. The factor controlling the level of Ocean Beach share common problems. Development pres- use of the beaches is the availability of parking or an alter- sures, which are a function of both rising demand for native means of access (given preference by Coastal Plan beach-oriented property and property tax Increases, are policies). Parking has always been insufficient during peak threatening to destroy the physical, social and economic summer weekends, although the new city parking lot across character of the beach communities. Also, as each vacant from Belmont Park should help. One possible solution to lot, single-family home, or low-density unit is converted to the access problem, mentioned in the Mission Beach pre- a multiple-unit complex, the already critical density-related cise plan, would be the initiation of a beach shuttle service problems of traffic and parking congestion will occur. This, from inland parking areas. The Plan recognizes the existing in turn, may further restrict access to the bay and ocean and potential use levels of the subregion and designates the beaches, as graphically demonstrated by the condominium beach areas from Diamond Street to the Ocean Beach Pier development along Riviera Beach Drive. as intensive use zones. Because of their extremely fragile nature, the Sunset Cliffs of Ocean Beach are designated as The development standards in the adopted Mission Beach a moderate use zone from Ocean Beach pier to Ladera and Ocean Beach precise plans could go far toward imple- Street, and as a light use zone south of Ladera Street to the menting Coastal Plan policies calling for preserving the de- Navy Property. The Western Surfing Association has identi- sired characteristics of these communities. However, such fled 24 "classic" surfing breaks in the Pacific, Mission, standards deal with only the physical aspects of develop- Ocean Beach subregion, with the majority in the Sunset ment and can do little about such threats as market pres- Cliffs area; Plan policies call for protection of these areas. sures and increasing property taxes. The Mission Beach precise plan suggests several alternatives to the present Mission Bay. The recreational use of Mission Bay varies taxation system; however, the implementation of such alter- Mission Bay. The recreational use of Mission Bay varies natives goes far beyond the scope of a community precise widely, from intensely used areas such as Crown Point to natives goes far beyond the scope of a community precise plan. the moderate use areas of Fiesta Island. Touristlcommer- plan. cial recreation is an integral part of the Mission Bay con- Special Studies. Mission Beach, Ocean Beach, Pacific cept. In previous years, commercial development was al- Beach and Mission Bay are designated as special study ar- lowed to restrict lateral public use (access along the beach); eas to coordinate the planning efforts of the City of San however, the City of San Diego has now adopted a policy Diego, community planning groups, the Regional Commis- that would prohibit such development. As part of carrying sion and successor coastal agency. The San Diego river out the Coastal Plan, the City will also reevaluate and re- mouth and Famosa Street Slough are also designated as vise the Mission Bay Park Plan to ensure maintenance of special study areas to prepare a management plan to guide resource preservation, public access, and recreational the long-term utilization and protection of these resource quality. areas. SUBREGION 8: POINT LOMA FEDERAL LANDS [See Plan Map 61] This subregion includes the military and other Federal gov- do not qualify as manmade resources. Potential conflicts ernment holdings located on the southern portion of Point probably do exist between the Coastal Plan and proposals Loma (south of Kellogg Street and Point Loma College). to expand the waste water treatment plant. The entire subregion consists of Federal lands, which in- cludes significant undeveloped natural areas. Perhaps the finest coastal scenic vista of the San Diego Coast Region is from Cabrillo Monument at the southern- On Point Loma the major resource areas to be protected most promontory of Point Loma; It affords an unrivaled under Coastal Plan policies are the Cabrillo National Monu- panorama of the entire region. Additionally, the point itself ment, the entire beach and shoreline area-including tide- must be considered the prominent visual feature and land- pools, the last large undisturbed vegetation habitat lands, mark of the Region. and a high quality intertidal area off southern Point Loma. Manmade structures or environments that meet Plan criter- The subregion, if further opened to the public, would have ia for manmade resources include the historic Point Loma a very high recreational potential. South of Point Loma Col- Lighthouse, the Cabrillo National Monument, the Coast lege, access is restricted by the topography to the extent that the beach can be reached only by boat. Also, military Guard Lighthouse, the Fort Rosecrans National Cemetery, that the beach can be reached only by boat. Also, military the original site and buildings of old Fort Rosecrans, a nd restrictions prohibit public use of this section of shoreline. the original site and buildings of old Fort Rosecrans, and Teebrir aepeevdti soeo h e the remnants of coastal defense installations. These barriers have preserved this as one of the few remote stretches of ocean shoreline In southern California, Military installations and the Metropolitan treatment plant matched only by portions of Camp Pendleton in the San Di- (with a rated capacity to reach 110 million gallons per day ego Region. Because of their immeasurable value as a re- (MGD) and a 230 MGD ocean outfall, serving most of met- mote shoreline area, the Plan designates the Point Loma ropolitan San Diego) area noteworthy manmade features, but military lands for light recreational use. The intent is to en- SAN DIEGO COAST * 269 courage the relaxation of military restrictions on public ac- Point Loma is identified as a contingency area on the cess, while still preserving the remote character. Coastal Plan Map. Any military land declared surplus should be retained in public ownership. Military Lands. The military lands of this subregion are not subject to the same development pressures as other areas. The Navy has stated that if its land needs were to diminish Military expansions on Point Loma, however, may very well at Point Loma, the National Park Service would be the reci- encroach upon sensitive and valuable lands still in a natural pient of any surplus property for inclusion into the Cabrillo state. Upon the certification of the Coastal Plan by the National Monument. The two areas of Point Loma with the Federal Government under the Coastal Zone Management highest priority for acquisition are the extension to Ladera Act of 1972, all construction activity proposed by the mili- Street Park and the Cabrillo National Monument expansion, tary should be required to be consistent with the Plan to as recommended in the Monument's Master Plan. Both the maximum extent practicable. Present cooperation be- areas could be acquired by a transfer of public lands. A tween the State and Federal governments should continue special study by the coastal agency should ascertain proper to ensure that unique and irreplaceable resource qualities uses and the appropriate level of use, and should assign are not diminished. first priority to coast-oriented public uses. SUBREGION 9: SAN DIEGO CITY BAYFRONT [See Plan Map 61] Boundaries of this urban-oriented subregion are the San Based upon their opportunities for pedestrian and bicycle Diego River Flood Control Channel to the north, the eastern access and ciruclation, their urban waterfront development boundary of the railroad right-of-way including the Santa that maximizes the diversity of opportunity for the general Fe Depot to the east, San Diego Naval Station to the south, public to enjoy the bayfront, and their tourist/commercial and Coronado City limits to the west. The area is extensive- centers which attract numerous visitors to their shore areas, ly developed, with tourist/commercial use on Harbor and restaurants, hotels and marinas, Harbor Island, Shelter Is- Shelter Islands, aviation-related industries around Lind- land and the Embarcadero are also designated as areas bergh Field, marine-oriented industrial uses, including Na- possessing special coastal manmade resource qualities. In tional Steel and Shipbuilding, located generally around the addition, the Santa Fe Depot, The Star of India, and the Coronado Bridge, and office/commercial uses in the down- Berkel'y should be considered manmade resources because town area. The subregion also includes the Marine Corps of their cultural, historic, and architectural value. Of special Recruit Depot, the Naval Training Center, the Navy visual significance are Harbor Island, Shelter Island, Span- Athletic Field, the Fleet Anti-Submarine Warfare Training ish Landing, the Embarcadero, and Broadway Pier. Center, the Naval Facilities Engineering Command, Naval Supply Center, and the Commandant, Eleventh Naval This subregion offers recreational opportunities unique to District. most of the region. Kellogg Beach is one of few opportun- San Diego skyline, Shelter Island marina 0=~~i ~ �'rP~i ~;rjM 270 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES ities for water-contact activities such as swimming, but sub- community planning area, because of its opportunities for stantial boating facilities exist. The grassy areas of Shelter low- and moderate-income housing, and because of its cul- Island and Spanish Landing provide picnicking and tural and historical heritage as a Chicano community, is de- strolling, and fishing is popular. signated as a community with special qualities of greater than local significance. The City of San Diego, the Regional Commission, and the Coastal Plan agree that the San Diego Bay's potential as a Preparation of the Barrio Logan Community Plan is in its recreational resource has not yet been reached. Areas of initial stages. The Chicano community is committed to the particularly high potential for public recreation are Navy preservation and improvement of the Barrio. A principal Field and the site of the old San Diego-Coronado Ferry. concern that must be addressed is industrial encroachment These are the last significant open spaces in the immediate into residential areas, since almost the entire community is area, and the Plan advocates their retention. Plans being zoned for industrial and manufacturing uses. Another criti- prepared for the Embarcadero area by the port and city cal matter is that of bayfront access historically enjoyed by should enhance public access and enjoyment of this unique the community but long since eliminated by industrial de- area. velopment. The Barrio has been identified as a special study area so that the city and State can coordinate Redevelopment. Because most of the land within the subre- planning and promote community interests. gion is already developed, the major issue is redevelop- ment. The City of San Diego is in the early stages of imple- Any military lands declared surplus should be retained in menting its center city plan. The objectives of this ambi- public ownership. A special study by the coastal agency tious project are to revitalize and intensify the central busi- should determine the appropriate type and level of use for ness district, and strengthen its role as the commercial, the lands, with highest priority assigned to public recrea- financial, and transportation center of the region. An tional use. This same approach should be followed if and integral part of the plan is the bayfront, for which the city when Lindbergh Field is phased out as an airfield, with the and port are jointly planning touristlcommercial facilities. Port and Coastal Commission jointly undertaking the study. Other major center city plan proposals that must be review- ed in terms of Plan policies include a marina adjacent to Navy Field, relocation of naval and nonmilitary facilities Lindbergh Field. Because the future of Lindbergh Field is such as City Police Headquarters, major bay-related resi- somewhat uncertain, expansion of the existing airport facili- dential developments in the downtown area, and pedestrian ties should be allowed only as interim measures, which transport alternatives to the automobile. Low- and moder- would insure their efficient operation pending the final de- ate-income housing needs are not addressed in the plan. cision concerning the ultimate location of the San Diego The San Diego Unified Port District has already divided the regional airport. Any proposed expansion of the existing bayfront into sub-areas, identified in the Plan as special airport should: (1) Not intensify the total area encompassed study areas, to facilitate the preparation of specific area by the airport boundaries; (2) Not intensify the adverse en- plans for the bayfront that will conform with the port vironmental impacts which the existing facility has; (3) master plan and the Coastal Plan. Increase airport efficiency and accommodate larger quieter aircraft, which would reduce the total number of flights, Barrio Logan. San Diego Bay and its bayfront are principal and (4) Be of such a nature that it can be easily amortized natural and manmade resource areas. The Barrio Logan over the useful life of the airport. SUBREGION 10: CORONADO/SILVER STRAND [See Plan Map 61] The boundaries of this subregion extend to and include, the of the beach have suffered the greatest loss, while the North Island Naval Air Station to the north and Imperial beaches north of the Hotel del Coronado have been more Beach city limits to the south. The eastern boundary runs stable. The proposed San Diego Harbor channel deepening down the middle of San Diego Bay. The northern portion of project will help to replenish beach sand by placing of ap- the subregion includes the heart of the City of Coronado, proximately four million cubic yards of dredged material on which is already substantially developed, and the North Coronado's beaches. Island Naval Air Station. Most of the Silver Strand, includ- ing the Naval Amphibious Base, Naval Communication North Island. North Island is a potentially valuable recrea- Station, and Silver Strand State Beach, is in public owner- tional resource whose ocean beaches are an extension of ship. Coronado's. They are wide and sandy, and would be suit- able for more recreational use beyond that of military per- Principal resource areas of this subregion are the San Diego sonnel. The Coastal Plan, because of North Island's value Bay shoreline and tidal mudflats, and the entire ocean for public recreational uses, designates its beach area as beach and shoreline area. Of most concern in this area are intensive use zones. Also, as with other military lands, the beaches which appear to be losing sand at the rate of should North Island ever be declared surplus land, it should approximately one million cubic yards per year. A natural be retained in public ownership with public recreational use reversal of the trend is not expected. The southern sections receiving the highest priority. The area of North Island with SAN DIEGO COAST � 271 0~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ San Diego-Coronado Bay Bridge the highest priority for acquisition is the ocean beach as priority acquisition areas. Acquisition could be by means frontage from Sunset Park to Zuniga Point. Acquisition of a transfer of public lands. The Navy, at this time, does could be by means of a transfer of public lands. lease the beach frontage of the Communication Station to the YMCA. In terms of visual qualities, excellent vistas are offered peo- ple traveling across the Coronado Bridge, and driving along City of Coronado. The City of Coronado is considering con- Silver Strand on scenic Highway 75. Both the Coronado verting an abandoned railroad right-of-way down the Bridge and the Hotel Del Coronado are identified as middle of Highway 75 into a multipurpose recreational trail, manmade resources. The Hotel Del Coronado was added to and is promoting a major bayfront park on tidelands prop- the National Register of Historic Places in 1971. erty for which the Port of San Diego has proposed a re- search park. The former would be favored by Coastal Plan policies. Beach Access. In spite of erosion, the beaches here are ex- policies. cellent. Because they are hard to reach, they are under- For the most part, development patterns in the City of used. This is evidenced by day-use attendance figures at Coronado are stabilized and new development is carefully Silver Strand Beach which show it far below capacity. To guided by the adopted general plans and by a City Design illustrate one of the keys to the access problems, the most Review Board. The current population is 18,081 as shown in direct route from the population center of the region neces- the 1975 Special Census, with a projection of 37,000 for the sitates a round trip on the Coronado Bridge which amounts horizon year of 1990, including completion of the Coronado to $1.20 in tolls. Access via State Highway 75 through Shores and Coronado Cays developments. Imperial Beach is free, but is a far longer trip in time and distance for most of the region's population. Reinstituting The City of Coronado is making a concerted effort to meet the ferry service, and continuing to provide bike trams the adoption deadlines for the State-mandated elements of across the bridge (as the California Department of Trans- the general plan. Adoption in 1973 of the Environmental portation recently initiated) will improve access to the Resource Management Element established the community beaches of this area. The Coastal Plan designates the beach resource base, and recommended as follows on three major areas for intensive recreational use in an attempt to pro- issues: (1) on beach erosion, a joint-powers agreement ap- mote more intensive long-term use. This designation in- proach to remedial actions and more detailed studies should cludes the Naval Amphibious Base, North Island Naval Air be used; (2) a proposed second opening to San Diego Bay Station, and the Naval Communication Station, should they should be delayed for completion of a detailed environ- i be declared surplus or be opened for public use. The ocean mental impact report; and (3) bay landfill should be allowed front and bay front of the Amphibious Base are designated only to create open space recreational uses. 272 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES Coastal Plan policies appear to favor the following major cluding military beach frontage, and provide facilities to en- proposals: (1) preserve Coronado as a manmade resource, courage more use; and (3) devise and implement a long- primarily characterized as a pleasant, low-density residen- term beach sand maintenance program, to provide a perm- tial community; (2) increase accessibility of beach areas, in- anent solution to beach erosion problems. SUBREGION 11: SOUTH SAN DIEGO BAY [See Plan Map 61] The boundaries of the South San Diego Bay subregion ex- would help meet this end. Further public commitment is tend from and include, the San Diego Naval Station on the needed to pursue this objective, such as the joint study now north to Palm Avenue on the south. Interstate 5 with the being conducted by the cities of San Diego, National City, exception of the agricultural lands of the Sweetwater Valley Chula Vista, and Coronado for a South Bay Bikeway. is the inland boundary, and the midpoint of San Diego Bay is the western boundary. Most of the northern portion is Other than the marina proposals, several development pro- developed, including the San Diego Naval Station and ex- jects could adversely impact the wetland habitat and nest- tensive industrial development in National City. The Chula ing areas in the Sweetwater flood plain and marsh complex. Vista bayfront also has industrial development, including The Corps of Engineers and the California Department of the Rohr Corporation and South Bay Power Plant. A signifi- Transportation have proposed a joint Sweetwater Freeway cant portion, primarily the Sweetwater Marsh, is undevel- (Route 54) and Flood Control Channel, now being revised oped and approximately 200 acres are in field tomato and as a result of public response to the environmental impact vegetable greenhouse production. Further to the south, salt statement to preserve more wetland areas. Any flood con- evaporator ponds form the termination of the Otay Valley trol project or highway project in the Sweetwater River drainage basin. coastal area shall protect marshlands and potential public recreation areas from development and shall assure that The most valuable natural resource area is the Sweetwater recreation areas from development and shall assure that any development made possible by such projects does not Marsh Complex, which includes Paradise Creek. Recogniz- an development made possible by such projects does not drain pollutants into the marsh areas of the Sweetwater ing the habitat and nesting value of Sweetwater Marsh, the River. State Department of Fish and Game recommended that it, along with the South Bay salt ponds, be designated a wild- life refuge or ecological reserve. The agricultural lands of National City. National City, in promoting the industrial use the Chula Vista bayfront are valuable as the last remaining of its holdings west of Interstate 5, has adopted an industri- agricultural lands in coastal-related production in the im- al use policy that gives priority to marine-related and mediate area, and do constitute significant open space as marine-dependent industries and sets forth standards for well as a partial buffer for the marsh areas. design and landscaping. The National City redevelopment project is located inland of Interstate 5 and is thus outside Recreational Developments. The South Bay area has a of the subregion as presently defined. largely untapped potential for serving regional and state- wide recreational demands. Two recently built boat launch- ing ramps, one in National City and one in Chula Vista, are Chula Vista. The Chula Vista bayfront plan stresses crea- both heavily used. Adjacent to the boat launching ramps, tion of a water-related touristlcommercial resort area. Ad- the Port District has built short fishing piers and grassy ditional consideration has been given to public open space areas for picnics and other activities. Some beach areas on and recreational areas, and multiple family residential uses. the Chula Vista bayfront are suitable for swimming. Several A point of potential conflict with the Coastal Plan that will small craft facilities have been proposed. Because of its have to be resolved in the subregional process evolves concern for protecting the remaining marsh habitat areas in around the proposed conversion of lands now in agricultural the South Bay, especially in the Sweetwater Marsh com- use. plex, the California Department of Fish and Game has thus far opposed the marina proposed by National City for the Should any land under the jurisdiction of the San Diego Paradise Creek. This proposal also appears to be in conflict Naval Station be declared surplus, it should be retained in with Coastal Plan policies. The City of Chula Vista has al- public ownership, with use priority going to public recrea- tered its original proposal, and has considered relocating tion. the marina from the Sweetwater Marsh area to the existing fill surrounding the boat launching ramp. The fill already exists, and is shaped to accommodate a marina. Future The Sweetwater Marsh complex is designated a priority ac- facility proposals will be evaluated in terms of Plan policies. quisition site to create a wildlife refuge that would preserve natural habitat and nesting values. The South Bay salt Public Access. A second important issue is the provision of ponds have also been designated for priortiy acquisition. In more public access to the bayfront. The Port District's addition, a special study of the two areas should produce plans for a bicycle path around the bay and Chula Vista's comprehensive wetland plans to guide future management plans for providing and improving public bayfront areas of their resources. SAN DIEGO COAST � 273 SUBREGION 12: IMPERIAL BEACH/TIJUANA RIVER VALLEY [See Plan Map 61] Imperial Beach and the Tijuana River Valley are the south- proposallplanning project, calls for the redevelopment and ernmost land and water areas of the San Diego Coastal restoration of much of the city's coastal area into beach-re- Zone. Imperial Beach is mostly developed with mixed resi- lated touristlcommercial resort area, with the prime goals dential and commercial uses with some areas of the immed- being the revitalization of a deteriorated beachfront and the iate shoreline in varying degrees of disrepair. The Tijuana improvement of the local tax base, aesthetics, and public River Valley, except for agricultural and related uses, is un- access and use. The proposed highrise development (100 developed, containing one of the State's most valuable feet) and building locations could achieve compliance with coastal estuaries. The Tijuana Estuary complex serves as an the Coastal Plan. However, the redevelopment project is open space buffer between Tijuana and San Diego. auto-dependent and does not consider the provision of al- ternative modes of transit. Especially, with the possibility This subregion includes the City of Imperial Beach, the San ternative modes of transit. Especially, with the possibility Diego communities of Nestor and San Ysidro, the U.S of relocation of the regional airport to Brown Field, Plan Diego communities of Nestor and San Ysidro, the U.S policies would specify consideration of alternative modes. Navy, which has jurisdiction over approximately 1,204 acres policies would specify consideration of alternative modes. at Ream Field, and the State, which manages 655 acres at Two other development proposals which would impact Im- Border Field State Park. The current population of Imperial perial Beach, but would have more direct effects on the riv- Beach is over 21,000, projected to 27,500 by 1990. The ur- er valley and estuary, are for a 500-acre marina and flood ban complex of Imperial Beach, Nestor, San Ysidro, and control facilities. The marina proposal would entail exten- Tijuana (in Mexico) will reach 1.2 million by 1990. sive dredging and filling of Tijuana Estuary, contrary to Tijuana Estuary. The Tijuana Estuary complex, including preservation policies of the Coastal Plan. The issue of flood Oneonta Lstagoon adthe lijandimiatl Estuarr ompcundingit Oneonta Lagoon, and the land immediately surrounding it, control revolves around the extent to which such facilities is the most valuable natural resource of the subregion. The are needed, and their impact on significant resource and estuary serves as a habitat for a wide variety of bird and agricultural areas and floodplain management. Flood pro- agrculn ftuerie ally areas andth fodisplnmaageet. lod ptro- animal species, and has been identified by local, State and animal species, and has been identified by local, State and tection of the river valley, such as the dissipator structures endorsed by the City of San Diego, should be allowed only Federal agencies as a coastal resource of statewide signifi- endorsed by the City of San Diego, should be allowed only cance worthy of preservation. An additional resource of sig- to the extent of protecting the agricultural and recreational cance wrthy o presevation.An addtionaluses and the estuary complex. Protective structures should nificance is the 5,700-acre floodplain, which could support uses and the estuary complex. Protective structures should not be allowed in a manner that enables development in the ~' ~~~~~~~~~~~~~~~~~~floodplain. 2,200 acres of irrigated agriculture (only about 850 acres are under cultivation at this time). floodplain. In the long term, the San Diego Gas & Electric Company However, increased land values, taxes, and labor costs has projected a power plant site on its land east of Border have forced most of the farmers to sell their land. Today, all Field. The issues of adverse environmental impact, need for but 200 acres are farmed by tenants. The ocean shoreline, additional generating capacity, and the availability of alter- although subject to severe erosion problems, must also be native sites are among those which must be satisfactorily considered a primary resource of the subregion. The Corps addressed. Additional development pressures and activities of Engineer bay dredging project is anticipated to provide within the river valley that could conceivably be at odds two million cubic yards of dredge material to replenish Im- with Coastal Plan policies would be conversion of agricul- perial Beach's shore areas. tural lands to urban uses, and sand and mining activities Border Field State Park. The planned expansion of Border that would remove material that would naturally replenish Field State Park to 2,000 acres will probably necessitate the the subregion's sand-starved beaches. acquisition of additonal 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, Special Studies. Based upon the natural resource value of should remain in public ownership with public recreational Tijuana Estuary, the Plan designates it as a special study uses receiving highest priority. Except for a few peak area and a priority acquisition site consistent with the summer Sundays, the area is not heavily used for coastal eventual goal of the State Department of Parks and Recrea- recreation. In view of the fragile resource areas adjacentto tion to own 2,000 acres of the estuary. The management Border Field, such use levels are appropriate, and the Plan plan must stress estuarine preservation. State or Federal designates the area as a moderate-use recreational zone. acquisition would aid in the preservation and protection of However, the shore areas of Imperial Beach have a higher- the natural and aesthetic character of the estuary and its use tolerance and have been designated for intensive use buffer area. with the intent of promoting increased recreational use. The redevelopment project, and the development of that The redevelopment project, and the development of that Imperial Beach. The main development pressure within area extending south along First Street toward the estuary, Imperial Beach is for multiple-family development, which would benefit from preparation of a specific area plan would be of concern if provisions are not made to protect which implements Plan policies on appropriate densities, and preserve the public access to the beach areas. Imperial public access, urban design, and alternatives to the Beach redevelopment, the most ambitious development automobile. WHAT THE MAPS SHOW The following sections contain Summary Maps and Plan coast, and Plan proposals. The information on the Plan Maps, both of which illustrate graphically the location and Maps, as described in the legend explanation below, in- extent of coastal resources, developed areas, and other cludes: special marine environment, wetland or estuary, factors that influence coastal planning. The information on special land habitat, other land habitat or open space area, these maps is explained below. grazing, cultivated agricultural lands and Class I and II soils, forestry resource area, mineral extraction area, devel- Summary Maps.The four Summary Maps present a large area oped areas, existing recreation area, existing boating facil- at a glance, at a scale of 1 inch equals about 24 miles. These ity, proposed immediate acquisition area, special study show the coastal watershed, coastal rivers and streams, a area, existing public ownership, subregions, and coastal coastal climate zone, a generalized view of all timber and zone and coastal resource management area boundaries. agricultural lands within the coastal watershed, the coastal highway, substantially built-up areas, and the coastal zone It is important to note that in nearly every part of the coast, and resource management area boundaries. more than one resource can be found, or development at one location can affect nearby resources. Thus, the resource The coastal zone and resource management area boundaries, or condition mapped may not be the only one to be consid- are defined in Part III and in the legend explanation below. ered in land use decisions in that area. The basis for mapping the management area boundary for each Region is outlined on the pages facing the four Summary The Plan Maps are at the scale of 1:125,000 (1 inch equals Maps. about 2 miles). At this scale, they can show areas as small as 10 acres. Where smaller, but important, features exist, The coastal climate line shown on the Summary Maps rep- symbols are used to locate them wherever possible. resents the area considered to be directly influenced by the Pacific Ocean. In general, all habitat, timber and agricul- tural lands between the shoreline and this climate line are Each Region's maps are introduced by an index map show- "coastal-related"; that is, certain plant species such as ing the orientation and location of each Plan Map. On each coastal redwood are never found inland of this climate line page facing the 61 maps are Map Notes and, in some in a native habitat, and certain crops grown in this area are cases, Supplemental Notes or data pertaining to that geo- influenced by, and in some cases dependent on, the coastal graphic area or region. The notes are usually abstracted climate. Agricultural and forestry lands are shown through- from the Regional Summaries and emphasize the major Out the watershed for reference, although only some of proposals of the Coastal Plan for the area on the adjoining these areas are considered coastal resources. map. The supplemental information varies from regional application of statewide policies to lists of specific sites for Plan Maps. The 61 Plan Maps show the array of natural protection and enhancement. On the last page of each Re- and manmade coastal resources, important features of the gion's map section is a bibliography of map sources. LEGEND EXPLANATION Following are brief descriptions of the categories shown on marine habitat value, such as kelp beds, existing Marine the foldout Map Legend, (the last page of the entire Plan). Life Refuges, Areas of Special Biological Significance (as General sources of information available statewide for map- designated by the State Water Resources Control Board), ping these categories are mentioned below as well. coastal waters of educational and scientific value, marine mammal and sea bird breeding sites in coastal waters, and Special Marine Environment other areas of acknowledged marine habitat value. (Other areas not designated as special marine environment are Under the heading special marine environment, the maps nevertheless a part of the entire marine ecosystem and con- show offshore water areas and rocky intertidal areas of tain valuable sport and commercial fisheries. The marine WHAT THE MAPS SHOW * 275 ecosystem, ranging the entire coastal waters of California, or significant areas and also provide important open space is represented by the pale blue tint.) Key Plan policies af- value in urban areas. Policies especially concerned with fecting development and conservation in special marine en- development in these areas are Policies 29 and 57. vironment areas (as well as other coastal waters) are Poli- cies 2-14. Available sources for mapping this category include the California Regional Comprehensive Framework study maps Sources for mapping the special marine environment in- and local land classification studies. clude special studies by the Departments of Fish and Game, Parks and Recreation, and Water Resources, and Grazing the State Water Resources Control Board (SWRCB). Key publications include Appendices III and IX of the Compre- hensive Ocean Area Plan (COAP), Department of Parks and Grazing includes lands currently or recently used for graz- Recreation's California Coastline Preservation and Recrea- ing livestock (sheep, cattle, horses), including pasture or tion Plan, Coastal Commission studies, and SWRCB reso- open rangeland. This category is not restricted to a particu- lution 74-28 (establishing the Areas of Special Biological lar level or range of animal unit carrying capacity and in- Significance). cludes both prime and non-prime grazing lands. Grazing lands are mapped separately from cultivated agricultural Wetland or Estuary lands because they represent a different degree and form of land use in the coastal zone. Grazing lands are often impor- tant for general habitat values and also as a valuable tran- Areas shown as wetland or estuary include salt marshes sition between intensive agricultural or developed areas and and mudflats (wetlands), and sheltered waters of lagoons, areas of primary habitat aqd scenic resource value. Plan sloughs, bays, and mouths of streams and rivers (estuar- policies regarding agricultural lands are Policies 30-37, with ies). Where it is possible to show a boundary between a specific criteria for maintaining non-prime grazing lands in wetland and the open water of an estuary, a solid black line Policy 34. within the blue of the wetland or estuary color code is used to show that boundary (see for example San Diego Bay, Sources for this information include land use inventories Map 61). Special conservation of coastal wetland and estua- produced for the Office of Planning and Research, personal rine areas is described in Policy 15. communication with local farm advisors, and maps of Prime Rangeland Soils of coastal counties by Darwin Briggs, Sources for mapping these conditions include studies by the Planning Staff Leader, U.S. Soil Conversation Service, Department of Fish and Game, Acquisition Priorities for the Davis, California, 1974. Coastal Wetland of California, California Coastline Preser- vation and Recreation Plan, and COAP Appendices III and Cultivated Agricultural Lands and Class I and II Soils Special Land Habitat Cultivated agricultural lands and Class I and II soils include Areas shown as special land habitat include ecologically all lands used for intensive agricultural practices and unde- significant or fragile land areas valuable for rare or endan- veloped areas with soil types qualifying them as "prime ag- gered plants, animals, and communities. Included in the ricultural land" under the Williamson Act (Government category are: (1) restricted natural communities--ecological Code'Section 51201(c), see the Glossary). All lands in crop areas which are scarce, involving only limited area; (2) rare production, most of which also qualify as prime agricultural and endangered wildlife species habitat; (3) rare and en- land, are included in this category. Lands of any soil classi- dangered plant species range; (4) specialized wildlife habi- fication that are currently or recently in crop production tat; (5) outstanding representative natural communities; (6) (i.e., land in agricultural production for at least two seasons sites with outstanding educational value; (7) fragile or envi- in the past 10 years) and are capable of supporting coastal- ronmentally sensitive resources (e.g., dune plant and ripar- related crops (i.e., crops that are restricted to the coastal ian habitat areas); and (8) wilderness or primitive areas. zone because of climatic dependency or that grow best in Anadromous fish (salmon, steelhead, etc.) spawning streams the coastal zone because of climatic advantages) are in- and rivers are also included to the extent that primary chan- cluded in this category. No grazing land is included in nels can be shown. Plan policies most relevant to special land this category. Key Plan policies applying to coastal habitat areas are Policies 24-28 and 150. agriculture are Policies 30-37. Sources of information for mapping these various conditions Sources of information were maps of prime agricultural include the California Coastline Preservation and Recreation land from the Office of Planning and Research, Soil Conser- Plan, California Natural Areas Coordinating Council, Cali- vation Service county maps, coastal climate maps (Marston fornia Native Plant Society, Protected Waterways Program, Kimball, Extension Bioclimatologist, Agricultural Extension COAP Appendices Ill and IX, and the Department of Fish Service, Davis, California, 1964), land use inventories from and Game. the Department of Water Resources and the California Re- gion Comprehensive Framework Study (1972), and personal Other Land Habitat or Open Space Area communications with county offices of the Agricultural Extension Service, the Agricultural Commissioner's office Areas shown as other land habitat or open space area gen- and the U.S. Soil Conservation Service district offices. erally include coastal scrub and sage brushlands, chaparral, some grasslands, and wooded or brush-covered steep Forestry Resource Area slopes, which are in a relatively natural condition, and va- cant parcels of land in urban areas or on the fringe of ur- Forestry resource area shows lands covered by coniferous, ban areas. These areas often represent a continuum of mixed evergreen and mixed conifer-hardwood forests. In- habitat values surrounding or upland from more fragile cluded are all classes of timberland and lands managed for 276 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES commercial timber purposes. Key forestry policies are are not included since all ocean waters represent an oppor- Policies 38 and 39. tunity for some recreational activity (i.e., boating, fishing, skin diving, surfing). Sources of information include the State Division of Forestry skin diving, surfing) and Soil-Vegetation and Timber Stand-Vegetation maps, U.S. Forest Service land cover and use inventories, and Existing Boating Facility personal communications with local timber harvesters. Existing boating facility is a category for marinas and har- bors of refuge that vary in size, berthing capacity, naviga- Mineral Extraction Area ble water depth, and other factors. The boating facility symbol used is placed in the vicinity of each marina or har- Mineral extraction area refers only to sites where extraction bor. Policies relevant to such facilities are Policies 146-148. is currently taking place or extraction sites which have not been converted or restored to another use. The chief miner- Proposed Immediate Acquisition Area als represented are construction materials-primarily sand and gravel-and petroleum resources-oil and gas. In the Shown as proposed immediate acquisition areas are sites case of petroleum resources, oil and gas fields that are cur- that have been tentatively nominated for early acquistion to rently in production are delineated, and in the case of preserve coastal resources or achieve other Plan objectives. non-petroleum resources, the actual quarried site is rep- Final recommendation of acquisition sites to the Legislature resented. Depending on the size of the extraction area, the will be made by the Coastal Commission to supplement the area is either delineated or the symbol is used to indicate Coastal Plan after public hearings (see Part IIIll, AcQuisition the approximate site. The extent of unmined resource is not and Restoration section, for more complete explanation). shown. Policy 40 regarding mining and Policies 81-86 Immediate acquisition areas are located by a small yellow regarding petroleum development are key policies for these dot in the vicinity of the proposed site. Where an acquisi- areas. tion area is large and the approximate boundaries can be Sources of information include local studies by the Division shown, a diagonal parallel line pattern appears extending Sourclogy, studies by the Bivioran beyond the yellow dot. Each tentative acquisition site is beyond the yellow dot. Each tentative acquisition site is of Mines and Geology, studies by the Bureau of Land Man- discussed in a Map Note.1 agement (BLM), Division of Oil and Gas, local land use in- ventories, and the California Region Comprehensive Frame- work Study. Special Study Area ~~~~~~~Developed Area ~A special study area is shown on the Plan Maps where, in the Commissions' judgement, important problems or oppor- tunities exist that require more intensive study than could Lands shown as developed areas are generally in urban be accomplished in the time available for the Coastal Plan. areas, including residential, commercial, institutional, and For each special study proposal, a corresponding Map Note industrial development; military facilities are also included. explains the opportunities to be explored and the conflicts Generally, land built to a density of one dwelling unit per to be resolved. The various special studies are intended to acre or equivalent densities of other uses have been shown be carried out under the subregional planning process as as developed. Also included in this category are subdivi- outlined in Policy 162. sions of land where parcels of one acre or less have been created and public services such as roads, water and sewer Existing Public Ownership connections have been provided. Policies that have a direct bearing on this category include Policies 58-63. Areas shown as existing public ownership include large Mapping was done from existing land use information, parcels of Federal, State, regional, and local public agency county by county and city by city, and field survey by Re- lands. These areas are represented by a boundary line and gional staffs. The lowest common denominators, for desig- named individually, permitting recreational areas, re- nating an area as developed, were the lowest residential or sources, or developed areas within the ownership to be shown in color. (Often public parks are shown as recrea- urban classification used by the original local mapping shown in color. (Often public p arks are shown as recrea- source. tional areas, but may also contain other major resources source. such as fragile habitats, forests, etc. Where recreation is not the principal use, areas of habitat value, agricultural Existing Recreation Area land, andlor developed areas are indicated.) Policies 127- 129 address Plan concerns in publicly owned areas. Shown as existing recreation areas are major parks, amuse- ment areas, beaches, golf courses, and other areas with The principal sources for mapping public ownership include principal use and value for recreation. Most local parks are the county assessors' books and Federal agencies, including too small to be shown at the scale of the Plan Maps; but the Bureau of Land Management, the U.S. Navy, Air State and Federal parks, large county and city parks, and Force, Coast Guard, Army Corps of Engineers, and large private recreation areas (e.g., golf courses) are shown Marines. and indicate the existing distribution of major opportunities for recreation. (Publicly owned recreation areas can be dis- tinguished from privately owned areas by the dashed line showing public ownership.) Basic policies that affect recrea- Any reference in this Plan to the ownership of any specific parcels of prop- tional lands are Policies 131-144. erty are not meant to express any opinion as to whether there is an existing vested public interest in the parcels, including, without limitation by reason Land use information from Federal, State, and local agen- of the specifications thereof, rights arising out of express or implied dedica- tion; nor do they express any opinion as to whether any of such lands are cies was the principal source of information for mapping tide or submerged lands or were created by artificial means or accreted to recreational lands. Offshore water areas used for recreation such lands so created. WHAT THE MAPS SHOW � 277 Subregion made, and recreational resources) and (2) areas where de- velopment could directly or cumulatively affect public ac- A subregion is a geographic area within the coastal zne cess to coastal recreation areas, e.g., by overloading coastal A subregion is a geographic area within the coastal zone smaller than one of the six coastal regions. Subregional access roads. It also includes all offshore rocks and islands. areas generally extend from the inland coastal zone bound- The significant coastal resources included in the coastal re- ary to the shoreline (or are ocean areas entirely) and are source management area are: beaches, dunes, wetlands, divided from one another by natural geographic features, estuaries and their immediate drainage areas; significant distinct urban community boundaries, or locally recognized wildlife habitat areas; agricultural lands influenced by the planning areas. Major coastal environmental issues, devel- coastal climate or otherwise designated in Plan policies; opment pressures, and Plan proposals are discussed by existing public recreational areas; areas proposed by public subregion in the Regional Plan Summaries section. Some agencies for public acquisition; potential public recreation subregions will require subregional plans as described in areas located near major metropolitan centers (e.g., Santa Policy 162. Monica Mountains, Irvine, San Mateo coast); special coastal neighborhoods; and other manmade resources as defined in Coastal Zone the Glossary. The coastal zone is mapped according to the definition of Areas where development may affect coastal access include the coastal zone in the California Coastal Zone Conservation urban coastal recreation centers confronted with severe Act of 1972 (Proposition 20). In areas where the inland congestion problems (e.g., Marina del ReylVenice, New- boundary of the coastal zone has more than one possible in- port Bay, and Mission Bay) and open coastal areas where terpretat-on, the maps reflect the boundaries used by the there are few public access roads (e.g. Irvine, Malibu, Big terpretation, the maps reflect the boundaries used by the Sradprin ftecati a aeSnm n Coastal Commissions. Within the coastal zone, it is recom- Sur and portions of the coast in San Mateo, Sonoma and mended that major energy facilities and State and Federal Mendocino Counties.). projects be reviewed and approved by the coastal agency. Opposite each of the Summary Maps in the following sec- In the offshore portion of the coastal zone, to the three-mile tion are paragraphs that describe the basis upon which the tion are paragraphs that describe the basis upon which the limit of State jurisdiction, and all areas held in public trust, coastal resource management area was mapped for each coastal resource management area was mapped for each the coastal agency should retain permit authority over all Region. In each case, the line as shown on the maps was projects. approved by the State Commission on the basis of Regional Commission recommendations. Coastal Resource Management Area Coastal ZonelManagement Area The coastal resource management area is the area within When the inland coastal zone boundary and the inland which local plans would be brought into conformity with the coastal resource management area boundary are cotermi- Coastal Plan, as recommended in Part Ill of the Plan. It nous, one boundary line representing the two categories is extends from the mean high tide line inland to include (1) used and identified in the map legend as the coastal all significant coastal resources (including natural, man- zone/management area. SUMMARY MAPS NORTH COAST REGION Del Norte, Humboldt, and Mendocino Counties comprise the coastal zone's largest region and are rich in natural resources. Maintaining scenic qualities, protecting productive re- sources (including floriculture, dairy pasturelands, prime timberlands, and clam and oyster beds), and promoting recreation - all of which contribute to the local economy - are principal Plan objectives for this region. Timber management, water quality and fisheries management, regionwide recreational planning, and control of the cumulative effects of premature subdivisions will be key factors in achieving these Plan goals. North Coast Resource Management Area.1 Because the land and resources of the North Coast are so vast, a simple, easily understood management line was the goal for this re- gion. The management line recommended by the North Coast Regional Commission--five miles inland from tidal influence--contains the most important coastal resources in the region, the immediate drainage areas of the wetlands (e.g., Lake Earl, Lake Talawa, Humboldt Bay, the Eel River delta), and the areas where the cumulative impact of devel- opment could potentially cause adverse effects on coastal access. The line has been ad- justed inland to include the Big Lagoon drainage area and shoreward in several places along ridgelines and drainage lines to exclude areas where development would not great- 0 ly affect coastal resources. Summary Map LEGEND I Cultivated Agricultural Land U Forestry Resource 7~ Developed Area r~ Coastal River F-1 Coastal Roadway Coastal Climate Zone 1The coastal resource management area, as defined in Coastal Watershed the immediately preceding legend description and in Part III, is to include significant coastal resource and those ST a _ areas affecting access to the coast. it is illustrated on the summary Maps and can be seen in more detail on theCoastal Resource Management Area Plan Maps. Coastal Resource Management Area Smith 24her ~MAY Cresilent Kiamath River Mattole Rivpr TV HA MA Pi ~~~~~~~~~~~~~~~~~A V Noyo River COLUISA k Kilometers0 122 36L Ek *Scale 1 ~1, 500,000 t Miles IK__ 0 1 2 24~~~~~~~~~~~~~~~~ylf 280 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES NORTH CENTRAL COAST REGION Extensive public recreational lands, unique coastal settlements and fishing villages, dairy farms, and second-home subdivisions, together with San Francisco's residential neighbor- hoods, are all parts of this Region. The Coastal Plan proposes in specific areas that both urban and rural open lands be conserved, that the present scale of San Francisco's coastal housing be maintained, that opportunities for coastal-dependent activities (such as com- mercial fishing aquaculture, and marine research) be protected, that agriculture and timber harvesting be maintained, that designated habitat areas be preserved (and some restored), and that the nature of new development respect the character of its surrounding landscape. North Central Coast Resource Management Area.1 The North Central Regional Commis- sion included in its recommended management area all of the coastal zone as defined in the Coastal Act (Proposition 20) except in San Francisco. The line was thus drawn to in- clude all areas where the cumulative impact of development could affect public access to the coast (e.g., the northern Sonoma County coast), and where development could cause adverse impacts on important coastal wetlands and estuaries (e.g., southern Sonoma County and northern Marin County). In San Francisco, the line follows the Golden Gate Bridge, Park Presidio Boulevard, and 19th Avenue, thus including the coastal portions of the Golden Gate National Recreation Area and residential areas that view themselves as cohesive coastal neighborhoods, needing attention to maintain their special character. CENTRAL COAST REGION This region extends south from San Francisco to the wilderness areas of Los Padres Na- tional Forest and encompasses a wide diversity of coastal resources. The fertile Salinas and Pajaro Valleys form the region's agricultural heartland, an important basis of the regional economy. Tourism, centering on the cities of Santa Cruz and the Monterey Pen- insula but relying on the wide beaches and scenic landscape for support, also plays a ma- jor role in the regional economy. Unique ecological areas, such as Elkhorn Slough, the Sea Otter Refuge, and many rocky intertidal areas are additional critical resources of the coastal area, as is the Big Sur area. Central Coast Resource Management Area.1 The coastal resource management area for the San Mateo County coast includes a present and potential recreation area that, because of its close proximity to the San Francisco and San Jose metropolitan centers, is of a significance comparable to the Golden Gate National Recreation Area on the San Francisco and Marin coast. The management area line has been drawn to the top of the coastal ridgeline to include important coastal agricultural areas, wildlife habitat, public beaches, and potential parklands. The Santa Cruz County coastal area to the coastal ridgeline (drainage divide) is a major recreational resource for the urbanized areas adjoining the southern portion of San Francisco Bay and the San Jose area. Special coastal neighborhoods such as those in Santa Cruz and Capitola have been included in the management area. Because the coastal hills surround the highly productive Pajaro Valley, one of the most important agricultural regions of the coast, the line has been drawn to the ridgeline of the valley to assure that the agricultural and wetland resources of the valley are protected. At the northern end of Monterey County is Elkhorn Slough, one of the most important wetlands and estuaries on the entire coast; the management area has been drawn along the line formed by the drainage area of this critical resource. From Elkhorn Slough, the management line has been drawn along the edge of the prime coastal agricultural lands around Castroville and south and west of Salinas in central Monterey county - one of the most productive agricultural areas in the nation. The City of Salinas itself and soils of lesser productivity were excluded, while the especially productive soils (the Blanco series) most directly influenced by the maritime climate have been included. Further south, the management area includes all of Fort Ord, to coordinate with Federal planning that impacts the area; it also includes the coastal-influenced Monterey Pine forests behind the cities of Monterey and Carmel. The major agricultural lands of Carmel Valley (excluding grazing lands) and the important coastal redwoods proposed to be added to the Los Padres National Forest in the hills along the southwestern portion of the valley determine the furthest extent of the manage- ment line but the watershed area in the interior area of the valley has been excluded. The entire Big Sur area to the ridgeline of the-coastal mountains has been included because of its statewide significance, the potential impact that development of the many scattered lots and subdivisions of the region would have on public use of the limited capacity pro- vided by the narrow, winding Highway 1, and the need to protect the area's scenic and natural resources. 1The coastal resource management area, as defined In the Immediately preceding legend description and in Part III. is to include significant coastal resources and those areas affecting access to the coast. It is illustrated on the Summary Maps and can be seen in more detail on the Plan Maps. NORRCNTRALOAAN r ~~~~~t; - ~ ~ ~ ~ '" ''a I SOOMA' , ~' Russian River S VL ' DnD i~~~ N r~ -i i~~~~~~~~~~~~~ I c~~~~ rI -- � i~~~~~~~~fit MARINi Pt.Reyes r Farallon Islands*SNFACCO- VI -i Salin s , River : Carmel Ri~er BEGN 0 " i ~ ~ ~ ~ ' 4; -7r Farallon Islands L itte Sr Rii BigSu Riv t _ a~~~~~~~~ 0 12 24 36~; ' Kilometers~~~~~~~ Scale 1 1, 500,000 Miles Ak i~~~~~~~~~~~~~~~~~~~~.� i ,s~~~~~~ o 12 24i B~~~~~ 282 � PART IV: PLAN MAPS AND REGIONAL SUMMARIES SOUTH CENTRAL COAST REGION Extensive areas of rangeland grazing interspersed with stream bank habitats, unique coastal dunes, highly valued citrus and avocado orchards, and other important cultivated agricultural lands are among the diverse natural resources of this region. The region is under extensive pressures for energy-related developments and urban expansion. It also offers recreational opportunities made possible by its pleasant climate. These factors combine to focus the issues of coastal planning in this region. South Central Coast Resource Management Area.1 The management area in northern San Luis Obispo County extends to the coastal mountain ridgeline (drainage divide) to in- clude the area where the potential impact of development could significantly limit high- way access to the southern portion of Big Sur. The management area boundary has been drawn around the edge of the Morro Bay watershed and to the top of the coastal hills ridgeline in other areas of San Luis Obispo County to include the rich and complex system of upland streams and valleys, marsh, bay and nearshore reefs that provide nest- ing and feeding for thousands of fish and migratory birds and marine animals. The line thus includes the major ranches that are so vital to the local economy and constitute a major coastal agricultural resource of the area, the dramatic dunes that have major recre- ational and wildlife value, and the many small communities that provide tourist facilities and coastal housing opportunities for many persons of modest means. The management area line has similarly been drawn along the ridgeline of the coastal hills in Santa Barbara County. In Ventura County the management area line follows the ridgeline behind the Rincon communities and the City of Ventura to include mineral extraction areas that affect the Ventura River wetlands and the canyons where energy-producing installations are likely to be built. The Oxnard Plain prime agricultural lands and the Santa Clara River system are included as far inland as the coastal zone boundary. All of the land area of the Channel Islands is included in the resource management area because of their sensitivity to development impacts. The coastal resource management area, as defined in the immediately preceding legend description and In Part III, is to include significant coastal resources and those areas affection access to the coast. It is Illustrated on the Summary Maps and can be seen in more detail on the Plan Maps. ..- .0X- =0 i--M -- SIMARY MAP SOLL-CH ENTRAL COAST REGION K -%ti -: ' W. S LUIS OBISPO Morro Bay - Santa Maria Riyer . -,, "_--..'" Santa Ynez River I = z; e=-3bi ! :~ -~ \VENTURA '-- : - 5naBarbata_ Santa Clara River San Miguel 1. ' = % --_ Anacapa I1. %5 = ~ anta Cruz 1. Santa Rosa 1. n Santa Barbara ~.~. q % San Nicolas I. ' . 0 12 24 36 Kllometers L Scale 1 1, 500,000 Miles 1 r 0 12 24 284 * PART IV: PLAN MAPS AND REGIONAL SUMMARIES SOUTH COAST REGION In the South Coast Region - the most urbanized region of the coastal zone - the prime coastal concerns are the need for meeting vast recreational demands, protecting and re- storing the last remaining natural lands and waters, and protecting the unique and valued coastal neighborhoods from Malibu to Laguna. South Coast Resource Management Area.1 The historic character and function of Malibu as a recreational and resort destination and the need for recreational areas close to the large urban population of the Los Angeles Basin are reflected by the inclusion in the resource management area of the entire Malibu coast up to the ridgeline (drainage divide) of the Santa Monica Mountains. Along the developed section of the south coast shoreline between the Santa Monica Mountains and Orange County, the line narrows to follow the nearest roads adjacent to special coastal neighborhoods (e.g., Venice, San Pedro, and NapleslBelmont Shores), major coastal recreation areas (e.g., Marina del Rey and Alamitos Bay), areas where the cumulative impact of development could exclude or hinder access to the shoreline (e.g., Redondo Beach), and remaining habitat resources (including potential restoration areas such as the Bolsa Chica wetlands in Northern Orange County.). The management area extends inland to 1-405 to include designated Santa Ana River greenbelt areas with high public recreation value. Further south, the management area includes the immediate drainage area of Upper Newport Bay inland to 1-405. The Irvine Company's open property is included because of its importance in planning how to meet recreational and open space needs in the heavily-developed surrounding area. The resource management area also incorporates the Laguna greenbelt, a valuable habitat and open space area designated for protection by both Orange County and the City of Laguna Beach; the last major open areas along the southern Orange County coast (AVCO headlands, Dana Point Headlands, Dana Point Palisades, and the Reeves Ranch property in San Clemente seaward of 1-5); and productive coastal agricultural lands to the ridge- lines on each side of the Capistrano Valley up to five miles inland. All of the area of Santa Catalina and San Clemente Islands is also included in the resource management area because of their sensitivity to development impacts. SAN DIEGO COAST REGION This region, with its attractive climate and landscape, is an unique part of the California coast and is in many places undergoing rapid urban expansion. Key Plan goals are the protection of the region's nationally significant floriculture, its special coastal communi- ties, the unique lagoons and estuaries, and its nationally recognized recreation value. San Diego Coast Resource Management Area.1 The San Diego resource management area extends generally to the top of the coastal hills in Camp Pendleton. In northern San Diego County, the resource area includes the critical lagoon habitats and their immediate drainage areas. The important coastal agricultural lands of northern San Diego County (e.g., the San Luis Rey River Valley, the area between Agua Hedionda and Batiquitos Lagoons) have defined the furthest extent of the resource management area. Special coastal neighborhoods such as Leucadia, Encinitas, and Solana Beach have been included because they are subject to heavy development pressure that could change their character and potentially affect existing public access to the coast. From La Jolla to south San Diego Bay, major concerns are protecting special neighbor- hoods (e.g., La Jolla Village and Ocean Beach) and protecting public access to the ocean beaches, to Mission Bay Aquatic Park, and to the San Diego Bay waterfront: accordingly, the resource management line has been drawn along 1-5. The Sweetwater Marsh and its immediate drainage area have been included; in the Tijuana Estuary and Ojai River areas, the management line has been drawn around the major agricultural lands and around the wetlands and their immediate drainage areas. 1The coastal resource management area, as defined in the immediately preceding legend description and in Part tI1, is to include significant coastal resources and those areas affecting access to the coast. It is illustrated on the Summary Maps and can be seen in more detail on the Plan Maps. E~~~r~~~ SUMMARY MAP SOUTH COS AND iSAN DIEGO COAST REGIONS 44 ~~~~~~~~~~~~SAN SERNIARDINW LOS ANGE N~~ ;,Santa Catalina I. (SouthCoast egion % N D~~IEGO NSan Clemente I. J5(South Coast Region)K San io ~�X 11COCl 0 ~~~~~~0 12 24 36 Kilometers Scale 11. 500, 000 Miles i F 0 12 24 PLAN MAPS SELECTED STATEWIDE MAPPING SOURCES State Water Resources Control Board Resolution 74-28. SWRCB. 1974. Soil Surveys of all coastal counties. Soil Conservation Service, 1968-1974. This is a selected listing of publications, maps, and aerial ph otog raphy avai able i n t he State off ice f or mapp i ng the Coast- The California History Plan, Three volumes. Department of Parks and Recreation, al Plan. The selection is based on relevance of the material to al Plain. The selection is based on relevance of the materialto The Marine Life Refuges and Reserves of California. Department of Fish and mapping. Game, 1974. PUBLICATIONS Type 16 Flood Insurance Study: Tsunami Predictions for Pacific Coastal Com- munities. U.S. Army EngineerWaterways Experiment Station, 1974. Acquisition Priorities for the Coastal Wetlands of California. Bureau of Sport Fisheries and Wildlife and Department of Fish and Game, 1974. MAPS At the Crossroads. Department of Fish and Game, 1974. Geologic Map of California. Geology maps of 1:250,000 scale quads along the coastline; shows major geologic formations and structure Including faulting. California Coastline Preservation and Recreation Plan. Department of Parks and Recreation, 1971. Land Use. California Region Framework Study, 1964. California Outdoor Recreation Resources Plan. Department of Parks and Recrea- "Native Plants," maps from Inventory of Rare and Endangered Vascular Plants in tion, 1972. California. California Native Plant Society, 1974. California Protected Waterways Plan (Initial Elements). Protected Waterways "Natural Areas," maps from A Selected Listing of the Natural Areas of California. Program, 1971. California Natural Areas Coordinating Council, 1974. "Coastal Wetland Series": Natural Resources of the Eel River Delta; Goleta Plantclimates of California. Agriculture Extension, 1964. Slough; Bolinas Lagoon; Elkhorn Slough; San Diego Bay; Humboldt Bay; Los Prime and Potential Prime Agricultural Land. Department of Water Resources, Penasquitos Lagoon; Morro Bay. Department of Fish and Game, 1974. 1974. Comprehensive Framework Study California Region. Prepared by the California "Prime Rangeland Soils." U.S. Soil Conservation Service, 1974. Region Framework Study Committee (State and Federal agencies), 1972. Tsunami Runup Areas. Division of Mines and Geology, 1974. Comprehensive Ocean Area Plan (COAP), Supplement and nine Appendices. De- partment of Navigation and Ocean Development, 1972. Vegetative Cover. California Region Framework Study, 1971. Landscape Preservation Study: The Sierra Foothills and Low Coastal Mountain FILM Province and Landscape Preservation Study: The Southwest Mountain and Valley 9x9 black and white vertical prints covering immediate coastline with an average Province. Royston, Hanamoto, Beck & Abbey for Department of Parks and Recre- of one-third of format showing ocean. Scale is approximately 1:12,000. One ation, 1973. flight available, 1970. Resolution is good. 1974 Park Bond Program. Department of Parks and Recreation, 1974. 35mm oblique color slides covering immediate coastline. Inland coverage varies. Regional Ocean Coastline Plan (ABAG) and Tri-County Coastline Study (Santa Shot from low flight. One flight available, 1972. Color is excellent. Cruz, Monterey, San Luis Obispo counties). SedwaylCooke, Urban and Environ- 35mm vertical color slides covering the immediate coastline. Coverage is approx- mental Planners and Designers, 1972. imately one-mile with an average of one-third of frame showing ocean. Contact Regional Water Quality Control Board Basin Plans 1A, lB, 2. 3, 4A, 48, 8 and 9. scale is approximately 1:24,000. Two flights are available, 1968 and 1970. Color State Water Resources Control Board, 1974. is excellent. San Francisco Bay Plan and Appendix. San Francisco Bay Conservation and Computer printout of various film and format combinations. Film Is available Development Commission, 1969. from NASA Ames Research Center, Menlo Park. 286 C rescentit Ft Bragg o 12 24 36 Kilometers ~ . 4 Scale I1 1, 500, 000 Miles 0 12 24 PLAN MAP 1: MAP NOTES SUBREGION 1: DEL NORTE COUNTY SUPPLEMENTAL NOTES Lands North of Smith River. Maintain the agricultural lands Special Communities. Protect and enhance the unique char- from the Oregon border to the Smith River In agricultural use. acter of special communities throughout this subregion Prevent further strip development along Highway 101 to pro- through the use of design guidelines and the restriction of In- tect scenic qualities. appropriate development, as determined by community de- sign review committees and appropriate public agencies. Smith River to Dead Lake. Acquire open space easements from the mouth of the Smith River to Dead Lake to protect sand Water Quality and Ecosystem Protection. Maintain water qual- dunes and valuable wetland habitats. The California Depart- ity, prevent destruction of wetlands, and protect fragile eco- ment of Fish and Game should enter into a cooperative man- systems. agement program with surrounding landowners to further pro- tect habitat values and to prevent development that would de- Timberlands. Maintain all prime timberlands now in econom- grade the shallow water table. ically feasible harvesting units as a valuable natural resource, important nationwide. Reconsolidate smaller parcels in areas Pacific Shores. Regulate development of this subdivision to that are not significantly built out at this time to return them to prevent destruction of sand dunes and to control any septic productive use. tank problems. Allow public day-use access (foot travel) to the dunes and beach area. Lakes Earl and Talawa. Acquire this 2,500-acre area of wet- lands and expansive dunes (an extremely valuable fish and wildlife habitat) for resource preservation, general recreational use, and open space. (The State is currently in court asserting that the lake bottom is subject to a public trust.) Crescent City Manor. Acquire approximately 75 acres of this subdivision for habitat preservation and open space values, including protection of an unstable sand dune area and poorly-drained marsh lands. Limit public access to these sensitive areas to foot traffic. Crescent Beach. Prohibit off-road recreational vehicles in this area to prevent compaction of the sand that would threaten habitat values (this is one of the most productive areas for in- vertebrates in the North Coast). Wetlands South of Crescent City. Protect these highly pro- ductive and sensitive areas by acquiring open space easements around the wetlands and by controlling future development nearby to prevent degradation. Crescent City Harbor. Allow maintenance dredging and nec- essary modification of the harbor to ensure safety. Regulate disposal of dredge spoils, when dredging next becomes nec- essary, in accordance with applicable Plan policies. 288 map 4~~~~~~OEO 4~~~~~yamdPitO - 4 - = . -~~~~~~~ . ~ S m t h -ive m~~~~~~~~~~~~~~~~~~~~~ I 4 ___ __~~~~~~~~~~V 4~~~~Sit ie o 4 - _~Eseen 4~~~~~~~~~Lk 4 _ _ _ _ _ _ _ _ _ __~~a, ar IPrmdPoint S.Gog eterSmtsRve __ N~~~ ___oturitra_50 r s cn ec MOW: ~ _____ Dethcuve~aw~ffthmintra PLAN MAP 2: MAP NOTES SUBREGION 1: DEL NORTE (CONTINUED) Requa. Maintain the character ofthis special community, a regionally important historic site for both Native American and white settlers, by limiting commercial development. Prevent development of the steep, highly scenic hillsides above the town. Klamath River. Plan development within the watershed to pro- tect the valuable anadromous fish resource of the Klamath River. 290 U' a _ ___ U ____________ I U I I U I _______ U U * __ U U ____ ________ � _ _ C ________ _______ _____ I I ___ I I ______ I ______ 44 U � U ___ a __ __ ________ ________ U * ( I I I _______ I __________ I _______ I ________________________ I I I I ___ ________ Kiamath River * * I ___ * ____________________ * I ________ I ___ __ 4444 _ * Split Rock K1 � * I I ____ Ce _ I ____ * ______ I * _ I * Pledwd -______ Scale 1125,000 Contour interval ________________________ Kilometers I Miles: _______ Depth curves at 100- fathom interval U I _____ U U PLAN MAP 3: MAP NOTES SUBREGION 2: HUMBOLDT COUNTY SUPPLEMENTAL NOTES Orick. Prevent divisions of agricultural lands. Because exist- Special Communities. Protect and enhance the unique char- ing water sources are of low quality and quantity, a community acter of special communities throughout this subregion water system should be developed to provide for existing through the use of design guidelines and the restriction of in- needs and to eliminate present problems. appropriate development, as determined by community de- sign review committees and appropriate public agencies. Freshwater, Stone, and Big Lagoons. Regulate development within this watershed to protect views, water quality, and fish Water Quality and Ecosystem Protection. Maintain water qual- and wildlife habitat. ity, prevent destruction of wetlands, and protect fragile eco- systems. Big Lagoon. Acquire approximately 357 acres of partially- logged forest lands to protect the visual corridor along High- Timberlands. Maintain all prime timberlands now in econom- way 1 and to screen logging operations from view. (The State ically feasible harvesting units as a valuable natural resource, is currently asserting that a portion of the lagoon Is subject to important nationwide. Reconsolidate smaller parcels in areas a public trust, and thus purchase of the entire parcel may be that are not significantly built out at this time to return them to unnecessary.) productive use. Big Lagoon Subdivision. Allow build out consistent with North Agricultural Lands. Protect all prime agricultural lands from Coast Regional Commission Blanket Conditions dealing with conversion to non-agricultural uses. geologic hazards. Trails and Bikeways. Develop initial segments of the coastal trails system in this subregion both north and south of the King Range National Conservation Area. Site and manage the trails in a manner that will protect continued agricultural operations, using alternate locations or appropriate protective measures where necessary. Expand bikeways where feasible and in areas where bike use is' heaviest (McKinleyville, Arcata, and Eureka). 292 4 IL IL IL IL ______ IL _________ IL I _____ I ____ _ _______ I ____ * _ _ I _____ IL _________ I I _________ I S ___ U ________ U ____ * - ** .d-w0QdSr I __ U I I _ C U U I ____ I U0MfSIjp1gJ __ * ___ *1 4 4 44 44 4 Redwood Creek _ _ _ -. U * Freshwater Lagoon * a a a _______________ a __ ______ ____ N _______________ U Stone Lagoon U I ______________ I I ____________________ I __ _____ _______ I I ______ I _______ a I a a I N * Kilometers: d Big LagOQrL - - Scale 1:125,000 Contour intgval 500' 7A Miles: JU2 V Depth curves at 100-fatho#,nterval * __________ K. PLAN MAP 4: MAP NOTES SUBREGION 2: HUMBOLDT (CONTINUED) Agate Beach. Acquire approximately 175 acres of beach and coastal forest east to Highway 101 for general recreation. Stagecoach Road (Patricks Point). Acquire an open space easement west of Patricks Point Drive and Stagecoach Road to protect steep coastal headlands and the view corridor. Beach North of Trinidad. Acquire 8-acre beach and bluff prop- erty for general recreation. McConnahas Mill Creek and Luffenholtz Creek. Control devel- opment adjacent to these creeks to protect the water supply for Trinidad. College Cove. Designate this area of Trinidad State Beach as a limited-use area. Undertake erosion control measures to pre- vent further problems along the trails and parking areas. Des- ignated parking areas should be constructed and managed by the California Department of Parks and Recreation. Trinidad Area. Establish a design review committee to keep fu- ture development consistent with the character of the com- munity. Reconstruct the Tsurai Village in an authentic man- ner; do not allow commercialization. A more detailed devel- opment plan should be prepared for the Trinidad area. Trinidad Head..Protect 70-acre undeveloped headland and coastal brush area for general recreation. Recommend trans- fer from Federal to State ownership. Trinidad Bay. Undertake a comprehensive, detailed study (co- operatively with the City of Trinidad, Humboldt County Plan- ning Department, Department of Navigation and Ocean De- velopment, and the U.S. Army Corps of Engineers) to deter- mine the needs of and modifications necessary to provide for a safe, all-weather harbor facility and harbor of refuge. Trinidad Head to Little River. Acquire the large undeveloped parcels west of Scenic Drive and north of Little River for ac- cess, beach recreation, and support facilities. Little River to Mad River. Prohibit off-road recreational vehicle access to sand dunes and beach areas from Little River to Mad River. (The beach Is readily accessible by foot from a parallel frontage road.) Allow only day use of Clam Beach County Park. Protect the Mad River estuary from developments harmful to the river's salmon and steelhead. Trinidad South to Rio Dell. Establish a public bus system ex- tending from Trinidad south to Rio Dell and connecting with existing bus systems (Arcata and Mad River Transit and Bishop Transit). McKinleyville. Control the recent scattered and widespread growth of this community. Protect all remaining prime agri- cultural land from conversion to non-agricultural uses. A build- ing moratorium has been imposed by the county because of serious health hazards resulting from the use of septic tanks in hardpan conditions. Correct this problem by developing a wastewater treatment system that meets regional water quality standards as indicated in the North Coastal Basin 1 B Plan. McKinleyville-Arcata-Eureka Area. Expand bikeways in these areas where bike use is heaviest. 294 Big Lag-o ___ __ Ag at _ _ _ _ _ _ _ _ Patricks Point Statie Park - u' _ _ __ b ~~Trinidad State Beat~__________# Colleg8Qv S ~~~~Trinidad- lea o w 4 ~~~Little River BeachSae.ya k D~~~~~~epth curves Patk ____- __m=ne, PLAN MAP 5: MAP NOTES SUBREGION 2: HUMBOLDT (CONTINUED) Mad River to Manila. From the mouth of the Mad River to the town of Manila, retain the largely undeveloped sand dunes in their natural state. On a long-term basis, acquisition should be considered. Seek to relocate the gun club, now located at one of the wetlands scattered throughout these dunes, to a safer site. Mad River Slough. Prevent the destruction of this diminishing slough habitat by acquiring a 450-acre open space easement along the slough and on the islands in the slough. The Cali- fornia Department of Fish and Game should enter into a co- operative management program with adjacent landowners to manage for wildlife production, including public access for duck hunting. North Spit (South of Manila). Retain the section of coastal dunes lying west of the new Navy Base road and south of the town of Manila to the U.S. Coast Guard Station in an undev- oped state. Acquire an open space easement across these dunes to prevent future development on them. Arcata and Eureka Area. Prohibit strip development along High- way 101 between Arcata and Eureka to ensure open space values, to protect agricultural lands and wildlife habitats, and to maintain the integrity of the two communities. Maintain prime agricultural lands in Arcata Bottoms area in agricultural use. Allow buildout in existing developed areas consistent with Coastal Plan policies. Expand bikeways, where feasible, in areas where bike use is heaviest. Humboldt Bay. Protect the biological integrity of Humboldt Bay, an extremely important coastal estuary. Allow mainten- ance dredging to ensure the economic viability of Humboldt Bay as a harbor and shipping facility. Regulate spoil disposal in accordance with Plan policies, probably requiring disposal offshore rather than on lands adjoining the bay. Prohibit devel- opment or degradation of salt and fresh water marshes. South Spit. Permit current off-road recreational vehicle use to continue if strict enforcement of the county ordinance can as- sure that vehicle access is limited to the seaward site and does not encroach on the vegetated dunes. 296 AR"" Araa0a Ok.. Scale 1:125,000 C o n t o u r SalmonraField De~~~th c u r v e s~~~ &AAatnd-fahminteva PLAN MAP 6: MAP NOTES SUBREGION 2: HUMBOLDT (CONTINUED) Eel River Floodplain. Allow only dairy support facilities and only to the extent that they can withstand periodic flooding. Prevent conversion of agricultural lands, now used for grazing, to non-agricultural uses. Eel River Salt Marsh. Prohibit filling or other alteration of the salt marshes north of the mouth of the Eel River around Mc- Nulty Slough and from the mouth of the Eel River south to Centerville Beach. Acquire a 450-acre open space easement to protect this salt marsh of statewide significance. The Californ- ia Department of Fish and Game should enter Into a coopera- tive management program with adjacent landowners to en- hance wildlife productivity in the area. Centerville Beach. Allow continued use of off-road recreational vehicles if consistent with Plan policies and with County ordin- ances requiring the vehicles to stay seaward of the sensitive vegetated dunes. Fortuna, Ferndale, Loleta. Modify existing water and sewer systems as necessary to meet water quality control standards, as indicated in the North Coastal Basin 1-B Plan. Maintain the unique character of Loleta and Ferndale as special coastal communities. Scalel-1 2 5 ___ Cotuitra50 Miles: ~ ~ " Depth curves at 100- fathom interval * PLAN MAP 7: MAP NOTES SUBREGION 2: HUMBOLDT (CONTINUED) Bear River. Acquire a 1 .5-mile public easement along the mouth of Bear River from Wildcat Road to provide public ac- cess for fishing and for other recreational use. Mattole River la King Range. Use the beach area as a segment of the coastal trail system from Mattole River south to the King Range National Conservation Area, rather than developing any trail upland that could interfere with productive agricultural lands. 300 Bear RIve _ Coast Guard_____ Reservation_______ Cape Mendocino ____ *4 ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~~111 T___ I _ _ _ _ _ _ _ _ _ _ _ _ _NM I~~~~~~~~~~~~~~~~~ET ~~~~at ive ~~~~~~~~~~~~~~~~~~~~iwa Ok Kioee~ Scll15d ____r~neralo mie I2 Det uvsmitraI PLAN MAP 8: MAP NOTES SUBREGION 2: HUMBOLDT (CONTINUED) Shelter Cove Area. Allow build-out of some existing lots now serviced by sewer and water systems, consistent with geologic hazard requirements. Acquire selected parcels to protect view- shed, archaeological, and soil resources, giving priority to shoreline lots (especially between the airport and the ocean), lots near the bluff at the south end of the subdivision, and par- cels of special archaeological Importance. Because of the high geologic risks on steep hillside areas of Shelter Cove Rancho, do not allow development on these 40-80 acre parcels. 302 4 ______ 4 4 4 4 __ .4 I ____ I I I I I I I Kb I I I I ___________ * K 4 ____________ 4 4 4 _______________ 4 _______ 4 4 4 ________ 4 ______ 4 44 6 * 44 _____ 44 ___________ 44 ___ U U * U _____ I _________________________ I ______________ _________ I I I Point Delgada V ShelterCQye ( I 4 4 ___ - C Kilometers: * Scale F125,000 Contour interval 500' Miles! Depth curves at 100- fathom interval 1" PLAN MAP 9: MAP NOTES SUBREGION 3: MENDOCINO COUNTY SUPPLEMENTAL NOTES Bear Harbor and Usal Creek. Complete the current acquisition Coastal Roads. Keep Highway 1 along the Mendocino Coast of 3,660 acres by the State Department of Parks and Recre- essentially a two-lane scenic highway. Protect the scenic qual- ation; acquire an additional 2,000 acres to connect the Bear ities of the existing county road system and upgrade to all- Harbor and Usal Creek areas. weather standards to provide coast-to-valley transportation corridors as alternatives to the State highways. King Range to DeVilbis Ranch. Develop a segment of the coastal trail system from the King Range National Conserva- Streams, Estuaries, and Wetlands. Preserve and protect the re- tion Area south to the DeVilbis Ranch, linking with trails in the maining estuaries and wetlands and buffer areas necessary to proposed California Department of Parks and Recreation Bear protect the wetlands and their wildlife habitat. Maintain the Harbor-Usal Creek acquisition. fish resources and water quality in coastal streams. Usal Creek. Maintain buffer areas and manage construction ac- Recreation. Study the impact of recreation on areas of biologi- tivities within the watershed to ensure high water quality and cal concern within the region, including: Gualala River, Garcia to protect osprey nesting sites. Do not allow logging activities River, Navarro River, Albion River, Big River, Noyo River, and to begin until the nesting season is over. Ten Mile River. Soil and Forest Resources. Complete detailed upland soils surveys for Mendocino County. Develop programs for rehabili- tation and enhancement of commercial timber resources to en- sure continued timber productivity. Kelp Resources. Protect the kelp beds near Fort Bragg, Point Arena, and Saunders Reef as a limited resource, important for providing food, habitat, and shelter for numerous species of birds, fish, and marine invertebrates. Do not allow commercial kelp harvesting in this region. Boating Needs. Study boating needs (principally for commer- cial fishing) along the Mendocino Coast to determine best means for meeting these needs consistent with resource pro- tection. Subdivisions and Lot Splits. Undertake special studies in three large areas (Fort Bragg to Navarro River, Mallo Pass Creek to Garcia River, and Iversen Point to Gualala River) to evaluate the impact of lot splits and subdivisions within the coastal re- source management area. The studies shall be undertaken jointly by the Regional Commission and the Mendocino Coun- ty Planning Department. Objectives of the studies include pre- venting conversion to residential uses of timberlands that re- main in economic units and limiting new development to exist- ing community boundaries. 304 4,* King Range Ntoa 4,r Conservation re *~~~~~~~~ _ I~~~~ I~~~~~~~-:- _________________ SI~~~~~~~~__ ______ I~~f-- _____ I~~iSB-i9 I~~~BatHro U I~~~-gcl ~~ t �~~~itk ______ *~~~* � � -rls~ mE~ IC _ _-~-- U Kilomet ~ ~ Bea Habo Ilk -, -3~ ~ l iMitk Poit _-- ____ ___~u inViS PLAN MAP 10: MAP NOTES SUBREGION 3: MENDOCINO (CONTINUED) Cottoneva Crook and Rockport Bay. Acquire 120 acres of can- yon, hills, and beaches for preservation of the valuable ripar- ian habitat along the banks and the small estuary at the mouth of Cottoneva Creek. Maintain present uses at Rockport Bay (a signif Icant historical area, formerly a lumber schooner port). Westport. Undertake a detailed study for the community of Westport, in cooperation with the Mendocino County Planning Department. Seaside Creek. Acquire 25 acres, including the wetland area at the mouth of the creek, for preservation of the estuarine habitat. Ocean Meadow Subdivision. Acquire this 31 -acre planned sub- division on coastal grasslands for open space and agricultural Use. Ton Mile River. Acquire approximately 170 acres, including the extensive wetland habitat area, for preservation of the estuar- ine environment (one of the most important estuaries of the Mendocino coast). Ton Milo Dunes and Inglenook Fen. Acquire this 745-acre wet- land and dune area for preservation as a wildlife habitat. :U Abalone Point_;_- RockportBay _ __ _ iX b Seaside Creek : Ocean Meadow Subdivision Milestport 2fnA, Depth curves a om int 4~ -I--- a Pa r Abalne Point -- FW Ten Mile Dunes and _ Scale0125,000 -interval500' PLAN MAP 11: MAP NOTES SUBREGION 3: MENDOCINO (CONTINUED) Cleone Acres. Do not allow strip development in undevel- oped areas along Highway 1 north of Cleone Acres. Fort Bragg. Allow future development consistent with the ex- isting and proposed water and sewage systems to ensure ade- quate water supplies and the maintenance of water quality. Noyo Harbor. Permit maintenance dredging as necessary to maintain existing harbor facilities. Noyo Headland. Acquire 18 acres of bluffs and grasslands for open space. Todd Subdivision. Acquire this four-acre-plus planned subdiv- ision on coastal grasslands for open space. Fort Bragg to Navarro River Special Study Area. Undertake a special study to evaluate the impact of lot splits and subdiv- isions, with the objectives of preventing conversion to residen- tial uses of timberlands that remain in economic units and lim- iting new development to existing community boundaries. Jefferson to Jug Handle Creek. Acquire 121 acres, including Jefferson subdivision and the surrounding grasslands, bluffs, and rocky beaches, for general recreational use, wildlife pres- ervation, and educational use. Caspar. Maintain the special character of Casparas an histor- ically significant community in a scenic area; limit service fa- cilities for subdivisions in the area and maintain open space. Mendocino. Protect the unique qualities of the town as a com- munity of special character; apply design guidelines west of Highway 1. Big River Wetland. Acquire 150 acres for preservation of the ex- tensive estuarine and wetland habitats (comparable In import- ance to those of Ten Mile River). 308 AU~ 7 -- Laguna Point ____ _ Mackerricher U* ~~Noyo River.,,__ * ~~~Todd Tract __ ~~~~Jfesn 'J~~effervat i on I Sub~Medoinison.-_ ___ ~~~~~~ig ie I~~ ~ ON E II Kilometers:_ sci~ioo0tuitraSdAbo Mile- r 2Rvr"R Det uvsa 0fttnintra I~~~~~~~~~~~~~M PLAN MAP 12: MAP NOTES SUBREGION 3: MENDOCINO (CONTINUED) Albion River Wetland. Acquire 145 acres for preservation of the estuarine habitat. Elk. Maintain the unique, special character of Elk, restricting linear development along Highway 1. Elk Creek Wetland. Acquire 720 acres for preservation of the estuarine habitat. Mallo Pass Creek to Garcia River Special Study Area. Under- take a special study to evaluate the impact of lot splits and subdivisions, with the objectives of preventing conversion to residential uses of timberlands that remain in economic units and limiting new development to existing community bound- aries. Laguna Ranch Marsh. Acquire 40-acre marshland for preser- vation of the wildlife habitat and for general recreational use. Irish Beach. Restrict expansion of Irish Beach subdivision, be- cause expansion would degrade this scenic area and exceed the capacity of existing service facilities. Build new residences within the existing subdivision or in Point Arena. Hunters Lagoon. Acquire 450 acres of marshland adjacent to Manchester State Beach, now partially subdivided, for preser- vation of the wildlife habitat. After acquisition the area should be restored as feasible to its original natural state. Garcia River. Acquire 200 acres for preservation of the estuar- ine habitat. 310 * Dark Gulch I, Al f L Alblon . 1 River Navarro Point __ I -~~~~~~~~~~~~~~~~~~~~~~~� Navarro River I ~~~~i ~ ~ _ -U- Cuffeys Point - ______ Mal l ___Pass__Greek I _~~~~~~~~~~~_T PI rena %m_ I C K~omterN ____3 .,temalai PssCre ScleI5,0 loo___ urint erval___ , ^,A, W I Milest f r o er eac Deph crve at1(00- lMho] ir terveloo ~ Miles: ~ ~ ________________________ Deph uresat-00l~omintra $- ___________ PLAN MAP 13: MAP NOTES SUBREGION 3: MENDOCINO (CONTINUED) Point Arena. Concentrate high-Intensity development, service centers, and commercial activity within existing city limits, to prevent uncontrolled growth. Whiskey Shoals. Acquire this 1 00-acre planned subdivision on coastal grasslands for open space and agricultural use. Iversen Point to Gualala River Special Study Area. Undertake a special study to evaluate the Impact of lot splits and subdivi- sions, with the objectives of preventing conversion to resi- dential uses of timberlands that remain In economic units and limiting new development to existing community boundaries. Havens Neck. Acquire this 15-acre grassy headland to preserve open space values and for general recreational use. rvancrnester t~eacri, State Park -4 Hunter's Lagoon-:.'-- I ~~Point Arena -___ U~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~l U~~~on rn _ _ _ __ _ _ __ _ _ II_ _ _ __ _ _ _ veenPointArnC _ _ _ _k 16* ~ ~ ~ ~ ~ __ 4 ~ ~~~~Hn Nec ---- Scll.2,0 Whiskriey Shals _ Dept cuversent Poo-at interva NORTH COAST REGION SELECTED MAPPING SOURCES PRODUCTIVE RESOURCE AREAS Physical Environment and Resources. Division of Mines and Geology, 1971. Report for General Soil Map, Mendocino County. U.S. Soil Conservation Service, 1967. Soil Survey of the Mendocino County Bottomlands. U.S. Department of Agri- culture, 1973. Soils of Coastal Del Norte County. University of California, Davis, 1966. Soils of Western Humboldt County. U.C. Davis, 1965. HABITAT AREAS California Seabird Breeding Ground Survey. Department of Fish and Game, 1969-70. Coastal County Fish and Wildlife Resources and their Utilization. Department of Fish and Game, 1975. Ecology andA vian Use of the Coastal RFlocks of Northern California. Timothy O. Osborne, graduate thesis, Humboldt State University, 1972. Fish and Wildlife in the Marine and Coastal Zone. Department of Fish and Game, 1971. Freshwater Fish. Eddy Samuel, 1969. Wetlands of the United States. U.S. Department of Interior, Circular No. 39, 1971. RECREATION-DEVELOPED AREAS-PUBLIC OWNERSHIP Maps from various local, State, and Federal agencies. 314 0 12 24 36--_ Kilometers f l Scale 1. 1, 500,COG AN Miles 0 12 24 -~- PLAN MAP 14: MAP NOTES SUBREGION 1: NORTH SONOMA COAST NORTH CENTRAL COAST ADDED MAP SYMBOLS Sea Ranch. Allow development, at the historic rate of con- The North Central Regional Commission developed a Regional struction, of the presently subdivided, improved, legally Supplement which applied statewide policies to the geography buildable lots at Sea Ranch, but guarantee view protection, of the region. The plan maps developed by the region included public access, and septic tank monitoring by using the envir- detail that is not reflected in the statewide map legend of the onmental deposit fund for these objectives in the absence of Coastal Plan and therefore a supplementary legend has been action by the lot owners' association. Develop public access developed for the North Central Region. The following dis- in subdivision Units 8, 34A, and 36, and along the shoreline cussion describes these added regional map notations that south of Gualala Park as shown in the Plan Map. Acquire ap- appear on the following six maps. proximately 297 acres to provide access to the beach and to protect coastal views. Preclude further subdivision in the area Proposed Public Campgrounds pending completion of a study of future transportation prob- Areas proposed for additional public campgrounds are indi- lems along the Sonoma-Mendocino coastline. cated by an outline "tent symbol". The level and type of development proposed at each site Is discussed in the text North Sonoma Coast. Maintain open lands between Highway 1 of Part IV. and the coastline in open space. Continue present agricultural operations with provision for blufftop trails and access where compatible with ranching activities. Acquisition is a long-term possibility in cases where loss of open space values is threat- The solid "tent symbol" indicates existing Federal, State, ened. and county campgrounds. Highway 1. Retain Highway 1 as a two-lane rural road through- Private Visitor Facilities out the region. Development of Annapolis-Skaggs Springs Road The asterisk symbol is used to Indicate areas proposed for is suggested as a means of relieving future traffic congestion. additional visitor-serving facilities. Typical activities would A study should be conducted of the need for improvements of include overnight accommodations (including private camp- Highway 1 between Jenner and Fort Ross, and use of the Sea- grounds), eating places or shops. The text of Part IV Includes view-Plantation Road as an alternate parallel route. guides to the scale and quantity of such facilities. Stewarts Point. Protect the remaining buildings of this lum- Village Expansion Boundary ber port settlement as a historic park. A number of Plan policies indicate that development should take place within the boundaries of already settled areas. The Salt Point State Park. Expand parklands and develop 200 camp- take place within the boundaries o f already settled areas. The reflect these recommended boundaries of coastal settlements, based on existing lot patterns, public service systems, visual Richardson, Kruse Ranches. Acquire 1,521 acres of terrace barriers and other indicators. lands for trails, beach access and agriculture. Lease back the agricultural lands to farmers for continued cultivation. Possible Long - Term Acquisition In some situations the use or protection objectives for special resource areas can be met without public acquisition, or acquisition can be deferred. This lower acquisition priority designation reflects management situations described In the Part IV text and does not reflect on the value of designated resource areas. Priority Marine Study Area This map symbol identifies all rocky Intertidal coastline areas which are not included in the "Special Marine Environment" category. This latter category includes only those shoreline areas identified as important marine life habitats by the Department of Fish and Game, the Water Resources Control Board, Commission sponsored studies or othermarine advisors and agencies. Since it is known that all rocky inter- tidal zones are rich in marine life and are susceptible to dis- ruption, all such areas are included in this Priority Marine Study Area catelgory. These areas should have priority for specific studies and evaluation by marine scientists. Ocean shoreline areas not Included in the above two categories are predominantly sandy and cobbled beaches, which are also important marine areas In their own right, but are less fragile habitat. 316 I N o3 t MENDOQINO COUNTY Gualala __-- U.SONOMA COU Sea Ranch Propse P ulc:_ __, ; Pv Ranches ExStillwa Pic o Nrhlen.trasle LCongTerm Adis itions 5 S*lea. RantcVrFl ' 12anh-Pi D+ Scale 1125,000 Contour interal 5 00: A d, MilRes: _ 2 Depth curves at100-fathom interval 1*'1 PLAN MAP 15: MAP NOTES SUBREGION 1: NORTH SONOMA COAST [CONTINUED] Ocean, Stillwater Coves. Acquire 513 acres (two parcels) with- in the Salt Point State Park expansion project, as proposed by the State Department of Parks and Recreation, for general rec- reational use. Timber Cove Terrace. Acquire 28 acres on the immediate shore- line for general recreational use. Develop camping and visitor facilities on this site. Fort Ross. Continue grazing and selective timber harvesting. Expand interpretive facilities and develop campsites and hiking trails. Fort Ross Expansion. Recommend completion of the current acquisition of 868 acres at this site by the State Department of Parks and Recreation. Acquire the remaining 3,442 acres for general recreation (e.g., camping, trails) and lease back por- tions for agricultural use. Russian Gulch and Jenner Beach. Develop this area as a camp- ground with public beach access provided from Russian Gulch south to the village of Jenner. Acquire approximately 841 acres adjacent to Sonoma Coast State Park for camping and im- proved public access to the beach. Goat Reck, Bridgehaven. Add 176 acres to Goat Rock State Park to protect the unique view qualities of this area. 318 OceanzCovd~ Stillwater O~ ______ Timber Cove Windemere Point___ _______ 44444 ~~~~~~For~- R7 _ 4~~~~~~~~~~~~~~~~~~~~~~0Mg- 4 -~~~~__-~~~~ ______RssinGlc Nort Cetaegndto s*,usa PrpsdPbi4 a p r u d *k*1vsf otRc Po~~44RssiblaLng Terulchii 444~~~~~~~~~~~~~~~PcfcViwEtai', M rvt iio ailites: 441 Depth cuvilaes atxpansion ionterary 4~~~~~~A PLAN MAP 16: MAP NOTES SUBREGION 2: SOUTH SONOMA COAST Jenner. Limit development to the existing village area. Duncans Mills. Concentrate additional visitor-serving facilities at Duncans Mills, approximately doubling those presently available. Willow Creek Expansion. Acquire 1 ,258-acre buffer at the mouth of the creek for development of a campground and protec- tion of the marsh. Pacific View Estates. Acquire 23 acres within this planned sub- division for public use and view protection. Sonoma Coast Beaches. Study relocation of parking east of Highway 1 along with opportunities for providing shuttle bus service between park units. Salmon Creek. Undertake an overall management study of the Salmon Creek watershed to protect its present resources and to determine opportunities for restoration. Bodega Bay. Allow present visitor-serving and commercial fishing facilities to expand to approximately double their pres- ent size. Development of a new mooring for commercial fishing boats at Spud Point appears consistent with Plan policies if current studies of the proposal show this to be the least envir- onmentally disruptive alternative. Limit residential develop- ment to presently subdivided areas with total population in the area not to exceed 2,750 persons. Bodega Dunes State Park. Add 44 acres to the Sonoma Coast State Beach complex for general recreational use and to pre- serve the dune area. SUBREGION 3: TOMALES BAY Esteros. Give special protection to the Esteros Americano and de San Antonio; permit only hike-in access Dillon Beach. Limit expansion to the presently subdivided area. Require a master plan at Lawson's Landing prior to any expan- sion of facilities. 320 C~~~~~~IO Sonoma Coad ste*____ Amer!cn _ 4i~iorth Central Legend Additions --_--- Proposed Public Campground__ Existing Public Campground 'rivate Visitor Facilities Estero de San Antot * lge Expansion fboundary__________ 4110ii Pos ie Long Term Acquisition______ - ElPrority ~rine Study Area Dlo eo TomnalesPi Kilometers:44 Scale 1:125,000 n ur er0v MDeptcurves at 10-fathom rvat PLAN MAP 17: MAP NOTES SUBREGION 3: TOMALES BAY [CONTINUED] Tom's Point. Acquire this 176-acre beach and dune area at the mouth of Tomales Bay for camping, fishing and clamming, and other water-related recreational activities. Tomales Bay. Give serious consideration to designating this important areas as a National Estuarine Sanctuary. Fully protect all existing marsh areas, designating several for use as scientific reserves. Permit campground developments in adjacent valleys, subject to environmental constraints. Angress Property. Acquire 22 acres on the eastern shore of Tomales Bay for maintenance of the viewshed and other plan- ning purposes. Marconi. Limit the Synanon complex to its present scale. Millerton, Tomasini Points. Acquire 292 acres to preserve this area for research and education. Control access consistent with resource protection. Point Reyes Station. Concentrate moderate-size visitor facili- ties within Point Reyes Station. Set expansion boundaries for the community as those indicated in Marin's Countywide Plan. Inverness. Limit further residential and visitor-serving develop- ment to the existing lots and street pattern. SUBREGION 4: POINT REYES NATIONAL SEA- SHORE TO THE GOLDEN GATE Point Reyes National Seashore. Give maximum protection to the wilderness values of the Seashore, consistent with reten- tion of existing agricultural operations and recreational facili- ties. Allow high use at Drakes Beach and Santa Maria Beach. Develop a new trailhead in the Five Brooks area. 322 D~tiBac To males P -------V-M 'I~~~~botsLgoERN11 !-2 w S~~~~~~~~ S~~~~~~~~~~i~'u c*s a s Reevalo S~~~~~~~~~Nrh ota eedAdt ~~~~~~~~~~~~~rpsePulcCmgon ~~~~~~~~~~~ xstnPulcCmgod ~~~~~~~~~~~~~~~rvt iio aiiis Scl ___12_ ____00 C onori *~~~~~~~~~~~"u'Psil ogTr custo Mies Det cuve at(0 ahmitra rirt aiesuyAe PLAN MAP 18: MAP NOTES SUBREGION 4: POINT REYES NATIONAL SEASHORE TO THE GOLDEN GATE [CONTINUED] Olema Valley. Develop several clusters of tent cabins and walk- in camp grounds along the valley (no specific locations sug- gested). Consider conversion of ranch homes within the Gold- en Gate National Recreation Area to hostels. Palomarlin. Keep the southern entrance to the Seashore open as an unimproved secondary access. Add lands between the present park boundaries and the subdivided area on Bollnas Mesa to the Seashore. Bolinas Lagoon. Undertake a management study to provide for resource protection and compatible recreation as well as possible restoration programs. Bollnas. Limit residential and visitor-serving facilities to pres- ent community boundaries. Stinson Beach and Seadrift. Guarantee access to the 50 acres of sandy beach at Seadrift. Acquire land for construction of small-scale parking and visitor facilities near the Seadrift gate. Limit town expansion to presently subdivided lots. Give prior- ity to a study of a southern park entrance and development of campground facilities. Do not allow new development until the area's wastewater treatment problem Is solved. West Marin Access. Balance use of existing routes through use of road signs and provision of visitor information. Retain all routes as two-lane roadways, permitting minimal improve- ments only where required for safety or for provision of transit access. Develop improved transit access to northern and south- ern ends of the Golden Gate National Recreation Area, work- ing with park planners and the County. Steep Ravine. Make existing cabins accessible to the public for recreation and nature-interpretive uses. 324 Ieadrift _ 44.. . Stinson Beach SS3 4%,~ ,,- ~,,,,,,,,.,,S teep 4444 ; . 0300:;000 t ; 00: 0:X Muir Beatt North Central Legend AdZft ns A Proposed Public Campground - A Existing Public Campground 4101 - . * Private Visitor Facilities .::. Village Expansion Boundary qtqllk Possible Long Term Acquisition ' l ,llta- E Priority Marine Study Area Kilometers: 203 a 4 Scale 1,125,000 Contour interval 500' IO tt Miles: - - - t- Depth curves at 100- fathom interval : : f tt u I gfCl Xffr0i lf~?f ;~~d;, -..X. = 7 : Pi j f Vi J 7 ; .iE 7 S F S S c = i ~~~ Village Expansion Boundary~ ~ ~~~~~~ PLAN MAP 19: MAP NOTES SUBREGION 4: POINT REYES NATIONAL SEASHORE TO THE GOLDEN GATE [CONTINUED] Muir Beach. Limit development to single-family units on ex- isting lots and a small-scale, compatible, visitor facility. Tennessee Cove. Provide only hike-in access to the cove. Mill Valley-Tamalpals Junction. Encourage a transit center and overflow visitor facilities to serve West Marin at this location. Rodeo Lagoon-Bakers Beach. Develop high use recreational enclaves at these locations. SUBREGION 5: SAN FRANCISCO Cliff House. Continue commercial recreational use of this site, limited to its present area. Playland-at-the-Beach Site. Require provision of visitor-serving and recreational uses as a part of any development planned for this area. Sunset and Parkside Neighborhoods. In blocks that have not already been extensively converted to apartment development, retain the single-family, middle-income character of these neighborhoods. Lake Merced. Protect the open character of lands surrounding Lake Merced. Assure that stringent environmental standards are met before allowing the development of a proposed sewage treatment plant and ocean outfall. Farallon Islands. Retain the present protected status of the islands. 326 North Central JI~_ Steep Ravn __ Muir Beci E_____ Tennesse Cove SAN FRANCISCO BA\ Rodeo Lagoo\ 44~~~~~~~~~odnGt 44~~~~~~~~~BkrBa 4~~~~~~~~~~~A 4~~~~~~CifHu 4ot ota a n diin Prpsd4 bgCmgon A4xsigPbi~mgon 4rvt iitfite Vilg4x~no 4 udr 1,111PsibeLnlr AqiiinSA RNIC 11 rirt Mrnl~uy raI Ea 4~~~~~~~~SNMTOCUT Kilometers; Scae .15,14 ColUri rva l s:. - Miles-4 Det cresa 0-a r nera.4 N NORTH CENTRAL COAST COMMISSION SELECTED MAPPING SOURCES GENERAL REFERENCES Regional Ocean Coastline Plan. SedwaylCooke, 1972. Project files, Association of Bay Area Governments (ABAG). San Francisco Bay Region Environmentand Resources Planning Study. U.S. Geological Survey and Department of Housing and Urban Development (HUD), 1970 to present. PRODUCTIVE RESOURCE AREAS Flood Prone Areas, USGS, 1970. (1:24,000.) Flood Prone Areas in the San Francisco Bay Region. USGS - Water Investigation 37-73,1973. (1:125,000.) General Soils. ABAG, 1972. (1:125,000.) Land Capability Classification. ABAG, 1972. (1:125,000.) Marin CountyAgricultural Preserves. Marln County Planning Department, 1974. (1:48,000.) Sonoma County Agricultural Preserves. Sonoma County Planning Department, 1974. (1:125,000.) HABITAT AREAS Fish and Game Field Notes. Department of Fish and Game, 1974. (1:31,680.) Natural Resource Areas (Region). North Central Coast Regional Commission (NCCRC), 1974. (1:62,500.) Natural Resource Areas (Sea Ranch Subdivision). NCCRC, 1974. (1:4800.) Timber Stands. U.S. Department of Agriculture-Forest Service. (1:31,680.) Vegetative Cover. California State Soil Service. (1:250,000.) RECREATION-DEVELOPED AREAS- PUBLIC OWNERSHIP Archeologic Survey. North Coast Ranges Archaeological Group, 1973. (1:24,000.) Boundary Maps for Public Service Districts in NCCRC Area. Local Agency For- mation Commission. (Various scales and dates.) Coastal Issues Map. NCCRC, 1974. (1:125,000.) Coastal Trail, NCCRC, 1974. (1:125,000.) Land Use. SonomaCounty Planning Department, 1971. (1:125,000.) Land Use. USGS (EROS), 1972. (1:62,500.) Marin County Master Plan. Marin County Planning Department, 1973. (1:48,000.) RecreationalAccommodations. NCCRC, 1974. (1:62,500.) Service Areas and Districts. Sonoma County Planning Department, 1973. (1:125,000.) Sonoma CountyZoning. Sonoma County Planning Department, 1973. (1:125,000.) State Park Acquisitions. California Department of Parks and Recreation, 1972. (1:24,000.) Village Expansion Maps (Marin County). Marin County Planning Department. (Various scales and dates.) 328 SAN FRANCIS _ 0~~~~~~~ Metes ~ ~ ~ ~ Mntr 0 12 24 3 PLAN MAP 20: MAP NOTES SUBREGION 1: DALY CITY AND PACIFICA SUPPLEMENTAL NOTES Thornton Beach. Recommend that the State Department of Coastal Trails. The Plan calls for the establishment of a state- Parks and Recreation add 36 acres to the existing State Park, wide coastal trail system, developed cooperatively among lo- expand parking and support facilities, and improve beach calagencies, the State Departments of Parks and Recreation access. and Transportation, and the coastal agency. The trails are to be located where they will impose the least economic and envi- Daly City. Expand public use area adjacent to shoreline. De- ronmentai costs, provide non-motorized access to recreational velop Old Coast Road as a coastal trail. and scenic areas, and accommodate popular forms of recrea- tion (hiking, riding, and bicycling). Care must be taken in loca- Pacifica. Improve access to coastal recreation without destroy- tion and management of the trails system to minimize unsafe ing special coastal neighborhoods. conditions, fire danger, damage to fragile landforms, vegeta- tion, or wildlife, vandalism, and crop-damage. As envisioned Mori's Point. Acquire a 30-acre scenic headland area adjacent by the preliminary California Recreational Trails and Hostel to Sharp Park State Beach for preservation of views and public Plan (1975), the system will link urban centers, public beaches use areas after a full exploration of prescriptive rights. and parks, hostels, campgrounds, and picnic areas. In the Half Moon Bay area, segments of trail could be located on scenic bluff tops (such as an unused right-of-way west of SUBREGION 2: HALF MOON BAY Vallemar St. in Moss Beach), for educational purposes (along Frenchman's Reef, through the Seal Cove landslide, around San Pedro Beach. Explore possible public prescriptive rights; if Princeton Marsh), and connecting the coastal trails to the no such rights exist, acquire this beach area for public recrea- mountain trails along the creeks. In some sensitive areas, bike tion. trails can be separated from hiking trails (Airport Street). Pro- posed trail locations in the Half Moon Bay Area are illustrated Devil's Slide. Establish scenic parkway. below. Montara Beach. Recommend that the State Department of ... Parks and Recreation complete its acquisition of this one mile - .- . of ocean frontage linking Montara State Beach to Gray Whale N........... ...... Cove. Montara to Half Moon Bay. Protect agriculture and outdoor M......05 EACH floriculture as open-space buffers. Montara to Pillar Point: Provide bluff top trail access. ... Fitzgerald Marine Reserve. Complete this 195-acre acquisition ...... .. ...... _ - to add more intensive use areas and to manage access to the ..........:.::::: .:. .. reserve. . .... .. Highway 92. Develop transit options for recreation from San Mateo to Half Moon Bay. . . :-::-:I ... Mlramar Beach. Develop alternative erosion control measures lAi, ) for study by the Army Corps of Engineers. .''4T.a..... . .. North Half Moon Bay Special Study Area. Develop mutually. : ::; consistent plans for harbor improvement, erosion protection, ... ... recreational development, design of urbanizing areas, and continued agriculture. Explore and implement methods for agricultural rehabilitation of unimproved subdivisions. ....... Half Moon Bay. Improve road and trail access to and along beachfront and provide beach user facilities.,: / San Mateo Mldcoast Beaches. Acquire 259 acres encompas- sing 5 miles of ocean frontage for general recreation. ......... ... ~~~~~~~..... :--::--. .: ..\ .,.,-....,.........,....,..,... .r~ ....................... . - :::: : : . . - it Add| By ::::::AY : .........LF..... ... HL , 330 V I�SAN FRANCISCO COUN TY -. .. I Thornton State Beach SAN MATEO COUNTY 20 4 [ Daly City:i - lt aI' . - Coast II Pacifica Mori's Point 0 San Pedro Beach San Pedro Point Devil's Slide ;i Montara . Fitzgerald Miramar Beach HALF MOON BAY MoSar a __o S San Mateo Midcoast Beaches Kilometers: 3 e L Scale 14125, 00 4ntour interva500, Kiles: 1O2 Depth curves at 100-_thom interval PLAN MAP 21: MAP NOTES SUBREGION 3: ANO NUEVO COAST SUPPLEMENTAL NOTES Pescadero Marsh. complete acquisition of the wetland and Carrying Capacity. Coastal Plan policies require appropriate surrounding area totaling 340 acres to preserve the area for use levels to be established for coastal recreation areas. While trails and the construction of educational facilities. most sandy beaches can, with maintenance, sustain intensive recreational use, unregulated use of more fragile resource Boisa Point Beaches. Explore possible public prescriptive areas commonly leads to their destruction. Control of access, rights; if no such rights exist, acquire this 40-acre beach and publicity, and availability of physical facilities (such as park- bluff area comprising one mile of coastline to improve and ing, water, restrooms, and campsites), together with appropri- manage recreation. ate signs, ranger presence, and visitor education, can provide management tools necessary to protect resources from over- Franklin Point, Ano Nuevo. Complete State Reserve acquisi- use or misuse. tion (200-250 acres) to preserve the dunes and control access across them. At Pescadero State Beach, access could well be conf ined to trails and observation blinds in the wildlife-rich marsh areas; in Halt Moon Bay to Santa Cruz. Establish scenic parkway on the dunes, more freedom of movement might be permitted, but two-lane Highway 1. use should be directed away from stabilizing vegetation; and primary visitor access provided to the most durable feature, the open beach. This is illustrated below. SUBREGION 10: CENTRAL COAST OCEAN AREA Bay and Ocean Areas. Retain and expand oil drilling prohibi- tion zone. 332 Martin's Beach __ 4 _ p~~~~~~~~~~st~~~ ta4 rgro tt ec 4 4 ~ ~ ~ ~ I 4 opncStt ec a Bean Hreollow State Beach _______ Bsa PointBeac ~~~~~igoPin I _______Frakli n Poin D u n e s _ _ ~~~~~~~Fakin on Ki l o m e t e r s : ___ Scl ____00 ntu Mil Det cuve at_ 10 -fa a~~~~~~~~~~~~~~~~ S PLAN MAP 22: MAP NOTES SUBREGION 4: SANTA CRUZ SUPPLEMENTAL NOTES Highway 17. Provide transit options for recreational users of Highway Capacity Budgeting. Several major coastal roads are Highway 17 from the Santa Clara Valley to Santa Cruz. limited, by cost (both economic and environmental) and by public policy, to a minimum of improvement. Highway 1, for example, which through much of the Central Coast will keep its present two-lane, rural character, must carry a large pro- portion of coastal visitors. Other major coastal access roads, such as Highways 92 and 17, will not be improved in the near future, but are already heavily used by both recreational an, commuter traffic. For all of these roads, development of ;;~ / & / transit options and careful budgeting of capacity are recom- mended in Plan policies. LD_ e-IS J..} The Plan calls for a system of budgeting coastal road capacity so that recreational use of the road system will not be limited by new private development. It will be necessary to determine road capacity at several levels of congestion and transit use. Then recreational demand-travel to the coast for beach or boat use, scenic drives, and other leisure pursuits-can be balanced with transportation needs of coastal residential and commercial developments. On Highway 17, the primary access from the Santa Clara Valley and much of the San Francisco Bay area to many of the Central Coast's recreational facilities, the problem is apparent. It was estimated in June 1975, that average daily traffic during the --o "~ apeak recreational months of July and August would reach' 36,500. At this level, the road may approach its capacity both for recreational and other traffic. The capacity budgeting process will help prevent conflicts between public access to the coast and new development that would be dependent on use of High- way 17 and will help keep all uses of the road at a desirable level of service. \\h0 334 t a/ > ,~ {- f - . A si: i- E i ~ ::i- u-i-V : if :R : jj- z; i :: :- Hi : hGlf-:-.E:::i F7N2 Santa Clara Valley Kilometers: 2 = Scale 1-125,000 Contour interval 500' is ~~~~~~~~~~~~~~~~~~~~~Depth curves at 100- fathom interval ___ C:~~rS N~~~~~~~~~~~~~~~~~~~~~~ PLAN MAP 23: MAP NOTES SUBREGION 3: ANO NUEVO COAST [CONTINUED] SUPPLEMENTAL NOTES Half Moon Bay to Santa Cruz. Establish scenic parkway an Recreation Vs. Agriculture. Especially significant coastal ag- two-lane Highway 1. ricultural land, growing crops that require direct and frequent Scot Crek. Aquir 65-0 aces t proect he feshwterexposure to the coastal fog, is restricted to the narrow shelves Scot Crek. cquie 6-70 cre to rotct te feshwterbetween the coastal highway and the sea. In the Central Coast marsh. Acquire the upland area for parking and support facili- Region these lands produce most of the nation's brussels ties. ~~~~~~~~~~~~~sprouts and artichokes. Where these lands meet the ocean are Davenport Landing. Acquire a one-acre beach access area. spectacular cliffs, sea caves, sand dunes, and protected beaches, as well as rocky or hazardous areas. Plan policies call for providing public access to many such shoreline areas and also for protection of agricultural uses. SUBREGION 4:SANTA CRUZ [CONTINUED] The two goals can and must be reconciled. Through careful Natural Bridges. Acquire an 1 1-acre addition to this existing subregional planning, various methods of securing access can State Beach for general recreation and protection of the habitat be tested. Accessways can be clearly marked and fenced to area. avoid unncecessary destruction of crops. Litter cans and sani- tary facilities can be provided area-wide. Parking can be regu- North Santa Cruz Coast Special Study Area. Evaluate new lated so that recreation areas do not become over-crowded. State Park and proposed Marine Research Station to assure Supervisory personnel and emergency equipment should be that critical habitats, productive agricultural areas, and urban available to serve remote areas without long delays. neighborhoods nearby are not disrupted. Reconsider Santa Cruz City's urban reserve. The Santa Cruz North Coast is an area where such potential conflicts occur. It is proposed for special study to assure main- Santa Cruz. See Map Notes opposite Plan Map 24. tenance of agricultural operations while providing for appro- priate public access. SUBREGION 10: CENTRAL COAST OCEAN AREA [CONTINUED] Bay and Ocean Areas. Retain and expand oil drilling prohibi- tion zone. ~Irf~f~fj& F___ 44 ~~~~~Sand Hill Bluff a-__ 11 44 44 4%A 4444 ~~~~~~~~~~~Terrace Point 0 Lhhcu 44 ~~~~~~~~ ~~~~~~Natural Fiel 44 ~~~~~~~~~~Bridges 7~~~~~~~~~~~~**, 4*4kfj ft"*V9#fftf Kilometers: UrL.J2'13~~~~~~~~ Scalel-125,000 Contourinterval5CIO~~ Depth curves at 100-fathomn interval 3 PLAN MAP 24: MAP NOTES SUBREGION 4: SANTA CRUZ [CONTINUED] SUPPLEMENTAL NOTES Santa Cruz. Acquire urban waterfront open space areas. Pro- Coastal Bluffs. Eroding cliffs form the seaward face of much of tect Victorian and Mission architecture. Provide transit from in- the Santa Cruz and San Mateo coasts. Together with the adja- town parking to the coast for beach users. cent sandy beaches and the nearshore ocean currents, the bluffs are part of the natural system called the littoral cell, sup- Lighthouse Field. Provide for public purchase of this 37-acre plying sand to the beaches of the region. Down the bluffs- scenic headland. along the gullies that drain upland areas or on the face of the bluffs themselves-people gain access to the shoreline. But San Lorenzo River Mouth. Add to the existing State park an area the cliffs are often hazardous. Waves eat away at their bases, overlooking the river mouth to preserve the headland and view and landslides constantly reshape the bluff face. Urbanization area. may accelerate erosion by increasing runoff, encouraging in- discriminate construction on bluff edges, and increasing use Upper Yacht Harbor. Acquire up to 60 acres in Santa Cruz adja- of the unstable bluff face. cent to the marina for recreation, habitat, and waterfront open space protection. Coastal Plan bluff policies must be carefully applied to a wide range of bluff types. Beach access points must be designated Santa Cruz Harbor Special Study Area. Evaluate existing plans and made safe, helping at the same time to prevent new ero- that would surround small craft harbor with intensive private sion of bluff faces. Public use areas, such as blufftop trails, development. Provide adequate public road and trail access parking and viewing areas, must be provided. And a range of and designate coastal-related public and commercial areas. techniques must be used to reduce future need for costly, un- attractive seawalls (such as setback requirements, drainage Manresa Beach. Add 70 acres to the existing State Beach for improvements, innovative shore protection designs). bluff protection, access, and support facilities. In the Santa Cruz area, many of the bluffs have been altered by residential, road, and seawall construction. Public enjoyment SUBREGION 5: PAJARO-ELKHORN of spectacular blufftop vantage points can be improved with landscaping, benches, and litter control (San Lorenzo Point); Pajaro Valley. Encourage reclamation of wastewater for irriga- coastal access can be increased through blufftop dedication tlon and recharge of overdrafted groundwater basins. and public acquisition (Manresa Beach); and the appearance of bluffs can be enhanced through restoration and strict controls Pajaro Coast Beaches. Acquire 135 acres to create a contin- over height, setback, and design of new buildings and sea- uous strip of State beach from La Selva Beach to the Pajaro walls (Capitola, East Cliff Drive). River. Sunset Beach. Acquire this 13-acre inholding within the exist- ing State beach for development of day-use facilities. 338 par --- -- SelvalBeac St~~anres Beach a ~~~~~~~~~~Pajaro Coast Beaches a ~~~~~~~~~~~Sunset Beac a ~~~~~~~~~~~Sunset State Beach. Ki s 1-a~ Miles: a 124 Depth cLaves at 100- fathom interval PLAN MAP 25: MAP NOTES SUBREGION 5: PAJARO-ELKHORN [CONTINUED] SUPPLEMENTAL NOTES Pajaro Valley. Encourage reclamation of wastewater for irri- Critical Habitats. Throughout the coastal zone are land and gation and groundwater recharge. water areas of special importance to rare, threatened, and highly specialized plant and animal species. The Plan places Elkhorn Slough. Create an Estuarine Sanctuary and Wildlife great stress on protection of such critical habitat areas as salt Refuge. Acquire 2,500 acres to protect this area, the largest marshes, tidepools, estuaries, and native plant communities. saltmarsh in the coastal zone, to protect rare and endangered Protection of these areas not only helps assure that plant and species, and to provide recreational opportunities. animal populations are adequate for reproduction, but also gives the public an irreplaceable educational resource. Elkhorn Slough Special Study Area. Evaluate plans for the har- bor, coastal industries, and roads to assure that these facili- Elkhorn Slough is an estuarine system of immense importance. ties will not degrade sensitive estuarine habitats and valuable In recommending that the slough be granted Estuarine Sanctu- agricultural land. Develop comprehensive watershed manage- ary status, and that the slough and foreslopes be designated ment program. as a wildlife refuge, the Plan follows up on State and Federal studies of the habitat values of the area as a marine life nursery Elkhorn Uplands. Limit development in slough's critical water- studies of the ha bitat valu es of the are a as a mari ne life nursery shed to protect quality and quantity of freshwater inflow. and home of two enda ngered bird species the black rail and clapper rail. 340 >~~�Jtvf (S CenftalI - N~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ ____~~~~~~~ Coa a~~~~~~~~~~~~~~~ 7~~~~~~( __~~~~~~~~~~~~~~~~~cl 1:2,0 otuV ~~~gm ~ ~ c -m~ PLAN MAP 26: MAP NOTES SUBREGION 5: PAJARO-ELKHORN [CONTINUED] SUPPLEMENTAL NOTES Zmudowskl State Beach Addition. Acquire 100 acres to cor- Monterey Bay. Natural features of Monterey Bay include a plete a continuous strip of State Beach from the Pajaro River to mile-deep submarine canyon, rich kelp beds, and a revitalized Moss Landing. sea otter population. Although the great sardine fleets have disappeared, the Bay remains important for commercial fish- Elkhorn Slough. See Map Notes facing Plan Map 25. ing, skin diving, sand mining, seawater mineral extraction, and as a receptacle for nine municipal sewage outfalls. Three mar- inas, a boardwalk, commercial wharfs, and 36 miles of SUBREGION 6: LOWER SALINAS VALLEY beachfront are primary visitor attractions, essential to local economies. Offshore Outer Continental Shelf lands may be Castroville. Eliminate sewage discharge to Tembladero leased for oil exploitation. Slough. An effective resource management program must balance these sometimes conflicting uses of the Bay so that the overall Salinas River Dunes. Acquire 200 acres of dunes and beach for landscape preservation and recreational use. quality of this marine ecosystem is maintained. Allocation of berthing space and harbor expansion, assessment of deep- Monterey Bay Dunes Special Study Area. Establish preserva-roposals, elimination or upgrading of sewage tion program, restoration priorities, and recreational use levels discharges, oil spill prevention and mitigation, protection of to prevent population growth, sand mining, and increased beach sand supply sources, and management of fisheries recreation use from damaging sensitive habitats and scenic must be given priority in further investigation. areas. Marina Dunes. Protect rare dune vegetation and representative vernal ponds. Enact legislation authorizing purchase of this 169-acre dune area to protect the endangered habitat and land- UT-OVIUg form and to provide beach recreation. . . . , SUBREGION 9: MONTEREY BAY Monterey Bay. Develop adequate information on bay currents, S sand supply, and water quality impacts for decisions on oil leasing, new sewage discharges, and level of sand mining. 342 Sunset State Beach\ Coast I - - I -~~~~~-- - - - - Z Zmudowski State Beach 'MI-.__ ~ -- Moss Landing Harbor' ___ M oss Land in g '------Monterey Submarine Canyon - - ____w Salinas River State Beach Salinas Lagoon National Wildlife Refuge -____ Salinas River Dunes RO w _~~~~~~~~~~~m Marina Dunes 0_ _ Kilometers: 2 =3 Scalel1125,000 Contour interval 500' Miles:2_ Depth curves at 100- fathom interval _ PLAN MAP 27: MAP NOTES SUBREGION 7: MONTEREY PENINSULA SUPPLEMENTAL NOTES Sand City to Monterey. Protect and restore dunes and views of Manmade Resources. The Coastal Plan celebrates the special Monterey Bay. features of the coast that are man-made. From individual ar- chitectural and artistic achievements to the development of South Monterey Bay Beaches. Acquire approximately 100 community character, from prehistoric cultural remnants to acres of beach adjacent to the urbanized area for recreation. "living" history, the coast offers the resident - id visitor a rare opportunity to sample the best of man's works alongside the Laguna Grande Lake. Acquire this 1 5-acre lake and marsh im- best of nature's. mediately east of Highway 1 for general recreation. Special coastal neighborhoods, defined by their unique fea- Monterey. Maintain historic character of downtown by restor- tures and protected from degradation with development con- ation of adobes and control of new development. trols, are of several kinds. Old Monterey, the capital of Span- ish California, centers on the nearly-forgotten Royal Presidio Cannery Row. Provide adequate access for recreation. site and a group of adobes, many of which have been protected and restored as public buildings and private offices. Pacific Grove. Protect historic architecture. Monterey's colorful waterfront area combines historic fea- tures (Custom House Plaza, Sloat Landing) with modern Monterey Peninsula. Protect forested skyline. wharves and marina, and a commercial revitalization of Can- nery Row (which retains its own historic and literary heritage). 17 Mile Drive. Protect recreational capacity of road and desig- Pacific Grove boasts a large collection of stately Victorian nate public use areas. homes and churches, whose preservation helps to retain the characteristic atmosphere of this coastal community. Del Monte Forest. Retain pine forest canopy and complete the planned botanic reserve system. Add about 50 acres of cypress Carmel Mission is one of several designated National Historic grove to the existing system of limited access reserves. Con- Landmarks. It has great historic and architectural value even sider public acquisition where necessary to protect small por- within the chain of California missions, is in excellent repair, tions of the area from incompatible development. and it occupies a strategic location between the Big Sur Coast and the urban recreational amenities of the Monterey Penin- Pebble Beach. Preserve old-growth cypress stands. sula. The mission also symbolizes its original religious goals and provides a link to the coastal Indian cultures that once oc- Carmel City Beach. Add .75 acre to the existing municipal cupied the site. beach for general recreation. Archaeological resources abound on the peninsula, and the Carmel Bay. Protect submarine canyon and pinnacles. Phase Plan calls for a systematic survey of these resources so as to out existing outfall and reclaim wastewater. Improve diving prevent their loss. safety and control access. Carmel Area Kelp Beds. Limit harvesting to protect integrity of beds and habitat values. California Sea Otter Refuge. Protect pristine natural environ- ment through ASBS designation and avoidance of adverse impacts. Carmel Meadows. Acquire this 35.6-acre undeveloped meadow as an addition to Carmel River State Beach. Carmel River-Point Lobos Uplands. Acquire a minimum of 135 acres and dedicate additional acreage, if possible, along a 2.5- mile stretch of Highway 1 to preserve this area as open space and a scientific reserve. Carmel Highlands. Establish sewer system and phase out near- shore outfalls. Yankee Point to Garrapata Beach. Formulate a program to pro- tect scenic views, tidepools, and pocket beaches from devel- opment and from recreational overuse. Complete beach ac- quisition at Malpaso Beach and establish appropriate public use levels; acquire at least 200 additional acres (a proposed Sobrantes Point Reserve), including about four miles of ocean frontage, as part of the protection program. Big Sur Highway Special Study Area. See Map Notes for Plan Map 29. 344 * I ~~~~~~~~~~~~ M~~~~ap a A ~~~~~~~~~~MONTEREY BAY _ S ___ ~~~~~~Central 01 a ~~~~~~~Coast Coast Guard m io Reservation_ Asilornar state Beach _ South Mon yazee ~Monterey Peninsula u _ ~~~~~~~FortOrd )Cy ess PointMN :De-l-Monte Bot anc qesere (Cy~e e_ \ armel City Beach0__ - Carmnel Suibjmarine-CanyonNeIaly ( ~~Yankee Point S~~~~~4 ZGtanPitRsev Dphcr10 fa t ho in trva PLAN MAP 28: MAP NOTES SUBREGION 6: LOWER SALINAS VALLEY [CONTINUED] SUPPLEMENTAL NOTES Salinas Valley. Encourage reclamation of wastewater for irri- Urban Growth. Several Plan policies recognize the need for gation and groundwater recharge. protecting resource areas on the edges of growing cities. By concentrating development where services are available, mea- suring the economic viability of agricultural areas on the urban fringe, and guiding divisions of land according to environmen- tal criteria, the subregional planning Drocess will enable a fair- ly precise determination of the urban-rural boundary, as well as designation of appropriate areas for growth or intensifica- tion. The growth issue is particularly critical in the fertile coastal valleys of the Salinas and Pajaro Rivers. As the agricultural economies of Salinas and Watsonville thrive, the cities threat- en to sprawl into the farmlands around them. Such sprawl would not only reduce the open space and economic base of these communities, but would endanger productive resources of national importance. In the lower Salinas Valley, both the Salinas and Castroville General Plans recognize and respect the-value of the agricultural resource by directing growth away from prime lands. 346 ff a~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~------ :77=__ _ _ _ _ __ _ _ _ -os _ _ _ _~~ ~ ~ ~ ~ ~ ~ ~~~~~~~~ D e p t h _ cuv e at 1 0fat hmine ______ __- -~~ ~ iqp PLAN MAP 29: MAP NOTES SUBREGION 8: BIG SUR COAST SUPPLEMENTAL NOTES Big Sur Highway Special Study Area. Retain the unique recre- Coastal Access. Increasing public access to the coast is one of ational driving experience by keeping Highway 1 a two-lane the principal goals of the Plan. But to increase access while road, controlling development along it, and protecting the adequately protecting resources requires careful management. scenic viewshed. Consider establishing a parkway from Point Lobos State Reserve provides a successful illustration. Carmel River to Highway 46 in Cambria. At Pfeiffer Beach, on the other hand, uncontrolled auto access Notley's Landing. Acquire 100 acres adjacent to the sea otter crowds the narrow lane, degrades a once-quiet redwood refuge for preservation of classic scenic vista and historic forest, and destroys solitude along an unspoiled shoreline. features. The traditional response to excess recreational traffic is to build a higher-capacity road, a bigger parking lot, etc. How- Little Sur-Point Sur. Acquire 800 acres of beaches, dunes, and ever, in the long run a greater benefit might be obtained by wetland for landscape preservation and recreation consistent changing the mode of access. with the protection of the resources. One option at Pfeiffer Beach would be to convert Sycamore Pico Blanco. Add 640-2,800 acres, including landmark peak, Canyon Road to a high quality bicycle, horse, and foot corri- virgin redwood forest, and deep gorge, to Los Padres National dor. Not only would it cost less to implement, but visitor- Forest. resident conflicts could be reduced as well. A trailhead could be provided at the existing Forest Service Highway 1 parking Sycamore Canyon. Protect scenic corridor. (See the Supple- area or Pfeiffer-Big Sur State Park, with an underpass beneath mental Notes on this page) the highway. The result would be much like the highly praised Bear Valley Trail at Point Reyes National Seashore, where an existing coastal access road was closed to non-residential traffic; many more people (instead of cars) can now use the SUBREGION 10: CENTRAL COAST OCEAN AREA route, resources are better protected, and getting there is [CONTINUEDI more fun. California Sea Otter Refuge. Protect pristine natural environ- ment through ASBS designation and avoidance of adverse impacts. Bay and Ocean Areas. Retain and expand oil drilling prohibi- tion zone. kY t l i'.E 348 -No L~~~~~~~~_ itgn u r RlI Little SurRie Point Suir -____ Coast Guar~ -__I Rig Stir aie .Andrew'. Mlolera Sta Par 1k 0feiffera * ~~~~~~Sycamore Cnon. -. .-n --Z Julia Pfeiffer Burns State P- Scale,15,0 Cotinterval 500' 4d Miles: " - 72 DePth cuvsa 0-fathom interval PLAN MAP 30: MAP NOTES SUBREGION 8: BUG SUR COAST [CONTINUED] SUPPLEMENTAL NOTES Los Padres National Forest. Recommend that Congress ap- Watershed Management. The concept of watershed manage- prove 20,000 acres proposed for addition to the National For- ment-treating areas with common drainage as planning est. units-is a fundamental principle of the Plan. Several of Cali- fornia's coastal watersheds are fairly small, are contained en- tirely within coastal counties, and help to define the limits of the coastal zone. Other, more extensive watersheds contrib- ute most beach sand supplies, provide spawning grounds for anadromous fish, supply much of the water for domestic use by coastal residents, and create a hydraulic gradient that keeps coastal groundwaters from becoming saline. Some develop- ments in upper watershed areas, outside coastal jurisdictions, could pollute coastal waters or otherwise adversely affect ef- forts to protect or improve environmental quality in the coastal zone. Water is scarce in many parts of the Central Coast. Human settlements and natural habitats compete for and adapt to their particular water supplies. A watershed management plan could determine optimum supplies for all purposes, both from sur- face and groundwater sources. Water quality maintenance is a vital part of watershed manage- ment. A cooperative effort among local, State and Federal agencies is needed so that policies encouraging reclamation of waste waters, protection of enclosed waters for recreation and wildlife, improvement of water quality in harbors, estuaries, and the open ocean can be implemented. Developments in the watershed, such as logging, paving, grad- ing, and dams, may individually and cumulatively affect ero- sion of the land and the turbidity and sediment load of the re- ceiving waters. Only by examining all such activities through- out a watershed can their impacts be effectively assessed and mitigated. The Carmel Valley is an example of such a coastal watershed. Many resources and uses, both directly and indirectly related to the shoreline, are affected by development of its land and water resources. MOWITE.RE-' PENINSULA adr_ _ _ _ _ Scale 1-125.000 Contour interval 500' Dthcurves at 100- fathom interval PLAN MAP 31: MAP NOTES SUBREGION 8: BIG SUR COAST [CONTINUED] SUPPLEMENTAL NOTES Big Sur Highway Special Study Area. Retain the unique recre- Federal Role in Coastal Land Management. California's coast ational driving experience by keeping Highway 1 a two-lane is the nation's shoreline. Accordingly, the California Depart- road, controlling development along it, and protecting the ment of Parks and Recreation has declared: "The protection of scenic viewshed. Consider establishing a parkway from Car- natural features of national significance... is the responsibility mel River to Highway 46 in Cambria. of the federal government..." Although Coastal Commission jurisdiction is limited to non-federal lands, several current pro- Los Padres National Forest. Recommend that Congress ap- posals-could actually reduce Plan implementation costs. prove 20,000 acres proposed for addition to the National For- est. The largest federal resource area in the California coastal zone is Los Padres National Forest; management concepts are oriented to multiple use. One bill before Congress would au- SUBREGION 10: CENTRAL COAST OCEAN AREA thorize the addition of some 18 miles of the Big Sur coast, in- [CONTINUED] cluding critical viewsheds along Highway 1 enjoyed by an average of 1.4 million visitors annually. This proposal is only California Sea Otter Refuge. Protect pristine natural environ- part of the U.S. Forest Service's 164,000-acre Big Sur Coastal ment through ASBS designation and avoidance of adverse Planning Unit. Other involved agencies include the U.S. Fish impacts. and Wildlife Service, responsible for Salinas Lagoon National Wildlife Refuge, and the National Park Service, now beginning Bay and Ocean Areas. Retain and expand oil drilling prohibi- an ambitious study covering an estimated 220,000 acres along tion zone. 65 miles of shoreline between San Francisco and Santa Cruz. Legislation recently introduced could result in the addition of at least part of this acreage to Golden Gate National Recrea- tion Area. Modes of acquisition and management available to federal re- source management agencies differ from those open to the state. For instance, even though National Forest boundaries may be extended, included private lands would not be sub- ject to condemnation. Also, unlike the state, 25 per cent of collected revenues are returned to the county of origin. Large d roadless areas have been designated as wilderness, entry and fire permits required, and forest closures imposed during periods of severe fire danger. Recent disastrous fires illus- trate the need for a broader application of such authority on the Big Sur coast and Carmel River watershed. In the National Park System, legislatively established citizen advisory committees commonly play important roles in plan- ning and management. Great flexibility can be exercised in preserving existing open space and residential uses through life estates, various resource easements or purchase-lease- back arrangements, as at Point Reyes National Seashore. Strong new policies will limit recreational use of fragile scenic and habitat areas, and public transit with stops only at des- ignated locations is being favored over the private automobile for access. Thus the alternative of a National Seashore pre- serve on the Big Sur coast or the Channel Islands merits seri- ous study. Such legislation may be particularly welcome where local and state taxpayers now must bear the entire burden of protecting and maintaining areas which are actually of national significance and receive visitors from all over the nation. 0I * c % O &~~~~~~ Pt. Rhyndi< Kilometers& I J~~j Scale 1:125,000 Contour interval 500 r4N Miles: frL.17 2 qrUSCp Depth curves at 100- fathom interval Cap San Martin ~ PLAN MAP 32: MAP NOTES SUBREGION 8: BIG SUR COAST [CONTINUED] SUPPLEMENTAL NOTES Big Sur Highway Special Study Area. See Map Notes for Plan Coastal Viewsheds and Scenic Roads. The Plan designates Map 31. those areas in public view (from the shoreline, coastal recrea- tionaJl areas, and coastal roads) as the coastal viewshed and sets forth design guidelines that will help to protect the scenic SUBREGION 10: CENTRAL COAST OCEAN AREA quality of the viewshed. The Plan also calls for maintenance and enhancement of scenic routes along coastal roads. California Sea Otter Refuge. Protect pristine natural environ- ment through ASBS designation and avoidance of adverse Some coastal roads are not yet signed, maintained, or official- impacts. ly recognized for their scenic qualities. The Plan recommends designating and improving these roads, wherever possible, as Bay and Ocean Areas: Retain and expand oil drilling prohibi- Scenic Highways or Parkways. Such official recognition car- tion zone. ries the responsibility to establish viewshed maintenance pro- grams and adequate visitor facilities such as turnouts. 354 Map .32 * ~~~~~~~~~~~~'qenral 0~~1 CENTRAL COAST REGION SELECTED MAPPING SOURCES PRODUCTIVE RESOURCE AREAS Aerial Photography: September26,1973; altitude5,000 ft., Flight 6, NASA. September 27, 1973; altitude 5,000 ft., Flight 41 and 40, NASA. Atlas of Urban and Regional Changes. U.S. Geological Survey, 1972. Conservation/Open Space Element, Monterey County General Plan. Monterey County Planning Department, 1974. Cultivated Land (maps), Real Estate Atlas for Santa Cruz and Monterey Counties. Real Estate Data Inc., 1974. General Vegetation Map for San Mateo County. Forest Resources Committee, San Mateo County Planning Department, 1971. Grazing maps, Tri-County Study. Agricultural Extension Service, University of California, 1972. Mine and Mineral Resources of Monterey County. Division of Mines and Geology. Open Space and Conservation Element. San Mateo County Planning Depart- ment, 1972. Parks, Recreation and Open Space Plan. Santa Cruz County Planning Depart- ment, 1974. Regional Ocean Coastline Plan. Association of Bay Area Governments, prepared by Sedway/Cooke, 1972. Resource Production Maps, San Mateo Coast Corridor Evaluation Study. Metro- politan Transportation Commission and Association of Bay Area Governments, 1975. Soil Survey for San Mateo, Santa Cruz, and Monterey Counties. U.S. Soil Con- servation Service, 1974. The Physical Setting of San Mateo County. San Mateo County Planning Depart- ment, 1972. TrI-County Soil Capability Maps, Tri-County Coastline Study. SedwaylCooke, 1972. HABITAT AREAS Coastal Marine Resources. Association of Bay Area Governments, 1972. Significant Marine Habitats (Work Sheets). California Department of Fish and Game, 1975. Urban Core Study maps. U.S. Geological Survey, 1972. RECREATION-DEVELOPED AREAS-PUBLIC OWNERSHIP Los Padres National Forest Maps. U.S. Department of Agriculture, 1969. San Mateo County State Park Boundary Maps. San Mateo County Parks and Rec- reation Department, 1972. Various local, State, and Federal land use maps. 356 __ ___4O~~~~~e~gTRAI~~~~7COAS~tRErO _ __ __ 17 _ _ __ _IDEX44A 0 ~~ ~ ~ ~ ~ ~ a Mi g u e _ __ Morro Bay _ SA*UIIS-G~"Ana __p _ ~~~~~~~~~San Niguela I. mile~~~~~~~~~~~~~~~~~~sat Barbara I. o 12 24 3 PLAN MAP 33: MAP NOTES SUBREGION 1: SAN SIMEON-CAMBRIA SUPPLEMENTAL NOTES Monterey County Line to Cayucos Special Study Area. Resolve Anadromous Fish Streams. San Carpoforo Creek, Arroyo de la conflicts between agricultural uses (primarily grazing) and the Cruz, Little Pico Creek, and Pico Creek. residential and recreational uses of Cambria, San Simeon, and Highway 1. Establish a clear demarcation between agricultural Wetlands. San Carpoforo, Arroyo de la Cruz, and Pico Creek. uses and the public recreational uses along the coastline. Locate coastal trails so that they will not interfere with agricul- tural use or cause environmental degradation. Monterey County Line to Cambria. Maintain as productive open space and scenic area; all development must be compat- ible with the productive agricultural uses and scenic char- acter of the area. Highway 1. Maintain as rural two-lane road north of Cayucos to the Monterey County line. Rocky Butte Botanical Area. Protect area that includes rare and endangered plant species (including local endemic, dis- junct, and relic species). Arroyo de La Cruz. Maintain freshwater marsh, anadromous fish stream, adjacent uplands and rare and endemic species. Piedras Blancas. Protect the freshwater marsh and sand dune area as a rare and endangered species range and as a highly scenic area. San Simeon. Protect as a community of historic significance. * Ragged Point * __ I 4 lb lb I I � � 3 ___ __ ______ � * 4 Coast Guard __ ____ 4 ___ I Reservation ___ I 4 * Point Piedras Blancas C 4$% _ _ I _____ * _ * 4% 4 I 4 San Simeon 4 4 C- C; ___ 44 (Si 4 4% 4 444 San Simeon State ach Ca. 4 444 44 lbI I I I 1k lb I 4 4 44 4 4 Scale 1:125,000 Contour interval 500 4 44 Depth curves at 100-fathom interval 44 444 PLAN MAP 34: MAP NOTES SUBREGION 1: SAN SIMEON-CAMBRIA (CONTINUED) Monterey County Line to Cayucos Special Study Area: Resolve conflicts between agricultural uses (primarily grazing) and the residential and recreational uses of Cambria, San Simeon, and Highway 1. Establish a clear demarcation between agricultural uses and the public recreational uses along the coastline. Lo- cate coastal trails so that they will not Interfere with agricul- tural use or cause environmental degradation. Monterey County Line to Cambria. Maintain as productive open space and scenic area; all development must be com- patible with the productive agricultural uses and scenic char- acter of the area. San Simeon Creek. Protect the estuary from overuse from ad- jacent State Park; the watershed includes coastal grasslands and Monterey-pine forest (a restricted natural community). Cambria Pines. Preserve as one of the last native Monterey- pine forests (pinus radiata) found In the world (although the Monterey pine is used throughout the world as a timber pine) and as a highly scenic area. Cambria. Protect and maintain the rural-town atmosphere of the community with developments compatible in size and character. Highway 1. Maintain as rural two-lane road north of Cayucos to the Monterey County line. SUPPLEMENTAL DATA Anadromous Fish Streams. San Simeon Greek, Santa Rosa Creek, and Villa Creek. Wetlands. San Si meon and Santa Rosa Creek Estuaries. 360 _____ __ CPines Mountain Point Estero Kilometers: 1 Scale 1.125,0OO oourn itrval500 Depth curves at10 a neVal PLAN MAP 35: MAP NOTES SUBREGION 2: ESTERO/MORRO BAY SUPPLEMENTAL NOTES Cayucos. Maintain small beach-community atmosphere by de- Anadromous Fish Streams. Toro Creek, Morro Creek, Chorro veloping within the size and scale of the existing town. Creek, and Los Osos Creek. Estero Bay. Maintain the productive offshore fisheries. Morro Bay. Preserve as an estuary of statewide significance (listed as one of the top 10 priority wetlands in the state by the California Department of Fish and Game and the U.S. Bureau of Sport Fisheries and Wildlife). Recommendations for the estuary include (1) support of the Morro Bay inter-government- al watershed study; (2) creation of an ecological reserve of lands within and around the bay; and (3) public acquisition of privately held wetlands and the perimeter of the bay, including a 50-acre wetland area as an addition to the existing State Park (a State Department of Fish and Game proposal) and 90-100 acres of scattered parcels between Morro Bay and Montana de Oro State Parks as buffer areas to protect the bay and upland areas for general recreational use. Control siltation through careful monitoring of sand inflow from littoral drift and the upland watershed. Morro Rock Nesting Site. Protect as one of the few nesting sites of the peregrine falcon, an endangered species. Fairbanks Point. Protect as a specialized wildlife habitat and an important heronry. Morro Bay Watershed Special Study Area. Using the Morro Bay Watershed Study to establish primary policies, develop a sub- regional plan which balances present and future land uses with available resources such as water, waste disposal, and avail- able land. Primary objectives will be the preservation or en- hancement of the Morro Bay estuary, regulation of land uses within the watershed that ensure this objective, protection of the existing recreational resources from overuse, and balan- cing the growth rate so that these resources will not be nega- tively impacted. Warden and Eto Lakes. Preserve as a freshwater marsh habitat and an area for migratory birds. Baywood Park-Los Osos. Maintain character of the communi- ty by conserving the natural vegetation, in particular the pygmy oak groves. Monitor the groundwater quality to assure no contamination of Morro Bay from septic systems. Include Sweet Springs freshwater marsh and the Cathedrals (land- mark trees) as part of Morro Bay buffer area acquisitions. Pro- tect the highly visible landmark trees south of Sunset Terrace, east of Pecho Road, and south of Los Osos Valley Road. Pro- vide a buffer zone between developed areas and sensitive habi- tat areas such as Morro Bay, the pygmy oaks, and rare and en- dangered species. Montana de Oro State Park. Expand to Include Hazard Canyon, which contains a rare and endangered plant species and Morro Bay kangaroo rat habitat (a rare and endangered species). Protect the Bishop-pine forest adjacent to Coon Creek; explore feasibility of eventual acquisition. Point Buchon to Point San Luis. Protect seal rookeries. 362 ____ ~~~~~~~~~~~~~ap C~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ s ~ ~ ~ ~ _ a t e Beac _ _ 0~~~~~~~~~~~~~~~~~~~~t Be~~~~~~~ h --- --- I~~~~~~~~~~~~~~~~~ ---- -- -- - -- cIL - ------ - _-- LUMorro By~y-__ ~-__ - _ / Sout Bay Kilometers: Point ~~~~~~~~~~~~~~~~~~~~scale 1:125,000Cotuinevl50 n~ti~ Hi ~ I Depth curves at 0-ahmitra PLAN MAP 36: MAP NOTES SUBREGION 2: ESTERO/MORRO BAY (CONTINUED) SUPPLEMENTAL NOTES Montana de Ore to Avila Beach. Establish a controlled access Anadromous Fish Streams. Pismo Creek, Arroyo Grande coastal hiking trail. Creek, and San Luis Obispo Creek and tributaries. Diablo Canyon. Study long term effects of thermal outfall on Wetlands. Arroyo Grande Creek Estuary, Oceano Lagoon, San the marine environment. Maintain the upper canyon as a repre- Luis Obispo Creek Estuary, Pismo Lake, and Dune Lakes (in- sentative area of mixed evergreen forest. cluding Black Lake). SUBREGION 3: SAN LUIS BAY AND PISMO DUNES Port San Luls. Expand facilities to serve recreational and com- mercial fishing. Avila Beach. Maintain small beach-community atmosphere by developing consistent with the size and character of the exist- ing town. Mallagh Landing. Acquire 10 acres of bluffs and beaches for water recreation and guaranteed access to the beach. Dinosaur Caves. Acquire 2-3 acres in the City of Pismo Beach for preservation of bluffs and sea caves. Pismo Lake and Oceano Lagoon. Protect and restore the fresh- water marshes of the Meadow Creek drainage. Acquire 20 acres of the marsh between Pismo Beach and Grover City for wetland preservation and add the five-acre marsh at Oceano Lagoon to Pismo State Beach for preservation. Plsmo-Nipomo Dunes. Protect stabilized dune vegetation and natural area, retain existing recreational uses and support ad- ditions to Pismo State Beach called for in the 1974 Park Bond Program. Dune Lakes. Preserve the unique freshwater riparian habitats of the lakes and Black Lake Canyon. Support the private own- erships' maintenance and preservation of the lakes and sur- rounding habitat. 364 Diablo Canon'___ e~~~~~~~~~~~~~C A U _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ ~ ~ ~ V W ~ ~ = ~~~~Pi n S a Lu U*~~~~~Pe ______iso I~~~~~~a L u s O b so _aev 0MlahLnin ~~~~~~Dnsur ae U~~~~~~~im Beac *~~~~~cacr A I ~~~~~~~~~~~~------- Pimo4-1oro PIS Ki metrs ~~~~~~~~~~~~~~~~~~~~~~Sae11600Cnorintra ~~~~~~~~~~~~~~~~~~~~~~Mile:l MJi1 ~~~~~~~~~~~~~~~~~~~~~~~ptcurea10fthmierl PLAN MAP 37: MAP NOTES SUBREGION 3: SAN LUIS BAY/PISMO DUNES (CONTINUED) SUPPLEMENTAL NOTES Oso Fiaco Lake. Protect the lakes and adjacent habitat areas Wetlands. San Antonio Creek and Santa Marla River. from overuse through on-site control and control of drainage water quality. Santa Marla Dunes, Pismo Beach. Add this dune area to the existing State Park for Intensive recreational use and the devel- opment of support facilities. Point Sal (Guadalupe Dunes). Expand Point Sal State Beach to Include the Guadalupe Dunes north to the Santa Marla River, and Increase the area available for preservation and recreation- al use. SUBREGION 4: NORTH SANTA BARBARA COUNTY Vandenberg Dunes. Protect the dune vegetation and adjacent uplands. 366 I Pismo Beach a State Park. _ _____ * I _ ~~~~~~~~South~ Centra *Santa Maria Dues ____________ I Gu daup Due Foil,_ SC U II~~ ~ ~ ~ ~~~~~~~~ L. e ~~~~~~StateA Be Ni I _ _ _ _ _ _ _ _ _ I -- __ _ _ ___ ___ __4 16 N Gu~~~~Adap I~~~~A Kiloetrs U- ____ Sae12OO)Cnoin e v mo MiGudlup ues : I_______________ Det uvsa 0~-mintra PLAN MAP 38: MAP NOTES SUBREGION 4: NORTH SANTA BARBARA COUNTY [CONTINUED] Santa Ynez River Estuary. Protect and maintain the river mouth estuary consistent with the adjacent recreational use. Surf Dunes. Protect dunes and adjacent upland areas as rela- tively undisturbed natural areas. Surf to Jalama. Investigate the feasibility, within the con- straints of Vandenberg Air Force Base, of establishing a con- trolled access footpath. Locate and design coastal trails so that they will not interfere with agricultural use or cause envi- ronmental degradation. Vandenberg Air Force Base. Support efforts to protect rare or unique plant and animal species such as remnant Bishop-pine stands on Tranquillon Mountain, the coastal dune and strand, coastal salt marsh, and the intertidal zone. 368 PurismaPatf- __So h N 4~~~~~at 4~~~~~~ie Eatuary 4 ____~~~~~~~~~~~~~Lmo 4 ___ __~00 4~~~~~~~~~~rn nMu 4lin A_ _ _ _ __11 Ow_ _ _ Depthcrives OC~ rr interary l __ _ _ PLAN MAP 39: MAP NOTES SUBREGION 4: NORTH SANTA BARBARA COUNTY SUPPLEMENTAL NOTES (CONTINUED) Anadromous Fish Streams. Jalama Creek and Santa Anita Jalama to Gaviota. investigate establishment of a controlled- Creek. access footpath. Locate and design coastal trails so that they will not interfere with agricultural use or cause environmental degradation. Jalama Creek. Protect the creek and adjacent watershed to pre- serve the anadromous fish resources, the remnant southern oak woodland, and the highly scenic character. Do not expand the present two-lane road along the creek. South Coast Intertidal Preserve. Protect the intertidal zone, in- cluding extensive kelp beds, from overuse and maintain the high level of productivity from Point Conception to EIlwood. 370 Point~~U Cocpt - ast~I* GadRsrabtio *~~~~~~~~~~~C- Bay lift _ _ _ 9 ~ ~ ~ ~ ~ ~~ aaa_ O ~~ =-~ _ sn_ __ _ _ * Po~~~INtonpto ________ * _ _ _ _ _RA KilometeGurdRs:rain- ScCooaye,2,0 -otuit -50 Miles:~~~~~~~~ _ _ _ ro I 2 Dethcuve a 00atomAra PLAN MAP 40: MAP NOTES SUBREGION 4: NORTH SANTA BARBARA COUNTY SUPPLEMENTAL NOTES (CONTINUED) Anadromous Fish Streams. Gaviota Creek and Tecolote Gaviota to Isla Vista. Develop coastal hiking and bicycle trail Creek. primarily along the bluffs. Gavlota State Beach Park. Increase available camping and pro- vide a hostel on the coastal terrace west of the existing camp- ground. Expand the State Park downcoast along the bluff to preserve the adjacent resource areas and to expand the park's recreational use. El Capitan to Refugio State Beach. Acquire the bluff and beach down-coast from El Capitan and upcoast from Refugio State Beach for general recreation and improved beach access. South Coast Intertidal Preserve. Protect the intertidal zone, in- cluding extensive kelp beds, from overuse and maintain the high level of productivity from Point Conception to Ellwood. Haskell's Beach. Acquire Ellwood pier and upland support areas eastward to Tecolote Creek to expand opportunities for fishing and other water-related recreation. Haskell's Beach to Hope Ranch. Acquire accessways along the blufftops for public access to the beach. Santa Barbara Channel Special Study Area. See Map Notes for Plan Map 45. 372 W ~ ~~ _ *~ ~ ~ ~~~~~~~~ait CreIekp 0~~~~~~~~~~~~t Capta stt'Ua z~~~~~ m~~~~ a S~alel:125,000 Cot rravat Cree Miles; 2~~~~~~~ De h curves I - interva Elwo Pie Haskel's.Sea eri-C PLAN MAP 41: MAP NOTES SUBREGION 5: SOUTH SANTA BARBARA SUPPLEMENTAL NOTES COUNTY Wetlands. Devereux Slough, Goleta Slough, Campus Lagoon, Santa Barbara Channel Area. See Map Notes for Plan Map 45. and Santa Barbara City Bird Refuge. Haskell's Beach to Hope Ranch. Acquire accessways along the blufftops for public access to the beach. Acquire and restore Goleta Slough (see below). Ellwood. Protect Devereux Creek drainage and major eucalyp- tus groves south of Coronado Drive and Hollister Avenue. Devereux Slough. Continue to protect the slough and dunes under the University of California's Natural Land and Water Re- serve System. Establish an education and information program to inform the public of the fragility of the slough and dune eco- systems. Isla Vista. Acquire and develop remaining blufftop lots into community parks in support of the Parks and Recreation Dis- trict. Goleta Slough. Restore and preserve all remaining areas of the slough and adjacent freshwater marshes. More Mesa. Establish public access to and along the blufftop. Preserve as much grassland habitat as feasible. Wilcox Property (Santa Barbara). Acquire this 66-acre blufftop adjacent to Arroyo Burro State Beach for low-intensity use. Santa Barbara. Support increased public recreational use of the Harbor and adjacent Stearns Wharf. Provide public transit along the beach front from the downtown commercial areas and peripheral automobile parking lots. Hammonds Meadow. Acquire this 22-acre beach for surfing and general recreation. Summerland. Maintain community character by developing at the same size and scale and within the established urbanized area. 374 I Coal Oil Point Z ~~I Devereux Slough _ * Campus Lgo _ Goleta Point _ G~eta Beach County Park * ~More Mesa co 4* Hope Ranch M__,It "s l Arroyo Burro Beach ___ __ *>_ * Wilcox Prop(erty I~~~~~~~~~~~~~~~~~~~~~~~ ubePa Soein Par_ _ I _______~A U~~~naBabr i I~~ ~ _ _ Refug U~ ~ ~~~otct I~ ~ ~ ~ ~ ~~~~~~~~~~~~' > amodMao I hrliePr z I _ _ _ _ a umrIn r. I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~D, ~~~~~~~~~~~~~~~~~~II t I~~~~~~~~~~~~~~~~Sae:2,0 Co _rnevl ~~~~~~~~~~~~~~~~~~~ils 2 ~~~~~~~~~~~~~~~~~~~e~ ue mintra PLAN MAP 42: MAP NOTES SUBREGION 5: SOUTH SANTA BARBARA COUNTY SUPPLEMENTAL NOTES (CONTINUED) Anadromous Fish Stream. Ventura River. Santa Barbara Channel Area. See Map Notes for Plan Map 45. Wetlands. El Estero (Carpinteria) and Ventura River (first and Carpinteria Valley Special Study Area. Prepare a subregional second mouths). plan with the primary objectives to (1) resolve the conflict of competing uses of prime agricultural lands between urban, ag- riculture, and greenhouses; (2) determine the total available water supply within the coastal watershed; and (3) establish a system of preservation and restoration of the El Estero (Car- pinteria Slough). El Estero. Preserve remaining large acreages of relatively un- disturbed wetland, and correct degradation from siltation and poor water circulation. Acquire this privately owned wetland of statewide significance for preservation and restoration. Allow compatible low-intensity uses adjacent to the wetland to pro- vide some protection from encroachment. Carpinteria Intertidal Reef. Preserve and protect the fragile reef, the most diverse intertidal area in Santa Barbara County south of Point Arguello. While access to the rocky beach area should be restricted or difficult, improve access to and along the blufftop. SUBREGION 6: RINCON Rincon Beach Communities. Allow development of existing subdivided lots consistent with the scale of the existing houses in La Conchita, Mussel Shoals, Seacliff, Faria, and Solimar Beach. Ventura River. Manage, protect, and restore the fishery and en- courage water-related recreation by improving water quality through control of upstream discharges. 376 4~~~7 z '4 _~~til 44~~~~~~~ Eseo-----_ o 4~~ Crpnei Stt Be c :-:__~~- 4~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~-.1 Capn4aIntrTdlRe lb~ ~ ~ ~~~l- ~~~3: CarintriaState Beach K~~rilote~aIter-Tdlsef ;__ Scae -12,0 0 Cnturi Miles- _ _ _ _ Depth~~ c u v eer__tr ~~~Ste B e cow_ _ a P t Q" PLAN MAP 43: MAP NOTES SUBREGION 7: VENTURA AND OXNARD SUPPLEMENTAL NOTES PLAIN Wetlands. Allesandro Lagoon, Santa Clara River Estuary, Mc- Santa Barbara Channel Area. See Map Notes for Plan Map 45. Grath Lake, Mugu Lagoon, and wetlands adjacent to Mugu Lagoon. Ventura-Oxnard Plain Special Study Area. Resolve conflicts between projected urban growth and prime agricultural land. The primary objectives will be to (1) determine a reasonable amount of additional development necessary for the logical completion of existing neighborhoods within the cities of Ox- nard and Ventura; (2) ensure that all other prime agricultural lands will remain in agriculture; and (3) develop further pro- grams for tax equity for agricultural lands. Preserve two agri- cultural areas in productive use through acquisition of scenic easements, development rights, or a sale-leaseback program developed in conjunction with local agencies. Ventura River Estuaries and Dunes. Manage and restore the wetlands; develop a total management plan for low intensity recreation for the dunes and wetlands complex south of High- way 101. Ventura Marina. Provide public access and recreation, in par- ticular on the parcels in the area known as the "peninsula." The Port District is in the process of reassessing its master plan to reflect these issues. Plerpont Beach Community. Maintain the beach community by developing within the existing size and scale. The problem of the lack of public parking near and adjacent to the public beach should be addressed by the City of Ventura. Santa Clara River and Estuary. Protect the water quality by controlling surface water discharges during periods of low flow. McGrath State Beach. Acquire McGrath Lake, a 1 0-acre fresh- water marsh, for preservation and limited recreation. Mandalay Beach Dunes. Preserve one of the last remaining dunes of regional significance by acquiring 40 acres of dune and beach area for preservation and recreational use. Oxnard Shores. Develop a joint erosion control program with the in-progress City-County-Corps of Engineers program. In the interim, control beachfront development until stabilization of the beach and protection of the public investment can be as- sured. Silver Strand and Hollywood Beaches. Development shall be consistent with the size and scale of the beach communities. U.S. Naval Battalion Construction Center. Utilize the existing port to the maximum practical capacity. Port Hueneme. Revise beachfront redevelopment plan to em- phasize public recreational uses and access. Ormond Beach. Provide public access to and along the beach but provide low-intensity recreation consistent with dune and habitat preservation. Mugu Lagoon. Protect and restore water quality by improving control of upstream discharges of urban and agricultural wastewater. 378 Buenaventura~- State Beach - Pierpont ec' __ Community _ _ ____ Ventura Marina _ __ *McGrath States __ _______ _ __ _ Beachr~~- ~~OxadShoe -_ ---~-- - --- - - _ ----- Sla~~~~~~~Omnday Beach- -wE- -____ S _____ ____ ____ __ M ilver Stan Det cuvsat1 0 fto itra PLAN MAP 44: MAP NOTES SUBREGION 8: POINT MUGU SOUTH Point Mugu to the Los Angeles County Line. Protect the natur-0 al resource values, extensive kelp beds, nearshore rocks, and the good water quality of this offshore area, designated by the State Water Resource Control Board as an Area of Special Bio- logical Significance. Point Mugu State Park. Expand State Park to preserve the marsh and uplands and to develop recreational support areas. Develop low-intensity recreation consistent with environmen- tal constraints. Leo Carrillo State Park. Expand the park by 49 acres in Ventura County and south of Highway 1 to provide additional beach and blufftop area for access and general recreation. 380 pie: ai~aIominteMg Kilttmecurvs~.0 otu~~evl PLAN MAP 45: MAP NOTES SUBREGION 9: SANTA BARBARA CHANNEL AND CHANNEL ISLANDS Santa Barbara Channel Special Study Area. Study the Santa Barbara Channel and the adjacent onshore areas, an both the islands and the mainland, to determine (1) the offshore and on- shore Impacts of State and/Ior Federal Outer Continental Shelf (OCS) oil and gas development; (2) the impacts on the social and economic structure of the South Coast area of Santa Bar- bara County (Ellwood to Carpinteria); (3) the cumulative im- pact of all existing and proposed energy production and distri- bution facilities (such as two proposed liquefied natural gas facilities, a proposed oil and gas separation facility, and additional oil production platforms on Federal OCS lands); and (4) the impact and safety of increased tanker traffic within channel waters. Other study objectives will be estab- lished at the time the study is initiated. San Miguel Island. Preserve the offshore and onshore habitats in their presently undisturbed condition. Protect the sea lion rookeries and the nesting sites for the Northern Elephant Seal. 382 Map * tctt4h CenU'q! I * S * S V � * U * z a * -I U * U * 4 * * * * U U * 4 * 44 U 44 * __ S. 4 a ___ 4 U 4 I __ a ___________ U ___________ I I __ I ________ * __ cc U _ U * _ * _ * _ _ U __ U ___ ____ I _ _ 4 a _ __ At __________ At _____ At _ _ At � a ___ _ I * ____ At I ___ At. I _ At U At ____ AtAt I a I _ At U At I At At At#0 At .At.At I ." z At rn z At. *At - El At. U I U p � * __ U __ U 7 Kilometers: * Scale 1125.000 Contour interval 500' _______ U Males 2 - - Depth curves at 100- fathom interval 44 PLAN MAP 48: MAP NOTES SUBREGION 9: CHANNEL AND CHANNEL ISLANDS (CONTINUED) Santa Barbara Channel Area. See Map Notes for Plan Map 45. Santa Rosa Island. Preserve the island habitats which contain the Torrey pine and the rare island f ox. Manage the island grasslands for cattle grazing and endemic plants and animals through private ownership. 384 .~~~. ~Map A ~~South __________ntral . .... . . _ _ _ __ _ .~~~~~~: . % . . U *~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~. .-......_p Kilometers. . . . . ~ - . . 4 Scale~~ 142, Cnori Miles:~~~~_ _ _ Depth curves a_ _ _ Samg PLAN MAP 47: MAP NOTES SUBREGION 9: CHANNEL AND CHANNEL ISLANDS (CONTINUED) Santa Barbara Channel Area. See Map Notes for Plan Map 45. Santa Cruz Island. Preserve the Island habitat and Its diversity, including the Bishop pine. Manage the Island grasslands for grazing and the endemic plants and animals through private ownership. I %447 __ Soi 4 4 __ -ii IflTrU. 4 44 ___ 4444 ______ * * ___ * U * _ * _ * _ - N * _____ _ _ _ N _ __ N * __ __ _ N * _ z * * __ _ _ -H N ___ >1 N _ N N _ _ _ _ N N __ _ N a _ _ N I _ __ N I _ _ _ N N I _ _ N I _ I I __ __ __ U * _ I * __ _ I * ______ _ _ U * _ _ WI I _ WI I I _ _ >3 * _____ _ @1 _ >1 U I ____ _ � _ _ _ N U __ _ N � _ _ N a __ _ N I __ 4 * N I _ _ _ _ N I _ _ N N __ __ N N __ N * _ _ N I N N N I _ N I I I ____ _ I _ __ z * _ z __ m I I I I I 'N ___ 'N 4 44 __ 4 * _ 4 Scale 1125,000 Oorur 'N Miles I9a1Iin! 2 __ II I Depth curves at 100-f horn interval _____ _____ 'N I I * I 'N PLAN MAP 48: MAP NOTES SUBREGION 9: CHANNEL AND CHANNEL ISLANDS (CONTINUED) Santa Barbara Channel Area. See Map Notes for Plan Map 45. Santa Cruz Island. Preserve the Island habitat and Its diversity, Including the Bishop pine. Manage the Island grasslands for grazing and the endemic plants and animals through private ownership. Anacapa Island. Control public Impact on the offshore and on- shore habitats. Support continued controlled public access and limited development by the National Park Service for the National Monument. 388 1 U IL Map � ____ %Afl V ___ � _________________ K __________________ ___________________________ � _________ ___ _________ Sputh U ______ * ________ Cptral U -- U I __________ U I ____ U ____ rnrnm � U _____________ ________ U 2:z ________ U I U * N * __ __ a * a * > 4 S z 4 4 4 5 -4 4 5 t 4I OJ S * S a * * U .4 � * U * 'a * a a a I I a I I I * I * I I is � I N S * AT S s .t4naoapa Island � a I 5 C) .5 S I S -N I * A I z * I z * m * . r * * 4* Santa arbarn Channel S S 4 Island4-NtiOpaV Monument * 444 1 44 4 4 44 4 44 44 Kilometers: Scale 1.125000 Contour interval 500' Miles: 2 Depth curves at 100-fathom interval PLAN MAP 49: MAP NOTES SUBREGION 9: CHANNEL AND CHANNEL ISLANDS (CONTINUED) Santa Barbara Channel Area. See Map Notes for Plan Map 45. Santa Barbara and Son Nicholas Islands. Protect the endemicl species and habitats. 390 -.~~~~~~~* 49 * ~~~~~~South anaBarbara I/ ~~Santa Barbar Channel U~~~sad NainlMumt * ~~~Mn" 44~~Mf 4~~~~IO 44~~~~~~~~~~~~~~~O Kilometers:~4 Scal 115,00 Cntoui eervN44 Miles: 2 V'Awft44444444 Depth crves a 100- athom nterva SOUTH CENTRAL COAST REGION SELECTED MAP SOURCES PRODUCTIVE RESOURCE AREAS Aerial Photography: Color infrared and conventional color. April 4, 1974; 1:125,000, Flight No. 74-049, NASA. November 22,1974; 1:125,000, Flight No. 74-199, NASA. January 24, 1975; 1:62,500, Flight No. 75-006, NASA. UCSB Geo- graphy Remote Sensing Unit, Santa Barbara. Bulletin 150, Santa Barbara County. Division of Mines, 1950. Conservation Element - Santa Barbara County Comprehensive Plan. 1974. Regional Wildcat Map. Division of Oil and Gas, 1970. Santa Barbara County Farm Advisor's office miscellaneous maps. Soil Survey for Northern Santa Barbara Area. U.S. Soil Conservation Service, 1972. Soil Survey forSan Luis Obispo County (coastal section). Soil Conservation Service, 1974. Soil Survey for Southern Santa Barbara Area. U.S. Soil Conservation Service, 1970. Urban/Agriculture Land Use Maps. City of San Buenaventura - Department of Community Development, 1974. Ventura Area Soil Survey. U.S. Soil Conservation Service, 1970. Ventura County Open Space and Conservation Element. Ventura County Plan- ning Department, 1973. Water Quality Planning Project. Department of Fish and Game, 1972. HABITAT AREAS Inventory of Potential Natural Landmarks of Santa Barbara and Ventura Coun- ties. National Park Service, 1972. Pismo State Beach and Pismo Dunes. Department of Parks and Recreation, 1974. Priority Siting List. South Central Regional Coastal Commission staff, 1974. Water Quality Planning Report, Tasks 3 and 6. Department of Fish and Game, 1972. RECREATION-DEVELOPED AREAS-PUBLIC OWNERSHIP Land Use Maps. San Luis Obispo County Planning Department, 1974. Los Padres National Forest Recreation Maps. U.S. Department of Agriculture, 1969. Santa Barbara County Assessor's office. Ventura County Assessor's office. 392 _ _ ~~~~~~~~~~~~~~~~~~~INDEX MAP _ _ N - ~~~~~~~~~~~~~~~~~~~~i -- - ~- __~~~~~~~~~~~~~~~~~~~~1 ii- DEr~GO San Clemenite I. 0 ~~~~~~0 42 24 36 Kilometers LL.4 Scale - :1, 50O0 000 miles .0 12 24 PLAN MAP 50: MAP NOTES SUBREGION 1: MALIBU tween possible need for a community service center and the need to protect habitat and recreational resources of Malibu Los Angeles County Line to Sunset Boulevard. Give highest Lagoon and Creek. Consider establishing an interpretive priority to acquisition of vacant land, preferably in larger center adjacent to Malibu Lagoon. Restrict a sewer system than single-lot parcels, adjacent to the beach to coastal shelf properties east of the Civic Center, and pro- hibit new point source discharges. Pacific Coast Highway. Avoid widening the highway; give P ac ific Coas t Hig hway. Avoid wide ning the highway; give La Costa Beach West. Acquire five beachfront parcels total- ing 1.3 acres to improve beach access. (The nearest public Santa Monica Mountains. Designate as an area of high geo- access points are currently one mile in either direction.) logic risk; require stringent safety standards and minimize alteration of landforms. Discourage lateral road access through the mountains. Develop foot and bicycle trails as SUPPLEMENTAL NOTES part of State coastal trails system, linking mountain parks with each other and with the coast. Consider trams from Development. Maintain this subregion as non-urban with mountain parks to the beaches. priorities focused on open space, recreation, and agricul- Los Angeles County Line to Malibu Point. Establish marine ture. Prohibit growth-inducing projects such as dams, in- reserve and an underwater park. dustrial facilities, and shopping centers; limit expansion of public services. Protect natural watersheds from intensive Leo Carrillo State Beach. Use parking lots for recreational development; study the effect of streambed structures on vehicle camping in the winter. beach sand replenishment. Consider appropriate low- density residential use on the low rolling hills inland of Nicholas Canyon to Zuma Beach. Acquire selected parcels Pacific Coast Highway, and possibly very low-density use totaling 72 acres between Pacific Coast Highway and the on the higher hills, after full review of relevant Plan poli- beach for improved public access to the beach and develop- cies. Relate development to improved transit and the ment of needed support facilities. amount of parkland. Prohibit new private development on Nicholas Canyon County Park. Provide roadside rest and sandy beaches. Consider appropriate tourist commercial de- picnic site. velopment east of Point Dume. Cluster general commercial facilities inland of Pacific Coast Highway. Charmlee County Park. Provide for such recreation activi- ties as picnicking and camping. Access. Promote greater use of public transit for recreation- al and non-recreational trips; institute shuttle systems to Zuma Beach. Use parking lot for recreational vehicle camp- beaches from upland parking areas. Assure access from the ing in the winter. nearest public road to the shoreline at least every one-half mile, where priority public acquisitions are not proposed. Point Dume. Acquire this 37.7-acre blufftop site with com- Retain lands used for public or semi-public recreation in manding ocean views (an upland addition to Point Dume such use. State Beach) to provide day-use recreational facilities. Dume Cove Beach to Paradise Beach. Acquire this 19-acre Acquisition. Undertake a long-term program to acquire land beach and cove shoreline to preserve the marine habitat for coastal habitat, recreation, and view corridors, Including area. additional parcels between Nicholas Canyon and Zuma Beach, Escondido Creek to Latigo Shores, the Malibu Cove Paradise Beach to Escondido Beach. Acquire selected Colony Bluff, Las Tunas Beach, and Los Liones Canyon. parcels and the entrance road, parking lots, and beach area adjacent to the existing Paradise Cove pier to improve pub- lic access and provide needed recreational support facilities consistent with protection of the habitat value of the area. Paradise Cove. Increase mooring capacity by approximately 100 boats for overnight use as a harbor of refuge. Corral-Solstice State Beach West. Acquire an 11.6-acre strip of undeveloped beach front lots as an extension of the existing county-operated State Beach. Provide parking and camping landward of Pacific Coast Highway. Century Ranch State Park. Provide for recreational activi- ties such as picnicking and camping; connect by trail to the beach. Malibu Bluff. Acquire this 152-acre blufftop area with an outstanding coastal view for general recreational use and development of beach support facilities including inexpen- sive overnight lodgings. Malibu Lagoon. Acquire three parcels totaling 43.4 acres adjacent to Malibu Lagoon and Surf-rider Beach State Park to protect the significant habitat area and to expand and provide support area for the beach. An interagency land use plan should be prepared addressing the conflict be- 394 Leo Carrio _ 0 * State Beaih l 4 Nicholas Cany'_ al County Park - - _______ U ____ _____ * _ _ _ _ _ U~~ ~ ~ ~~~~~~tt ea r, * _ C~~~f I~~~~~~~al~ I~~~~~~~~~a I~~~~~~~~~~~~~~Pi I~~~~~~~~~~~S aCsaBahV: a Kiloees Scl12500CnarnevI0 Mils ______2 Dphurat10fahmintra PLAN MAP 51: MAP NOTES SUBREGION 1: MALIBU [CONTINUED] Ballona Creek Wetlands. Acquire this 350-acre degraded salt marsh area, a critical habitat for three endangered bird Las Tunas Beach. Monitor the effect of groin construction species, for restoration. to determine downdrift effect on Topanga Beach and up- drift on private residences. Consider long-term acquisition of 100 developed parcels. SUBREGION 3: PLAYA DEL REY TO EL Topanga Beach and Lower Topanga Canyon. Acquire this SEGUNDO 51.5-acre canyon and hill area to link Topanga Canyon State Park and Topanga State Beach and to serve as a multiple Playa del Rey to El Segundo. Preserve stable single-family use support area for beach users. Study the potential for removable breakwater to protect beach-launched boats in ing to higher densities. Maintain adequate buffer lands be- winter. tween residential areas and incompatible uses such as Los Pacific Palisades. Designate as an area of high geologic Angeles International Airport and heavy industrial facilities; risk;-development in this area should meet stringent safety promote recreation in'these buffer areas. Assure that any standards without major alteration of landforms. proposed airport expansion, development of major commer- cial or industrial facilities, or development of offshore petroleum is consistent with Plan policies and that any such permitted development is sited, designed, and operated to SUBREGION 2: SANTA MONICA, VENICE, minimize adverse environmental effects, particularly air, AND MARINA DEL REY noise, and water pollution. Playa del Rey. Preserve dune landforms and habitat. Con- Santa Monica to Marina del Rey. Increase beach and shore- sider possible long-term acquisition of development adja- line use south of the Santa Monica Freeway by developing cent to Del Rey Lagoon. a pedestrian and bike path system linking existing public beaches, upland parking, and Marina del Rey sites that are now public use areas or that may revert to public use in the future. Santa Monica. Concentrate high-density development in downtown Santa Monica to encourage mass transit im- provement. Consider possible long-term acquisition of pri- vate lands seaward of Palisades Beach Road. Ocean Park-Venice Peninsula. Encourage rehabilitation of older homes; recycle residential land uses to be compatible with neighborhood character and to maintain social divers- ity. Prohibit intensification of land uses in areas severely impacted by traffic congestion unless measures are under- taken to relieve the congestion; possibly relocate residential density from the Marina peninsula to the eastern portion of Marina del Rey. Venice Canals. Retain land bridge for bicycle and tram links; restrict to shallow dredging, if dredging is allowed at all; provide public walkways along the canals. Marina del Rey. Restore the original development concept of the Marina as a public recreation area, giving priority to public uses in second generation Marina development and providing free public access to all waterfront areas via con- tinuous public walkways. Encourage development of dry storage facilities for boats. Investigate the feasibility of an internal transit system, and site hotel-motel facilities to be easily served by such a system. Limit the amount and location of commercial office development, with the bulk of new office space planned for areas with better mass transit potential such as downtown Santa Monica and the Los Angeles International Airport area. Ballona Lagoon. Acquire this 28-acre site adjacent to Marina del Rey entrance channel and Ballona Lagoon as a view and water-related park and support area for the public beach on the Venice Peninsula. Provide pedestrian and bi- cycle routes adjacent to the lagoon; provide additional park- ing and open space, as feasible, on the west side of the lagoon. 396 _ ~~~~~~~~~~~~~~~~~~~~~~~~~~~~N M a.~~~~~~ Lagoo~~~~~~ 4toaCek eln; 4 __ _ _ _ _ _~~~~~~ic 4 S _ _ _ D e l _F Kilometers:_____ Scalel125,00 ConourntevaI0 r0%.Jr M"7 2____ Miles:~*_ _ Dethcuve a 10-faho iteva PLAN MAP 52: MAP NOTES SUBREGION 4: SOUTH BAY Portugese Bend Coast. Acquire approximately 50 acres ad- jacent to the recent 40-acre Los Angeles County acquisition Manhattan Beach to Torrance. Recycle and rehabilitate to preserve and protect critical marine habitats. housing at existing densities, retaining opportunities for social diversity. Prohibit intensification that would be in- compatible with community character or with the ability of SUBREGION 6: SAN PEDRO HARBOR AREA the transportation, water, and sewer systems to provide an adequate level of service. Do not permit development (pub- lic or private) to inhibit free access to the shoreline. Con- federally owned lands consisting of White's Point an centrate commercial uses in upland centers, incorporating Lower and Upper Reservation parce s (totaling about 300 Lower and Upper Reservation parcels (totaling about 300 pedestrian circulation and providing access links to the coast. Improve access from inland areas to increase use of multipe-use recreation areas. Tie with regional trail system and provide camping, bicycle, and hostel facili- beach areas as a major regional recreation asset. Develop trail system and provide camping and hostel fac ties. local transit and upland parking to relieve the pressure on Pacific Coast Highway and to connect shoreline facilities. Royal Palms. Consider possible long-term acquisition of Redondo Beach. Improve access to shoreline recreation and blufftop. tourist commercial facilities, including King Harbor; tie Point Fermin. Consider possible long-term acquisition of additional buildout to improved transit to and along the lands east and west of Point Fermin. shoreline. Protect existing low and moderate income hous- ing. Maintain stable single-family housing between Pacific Cabrillo Beach. Preserve and expand existing recreational Coast Highway and the beach from Pearl Street to the city areas, such as Cabrillo Beach and the Marine Museum, and boundary. link them by trails to other parts of the harbor and to the Palos Verdes Peninsula. Torrance Beach. Acquire eight blufftop parcels to extend the usable public beach area and to provide additional San Pedro. Preserve the unique character of San Pedro and picnic area. its major role as a recreational destination for low- income and minority group persons. Local plans should be updated and should take into account the community's close ties with the harbor and its residential/recreational use by low- SUBREGION 5: PALOS VERDES PENINSULA and moderate-income families. Channel additional commer- cial development into the downtown area. Palos Verdes Peninsula. In planning new residential or commercial development, provide increased recreational op- Los Angeles Harbor. Give priority for port expansion to portunities, assure maximum retention of open space and port-related industrial, energy, and shipping uses and to scenic qualities, protect and restore valuable habitats and tourist commercial and marina developments (encouraging productive resources (especially water quality and marine dry storage and other efficiency measures in marinas) in life), and avoid natural hazard areas (e.g., unstable coastal suitable harbor areas. Provide public access to the shoreline bluffs). Limit commercial uses to neighborhood and corm- and offer public boat tours of harbor activities where con- munity-serving unless a regional shopping center could be sistent with public health and safety, port operations, and adequately served by the public transportation system. Pro- security. Minimize the need for additional landfill or hibit major new employment centers, such as industry and dredging by requiring efficient use of existing land and service facilities, that would encourage significant popula- water areas. Link the harbor with Alamitos Bay by ferry. tion growth or traffic generation. Port Energy Facilities. Review tanker terminal proposals for Palos Verdes Drive West and South. Expand public shore- conformity with Plan policies (e.g., limiting harbor facilities line access and recreational opportunities, where appropri- to tankers of about 150,000 dwt or equivalent). Review ate, by establishing a perimeter coastal trail seaward of major oil-related and LNG development proposals for con- Palos Verdes Drive West and South, linking existing and formity with Plan policies. proposed recreation areas, and by retaining a substantial portion of the remaining capacity of the road for scenic drive use. On remaining undeveloped areas seaward of the drive, allow very low density residential projects that meet Plan design criteria and provide substantial permanent open space for recreational and view corridor purposes. Protect bluffs; study sand supply in pocket beaches. Resort Point to Point Vicente. Establish rocky shore reserve. Point Vicente North. Retain the lighthouse property in pub- lic ownership for historic, scenic, and recreational purposes. Acquire 182 acres of undeveloped blufftop and rocky shore- line to protect an important marine habitat and for educa- tional purposes. Inspiration Point to Point Fermin. Acquire land or regulate uses to protect scenic and productive agricultural values; the agricultural lands constitute a possible long-term acquisition. 398 I~~~~~~~~~ U~~~~~~~~~~~U HemsUec U~~~~~~~~~~~ U'li U V i c e n t e ___ ns1 n_ _ -r~~~~~~~~~~~~~~~~~~~~~~~~~r p~~~~~~~~~~~~~~~LGSt scalie 1a12i00 Scales 11500contour intra 500 Depth cu at 10-athomn interval PLAN MAP 53: MAP NOTES SUBREGION 7: LONG BEACH ty to restoration over residential or marina development. Provide a buffer area and low-intensity recreation on the Long Beach to Alamitos Bay. Increase public access to periphery, including upland support facilities and trail link- beaches; provide linkages including pedestrian and bicycle ages in the central city park corridor to increase use of the paths, along the shoreline between the central business dis- publicly owned beach. Prevent saltwater intrusion in trict, the harbor, and Alamitos Bay. groundwater aquifers. Long Beach. Encourage recycling and rehabilitation of resi- Bolsa Chica State Beach. Prohibit street parking on beach dential areas at present densities. Concentrate highrise de- side of Pacific Coast Highway where such parking blocks velopment in the immediate downtown area, west of Alami- views of the ocean. tos Avenue. Stress pedestrian access to the shore in the de- sign of new development. Support city policy to convert oil Huntington Beach Oil Fields. Remove oil-related structures islands to recreational uses after resource depletion, as the resource is depleted. Pier J. Consider development of a regional marina as well Huntington Beach. Provide new commercial recreation fa- as a possible major tourist commercial recreation project. cilities in the downtown area. Stress joint use of existing downtown and shoreline parking Huntington State Beach. Prohibit additional parking lots n Huntington State Beach. Prohibit additional parking lots on facilities linked by a local shuttle system, and provide the beach. Consider possible long-term acquisition, demoli- the beach. Consider possible long-term acquisition, demoli- public vista points. tion, or conversion to low-cost housing or overnight lodg- Signal Hill. Incorporate major open space and vista points ings of the Huntington Beach Pier apartments. into replacement land uses. North Side of Santa Ana River. Restore and maintain the Belmont Shore and Naples. Protect the existing character of wetlands between the Southern California Edison and coun- these special communities, and include units designed for a ty sanitation district plants. Acquire the 38.2-acre degraded wide range of income and age groups in residential devel- wetland area owned by the Department of Transportation opment. for wetland restortation and preservation as habitat and open space, and acquire the 13.5-acre degraded wetland at Alamitos Bay. Permit intensification of land uses only if Talbert Channel and Brookhurst Street as a recreational adequate and environmentally acceptable concurrent support area for nearby Huntington Beach State Park. Con- measures to handle traffic and appropriate measures to sider additional longterm acquisition of the Edison property safeguard the water quality of the bay are implemented; and the Huntington Beach Channel at Magnolia Street for protect Cerritos Lagoon and spotted bass spawning areas. wetland restoration. San Gabriel River. Continue existing bicycle trail to the Agricultural lands. Evaluate and where appropriate pre- beach. serve and protect agricultural uses. SUBREGION 9: NORTH ORANGE COUNTY SUPPLEMENTAL NOTES Pacific Coast Highway. Reserve a portion of the remaining Recreation and Access. Increasing public recreation access capacity on the highway for recreation and as a scenic and use are key policies in the North Orange County coast- drive; stress trails, transit and upland parking areas to al- line. leviate congestion in the oceanfront area. Redevelop strip commercial development along the highway into planned Development. Encourage recycling and rehabilitation of commercial dvlptclustersiha itplneresidential areas at present densities in all areas of Long Beach and in most areas of North Orange County. Protect Seal Beach. Retain the nine-acre parcel of Department of and expand opportunities for low and moderate income Water and Power property in public ownership for open families and minorities to reside in the subregions and to space and recreation. enjoy recreational facilities. No intensification of land use should be permitted that is incompatible with the existing Anaheim Bay. Prohibit development of the bay or sur- character of development. rounding lands that would seriously impact the ecological preserves. Support anadromous fish "put and take" pro- Bluffs and Open Space. Protect bluffs and provide vista gram; provide public access consistent with protection of points, incorporated into public open spaces when feasible. the national wildlife refuge. Provide additional public open space in residential and commercial areas. Surfside. Provide beach access from the nearest public right-of-way. Huntington Harbour. Recreational and visitor-serving facili- ties (parks, tourist-commercial uses, etc.) shall have priority over residential uses on the remaining undeveloped acre- age. Consider possible long-term acquisitions at Bayport and Sunset. Continue to monitor water quality and boating capacity to ensure that water quality is maintained and boating capacity not exceeded. Bolsa Bay and Bolsa Chica Marsh. Prohibit development of the bay or surrounding lands that would seriously impact the ecological preserves. In restorable wetlands, give priori- 400 * Bolsa ChicaMas- _ ftftft ~ ~ ~ State Beach aHuntington Beach Pe a~~~~~~aw HutnnBachPe ~~~albr hne 4~~~a te Scalel;125,000 ContouTalbertChannel Miles:2 Depth curves at 100- fathom interval PLAN MAP 54: MAP NOTES SUBREGION 10: NEWPORT the sensitive natural habitats and other resources. Acquire significant acreage east of the highway, primarily on gently South Side of Santa Ana River and River Corridor. Acquire sloping terrace land, to provide low-cost tourist facilities, the 506-acre fresh and salt water marsh, bluff, and archae- develop vista points of special significance, and expand ological site as a multiple use regional park combining public access to the canyons and ridgetops, with linkages to wetland restoration, general recreation and beach support, the coast by transit and hiking, biking, and equestrian and archaeological preservation. Marina development would trails. Establish a coastal trail through Irvine, Laguna, and not be compatible with this use. Protect last tern nesting Laguna Canyons. Limit commercial developments to care- sites. Continue coastal trail in the flood channel to the fully selected sites to serve residents and visitors; sites beach and connect to the Santa Ana Greenbelt Corridors; shall not directly abut the highway. consider possible location for hostel. Cameo Shores to Abalone Point. Establish a marine Pacific Coast Highway. Reserve a portion of the capacity of reserve. the highway for recreational traffic. Prevent intensification of uses in areas severely impacted by traffic congestion. Give priority to resort and recreational development over other commercial developments along the highway. Newport Peninsula and Lower Newport Bay. Give priority to resort and recreational development over other commer- cial developments on the peninsula. Protect the marine repair industry from displacement. Improve visual and phy- sical access to Lower Newport Bay. Provide inland parking areas served by trails and public transportation to the beaches and shoreline recreation facilities. Upper Newport Bay. Acquire five separate blufftop parcels totalling 363 acres surrounding Upper Newport Bay as buf- fer areas for the bay and to provide open space, habitat, compatible recreation, and scenic benefits. (This is in addi- tion to areas recently acquired by the Department of Fish and Game.) All necessary measures should be undertaken to protect and enhance the water quality of the bay, includ- ing waste discharge controls in the watershed. Support ana- dromous fish "put and take" fishing program; establish an interpretive center. Agricultural lands. Protect significant agricultural lands by concentrating development in areas already committed to development. San Diego Creek Area. Consider possible long-term acquisi- tion. SUBREGION 11: IRVINE COAST Irvine Coast. Determine overall growth on basis of protec- ting air quality, protecting wildlife habitat and other natural resources, providing recreational opportunities, and provid- ing adequate traffic circulation. Seaward of Pacific Coast Highway. Acquire the land west of the highway, not currently being acquired by the Depart- ment of Parks and Recreation, as permanent open space for active and passive public recreation and highway view cor- ridors, possibly excluding an area for the potential develop- ment of water-oriented commercial recreational facilities (e.g., restaurants, hotels, and boating facilities) serving the general public. If permitted. such facilities must be in planned clusters, carefully sited to protect views and open space. East of Pacific Coast Highway. Retain the steep slopes, deep canyons, and very narrow ridges in the hillside area above the coastal shelf as open space. Some portions of the gentle slopes, elevated terraces, and broad ridges may be used for low density residential communities, including re- lated commercial and institutional developments, provided that these uses are located and designed in a way to protect 402 7Southz ~~~~~~~~~Cast X~~~~~~~N Santa Ana - __ _ __ River Mouth __----- Newport Beach__ *40,~~~~~~~~~~ Depth cu~~~~~~~rvesa0-ahmintera Aba~~~~ PLAN MAP 55: MAP NOTES SUBREGION 12: LAGUNAS open space with possibly very limited low-density residen- tial development in designated locations. Accommodate Lagunas. Prohibit major commercial centers, industry, or residential and commercial uses in planned clusters in service facilities that would generate significant increases in lower hills, where appropriate, retaining maximum open traffic congestion and change existing scale and character. space. Shoreline and Oceanfront. Provide pedestrian access to Dana Point to San Clemente. Study the feasibility of reloca- tideland areas through private communities, including ting the railroad abutting the beaches. opening existing public easements now blocked by private roads. Reserve undeveloped lands seaward of the highway Dana Strand. Consider possible long-term acquisition. to provide significant open space recreational opportunities, Dana Point Headlands. Acquire a 111.9-acre headland site vistas or view corridors, andlor commercial recreational to protect magnificent coastal vistas, maintain the existing facilities such as resorts, hotels, and campgrounds that open space character, and provide a landscaped picnicking serve the general public. and passive-recreation park. Pacific Coast Highway. Reserve a portion of the remaining Dana Point Harbor. Add new recreational facilities. Retain highway capacity for recreational traffic. recreational vehicle camping if possible. East of Pacific Coast Highway. Limit new commercial de- Dana Point Palisades East. Acquire a 48-acre upland parcel velopment to planned clusters inland of the highway. Re- overlooking Dana Point Harbor and Doheny Beach State quire maximum retention of open space in permitted resi- Park for recreational support facilities serving and linked dential developments in the lower hill areas. Maintain the with the harbor and State beach. Tourist commercial uses higher hills in open space, with probably only very limited should have priority over residential uses on the remaining low-density residential development in selected locations. Lantern Bay property. San Joaquin and Laguna Hills. Protect watershed, habitat, San Juan Creek. Limit intensity of development in the and open space values. Endorse the local government's La- floodplain; investigate potential for recreation and consider guna Greenbelt concept for preservation of open space, na- possible long-term acquisitions. tural land contours, habitat, and recreational opportunities. Establish hiking and equestrian trails. Doheny, Capistrano, and Poche Beaches. Consider possible long-term acquisitions to increase public recreation oppor- Crescent Bay. Establish interpretive center; protect seal tunities. rock. Consider possible long-term acquisition of Crescent Bay Point. San Clemente Coastal Palisades. Acquire this 153-acre coastal terrace parcel for general recreational support facili- Emerald Bay South. Acquire this 10-acre extension of ties. Crescent Bay Beach and Park to improve access from the highway to the beach and to increase the area available for San Clemente Beach. Consider possible long-term acquisi- public recreation. tion. Central Laguna Beach Bluffs. Acquire this 5.1-acre bluff San Mateo Point. Establish public overlook. Consider area overlooking Main Beach Park for general recreation possible long-term acquisition at the beach and point. and support facilities. Aliso Canyon. As a long-term priority, acquire the mouth of Aliso Canyon for recreation; link with the coastal trail sys- SUPPLEMENTAL NOTES tem and the Laguna Greenbelt; investigate restoration pos- sibility. Meeting Plan goals of protecting air quality, protecting wildlife habitat and other productive resources, meeting Laguna Niguel Coast. Acquire the 17-acre headland for visi- recreational needs, providing adequate traffic circulation, tor facilities supporting and complementing the adjacent and concentrating urban development will necessitate se- Laguna Niguel Beach Park and linked with the coastal trail verely limiting residential growth in this subregion. Major system. growth-inducing developments shall not be permitted; pub- lic service improvements should be expanded only if consis- tent with resource protection. SUBREGION 13: SOUTH ORANGE COUNTY Protect remaining natural watersheds from intensive devel- opment. Prohibit structures such as dams to block streams. Pacific Coast Highway. Reserve a portion of the remaining Sand supply should be studied in pocket beaches. Agricul- road capacity for recreational traffic. Prohibit major em- tural land should be evaluated and, where appropriate, pro- ployment centers or other population generators until traffic tected from urban encroachment. congestion can be resolved. Seaward of Pacific Coast Highway. Limit undeveloped land above and immediately adjoining coastal bluffs to open space uses for public recreation and view corridors, consis- tent with Plan policies. Remove housing and trailers from beaches through public acquisition. Prior to this action, public access to the beach should be sought through negoti- ation. East of Pacific Coast Highway. Maintain higher hills in 404 0~~~~~~~~~~~~ D~~~~ anaCeet OrageContydeenin upn loesoi tpe ~State Beaac- vegetation cover, and other factors; however theo' areas shown as grazing are those that were identifi*l in the Orange County Land Use Survey 1973. 1 - * ~~~~San M"ato Scalei1125,000 Conournteva[OO Poi Miles: 2* Depth curves at 7100"-fathrolm mner PLAN MAP 56: MAP NOTES SUBREGION 8: SANTA CATALINA AND SAN CLEMENTE ISLANDS Santa Catalina Island Conservancy. Support efforts by con- servancy to maintain 42,135 acres of the island for educa- tional and recreational purposes. Increase public access to major recreation areas and support expanded or new recre- ation/educational areas. Avalon. Maintain existing scale and intensity of develop- ment. Increase public access from the mainland. Other Island Settlements. Maintain distinctive character of other settlements on Catalina. Limit new development to the amount that can be supported by local natural resources such as water. Do not allow development to interfere with the visual profile of the islands. In unincorporated areas, limited new residential development might be permitted in a few planned, clustered communities, primarily for perma- nent residents. 406 Map South Coast Point 4v Lobst~~~~ Ben Weston Po nt4 4~~~~~~~~~~~~~~~~~~~~~~~~L __ *4~~~~~~~~~~~~~~~~--mm. N's ~ ~ ~ _ link.~~~ 4~~~~~v h c u ~~~~~~~Ttrves atovent PLAN MAP 57: MAP NOTES SUBREGION 8: SANTA CATALINA AND SAN CLEMENTE SUPPLEMENTAL NOTES ISLANDS [CONTINUED] San Clements Island. Explore long-term potential for res- Retain island hill areas in permanent open space for recrea- toration of habitat areas. tional purposes to the maximum extent possible. Provide appropriate riding trails and other public recreational facili- ties. Control goat, buffalo and wild boar populations to prevent further destruction of native plant species unique to the islands. Maintain natural productivity of intertidal and nearshore areas, and develop a complementary fisheries management program. Protect all islets as sancturaries for seabirds and marine mammals. Designate selected kelp beds and reefs as natural reserves. Provide small craft anchorages and moorings where envi- ronmentally sound. 408 * ~~57 * _~ ~ ~ ~~~SU __ 5~~~~~Cps _ Ee M-f _~~~~~~~~~~~~7 t _ S~~~~~~~~..... 49#.~ ~ ~ Kioees Scae11 50Cnori Miles- 2 Det cuve t t mi e SOUTH COAST REGION SELECTED MAPPING SOURCES PRODUCTIVE RESOURCE AREAS Agriculture Preserves. Orange County Planning Department, 1967. General Soil Map. U.S. Soil Conservation Service, 1969. Map of Los Angeles County, Mines and Mineral Product Locations. Division of Mines & Geology, 1947. Mines and Mineral Deposits of Orange County. Geological Environmental Maps of Orange County. Division of Mines and Geology, 1973. Regional Wildcat Map. Division of Oil and Gas, 1974. Soil Capability Map. Comprehensive Land Related Data Systems, Orange County Planning Department, 1973. Soils of the Malibu Area. U.S. Soil Conservation Service, 1967. HABITAT AREAS Map of coastal wetlands. Prepared by Department of Fish and Game field bio- logist, 1974. Maps of Pacific Coast kelp groves. Prepared by Department of Fish and Game, Long Beach Office, 1974. Oil sanctuaries. As defined in sections 6870 through 6872 of Public Resources Code. RECREATION-DEVELOPED AREAS-PUBLIC OWNERSHIP Aerial Photography: 1:6,000. American Aerial Surveys, Inc., October, 1973. Boating Facilities Guide, Southern Area. Department of Navigation and Ocean Development, 1974. Existing Land Use. Regional Planning Commission, Los Angeles County, 1972. Land Use Survey. Comprehensive Land Related Data Systems, Orange County Planning Department, 1973. Land Use Survey. Department of Water Resources, 1973. Surf Break Survey. National Surf Life Saving Association of America, 1974. Tax exempt publicly owned lands survey from assessment rolls and map books of Los Angeles and Orange County Assessor's Offices, South Coast Regional Commission, 1974. Technical Report on an Outdoor Recreation Plan and Capital Improvement Pro- gram. Southern California Association of Governments, 1972. 410 * - - - -- - ~~~~INDEX~ MAP _ I-F Sn Meg LO 12N24LE6 KilometersK Scale 00, 0/ Miles~~~~~~ ORANGE4 PLAN MAP 58: MAP NOTES SUBREGION 1: PENDLETON COAST SUPPLEMENTAL NOTES San Mateo Marsh. Protect and preserve resource value as COASTAL WETLANDS AND ESTUARIES coastal freshwater body. Wetlands: San Mateo Marsh, Las Flores Marsh, San Luis Rey San Onofre. Preserve scenic bluffs and acquire seven miles of River, Loma Alta Slough, Canyon de los Encinas Marsh, Sole- beach frontage to be added to the existing State Beach for dad Creek, Mission Bay Marsh Reserve, Famosa Street Slough, general recreation. San Diego river flood control channel marsh, and South San Diego Bay marshes and mudflats. Camp Pendleton. Open additional shoreline for low-density public recreation. Additional development would be better lo- Estuaries: Santa Margarita Marsh, Buena Vista Lagoon, Agua cated inland. Hedionda Lagoon, Batiquitos Lagoon, San Elijo Lagoon, San Dieguito Lagoon, Los Penasquitos Lagoon, open water por- Las Flores Marsh. Preserve and protect resource value as a tions of Mission Bay, open water portions of San Diego Bay, coastal freshwater body. and Tijuana Estuary complex (including Oneonda Lagoon). Lagoon systems designated to be retained in or restored to tid- Santa Margarita Marsh and River. Retain and enhance tidal al action in this region are: Santa Margarita Marsh, Agua Hedi- action; investigate restoration of anadromous fish spawning onda Lagoon, Batiquitos Lagoon, San Elijo Lagoon, San Die- areas. guito Lagoon, Los Penasquitos Lagoon, and Tijiana Estuary. North County Park Units. Link park units with trail system. ADDITIONAL SIGNIFICANT AREAS (NOT MAPPED) North County Agriculture. Protect coastal floriculture and Tidepool Areas: San Mateo Point area, Torrey Pines area, other productive and potentially productive coastal agricultural Scripps Pier area, Point La Jolla area, Windansea Beach area, lands; prevent urban encroachment and protect appropriate Bird Rock area, False Point area, Mariners Point area, Ocean small parcels especially suitable for coastal-dependent flori- Beach Municipal Pier area, Sunset Cliffs area, and Point Loma culture and agricultural uses. (Due to the characteristically area. small scale of coastal floriculture, some important sites with- in urban areas are not shown on the map.) Littoral Cells: Oceanside, M ission I Ocean Beach, and Si Iver Strand. Pocket Beach Areas: La Jolla and Point Loma. Unstable Bluff Areas: San Onofre, LeucadialEncinitas, Del Mar Bluffs, Torrey Pines, La Jolla, Sunset Cliffs, and Point Loma. Habitat Areas: Banks of the San Mateo Creek (grassland and riparian woodland), banks of San Onofre Creek (riparian wood- land), San Onofre Bluffs and Camp Pendleton Coast from Las Flores Marsh to Oceanside west of 1-5 (grassland), Camp Pen- dleton Coast from Japanese Mesa to Las Flores Marsh east of 1-5 (coastal sage), mouth of Las Flores Creek (coastal sage), mouth of Santa Margarita Creek (coastal sage; nesting site of two endangered species, California least tern and Belding's savannah sparrow), mouth of San Luis Rey River (grassland), land surrounding Buena Vista Lagoon (riparian), land sur- rounding Agua Hedionda (coastal sage and riparian), land sur- rounding Batiquitos (coastal sage, grassland, and riparian), Encinas Canyon (riparian), Encinitas Boulevard Canyon (coastal sage), Cardiff Canyon (coastal sage), land surround- ing San Elijo (coastal sage and grassland), Lux Canyon (ripar- ian), San Dieguito Valley (coastal sage and grassland), Gon- zales Canyon (coastal sage), Carmel Valley (woodland), Sole- dad Valley (coastal sage woodland), Penasquitos (coastal sage and coastal forest), Crest Canyon (chaparral), Del Mar Canyon (chaparral), Torrey Pines Reserve and proposed extension (coastal forest and marshland), Mt. Soledad (coastal sage), Tecolote Canyon (coastal sage), Fort Rosecrans (coastal sage), Cabrillo National Monument (coastal sage), Kendall Frost Reserve (beach strand), U.S. Navy Radio Station, Silver Strand (beach strand), Sweetwater Riverbed (riparian), Para- dise Creekbed (riparian), Otay Riverbed (riparian), and Border Field, land surrounding Tijuana Estuary (grassland). ( 412 C9~~~~~~~~~~~~~~~~~~~~~ poin~t S~~~~ asnlve Marshe San nofr St ts* * ~~~~~~~op_ CN e Sc~~l e I .0 u ra 0~~~ ___ Mile~~~s: Depthcur 0 p in [i PLAN MAP 59: MAP NOTES SUBREGION 2: OCEANSIDE in urban areas are not shown on the map.) Oceanside Harbor/Strand. Undertake a special study, addres- North County Park Units. Link park units with trail system. sing public beach access, urban design, and pedestrian circu- lation, to create a beach-oriented tourist-commercial area.es. Retan low-densty, sem-rural character. San Luis Rey River Valley. Protect productive and potentially productive agricultural areas enhanced by coastal climate. overlooking San Elijo Street Beach for recreation support productive agricultural areas enhanced by coastal climate. Sea Cliff County Park. Acquire 400 lineal feet along the bluffs overlooking San Elijo Street Beach for recreation support San Luis Rey River Marsh. Acquire this 150-acre wetland for facilities. preservation of habitat values and passive recreational use. San Elijo/Cardiff State Beach. Acquire 175 lineal feet + of Oceanside Beaches. Devise and implement long-term beach beach frontage totalling 3.7 acres, connecting San Elljo and Cardiff State Beaches. sand maintenance program. San Elijo Lagoon. Acquire 1,000 acres + as an ecological re- serve and regional park. Increase tidal prism and provide fresh SUBREGION 3: CARLSBAD water to inner lagoon to enhance resource values, and habi- tats; protect surrounding bluffs. Buena Vista Lagoon. Acquire this 113-acre wetland for preser- vation of habitat values. The acquisition would consolidate the Eden Gardens. Preserve low-income housing; enhance com- existing State Reserve. Protect surrounding area from incom- munity character. patible development. San Dieguito Bluffs. Adopt comprehensive public access plan; Carlsbad. Encourage downtown redevelopment to reduce de- permit development in compliance with geologic and appear- velopment pressures on resource areas and implement Plan ance and design criteria; phase private development in with policies on concentrating development. construction of public access facilities. Agua Hedlonda Lagoon. Acquire 85 acres in the lagoon for preservation of the estuarine habitat values. Acquire about 100 acres of dry land surrounding the lagoon for general recrea- tion. Retain tidal action, aqua culture, and recreation, and protect surrounding area from incompatible development. South Carlsbad State Beach. Complete the acquisition of 46 acres currently being carried out by the State Department of Parks and Recreation. Ecke Beach Frontage. Acquire 1,500 lineal feet of beach front- age for general recreation, extending South Carlsbad State Beach. SUBREGION 4: SAN DIEGUITO: LEUCADIA, ENCINITAS, CARDIFF, AND SOLANA BEACH Encina Power Plant Beach Frontage. Add 1,800 lineal feet of beach frontage to South Carlsbad State Beach. Investigate techniques other than fee acquisition to gain public use rights for this area. Batiquitos Lagoon. Restore tidal action; enhance resource value; protect buffer areas. Acquire 1,000 acres + as an ecol- ogical preserve and regional park. North County Beach Access. Acquire four sites totalling two acres to provide access to the beach. Old Highway 101. Designate highway from Oceanside to Mis- sion Bay as a scenic highway. Emphasize billboard removal in open areas. North County Agriculture. Protect coastal floriculture and other productive and potentially productive coastal agricul- tural lands; prevent urban encroachment and protect appro- priate small parcels especially suitable for coastal dependent floriculture and agricultural uses. (Due to the characteristically small scale of coastal floriculture, some important sites with- 414 0~~~~~~~ O O~ceanside Re San Luis Rey- River Marsh Oceanside Beaches __S Loma Alta Slough _ _ Buena Vista Lagoon Carlsbad Beach State Park -M iqug'HIedionda LagoonK ~~~~*j0-I .. >6Beach 0rk I nt Beach ~Wak. Moonlgto BeachSti-g P ark ltI Moonlight Beach &tat ...... ~~~San Elj eaclt4j flo rdf Beach Stat~r oee~ L l~ 2 Sola ScMiles115,0 Contu ineval 50 San Dieguiti~~~ Btutfs - -~~~ - Depth curves at 100-fathomn inltervVj~ PLAN MAP 60: MAP NOTES SUBREGION 5: DEL MAR La Jolla. Preserve community character. Investigate transit al- ternatives to relieve congestion. Severely curtail further inten- San Diegulto Lagoon. Acquire 1,000 acres + as an ecological sification of land use in the central business district. reserve and regional park. Restore tidal action; enhance re- source and habitat values; protect hill areas on southwest per- imeter. SUBREGION 7: PACIFIC BEACH, MISSION BEACH, OCEAN BEACH, AND MISSION BAY Del Mar. Preserve village-like residential and commercial com- munity character. Consider public recreational beach use of Ocean Beach, Pacific Beach, Mission Beach. Maintain social, South Del Mar. Investigate improvement of the South Del economic and physical character. Investigate potential of shut- Mar bluffs as a linear park and continuation of a trail system tie during peak use periods. Investigate taxing alternatives to from north county to Torrey Pines. prevent transition to higher densities. Del Mar Acquisition Sites: Belmont Park. Retain and enhance as a regional recreational * Snake Wall. Acquire 20 acres bordering San Dieguito Lagoon and historical resource. to preserve the bluffs and indigenous Torrey pines. Mission Bay. Adopt comprehensive plan to preserve resource * Crest Canyon. Acquire this 125-acre steeply sloping hill and areas, maximize recreation potential, and ensure public ac- canyon area south of San Dieguito Lagoon to preserve open cess to and along shoreline. space values and indigenous Torrey pines. Sunset Cliffs. On these fragile bluffs, implement long-term * Del Mar Bluffs. Acquire 33 acres for trails and improved ac- development control measures to ensure that future develop- cess along the bluffs. ment is not threatened by natural shore erosion processes. * Anderson Triangle and Canyon. Acquire about five acres south of Del Mar Canyon and west of Camino Del Mar to pre- serve the bluffs as a view-site and to improve access to the beach. * Torrey Pines Reserve Extension. Acquire six small parcels totalling about 20 acres (Harrington, Turner, Cherney, Lance- Blackman, Robinson, and Rumsey) for trails and further ex- tension of the Reserve to the north. In addition, acquire Sandstone Bluffs, a 4.5-acre sandstone promontory-the highest point in the Reserve Extension, to preserve this unique landform. Consider purchase of the underlying fee interest, with retention of a life estate on this site. * Connection of Torrey Pines Reserve and Reserve Extension. Acquire 19 acres connecting the Reserve and Reserve Exten- sion to consolidate State holdings in this area. * Baldwin and Adjacent Properties. Acquire this entire 18-acre parcel, including the area zoned commercial, to extend the State Reserve and provide support facilities for the beach. SUBREGION 6: TORREY PINES TO LA JOLLA Los Penasquitos Lagoon. Maintain tidal prism and manage vegetation and habitat resources. Acquire this 280-acre wet- land area for preservation of the estuarine habitat and fish and wildlife resources. Acquisition will extend State holdings in the Torrey Pines Reserve. Old Highway 101. Designate highway from Oceanside to Mis- sion Bay as a scenic highway. Emphasize billboard removal in open areas. North County Park Units. Link park units with trail system. North County Agriculture. Protect coastal floriculture and other productive and potentially productive coastal agricultural lands; prevent urban encroachment and protect appropriate small parcels especially suitable for coastal dependent flori- culture and agricultural uses. (Due to the characteristically small scale of coastal floriculture, some important sites with- in urban areas are not shown on the map.) 416 -~~ ' --0---- San Diguito, Ai~74 iego (os Penasquitos Lagoon ~ ___ Torrey PrnAs Bea h State Pg?.k _ __ _____ ~~~~~~~~~Miramrar NAS * ~~Ocean Beach * ~~~ramosaS _ _ Sunset Cliffs -- IMission Valley Point Loma Kilometers; 0 3 scale 1:125,000 contour intel:_al 500 N ~~~~~~~~~~~~~miles! Depth curves at 100- tathom in~rval PLAN MAP 61: MAP NOTES SUBREGION 8: POINT LOMA/FEDERAL LANDS tourist/commercial complex with maximum public access. Preserve coastal agricultural uses. Point Loma. Open remote areas of the shoreline for low- density public recreation. Transfer 700 acres from the U.S. South Bay Salt Ponds. Acquire 850 acres for preservation of Navy to an appropriate public agency for recreation when no the estuarine habitat. longer needed by the Navy. Cabrillo National Monument. Consider transfer of 350-400 SUBREGION 12: IMPERIAL BEACHITIJUANA acres of Navy land at the southern tip of Point Loma to the RIVER VALLEY Monument reserve when no longer needed by the Navy. Ladera Street Park. Extend the existing City park to include Imperial Beach. Implement Redevelopment Plan to create 12,000 lineal feet of the beach frontage, south to the waste beach oriented touriest-commercial complex and enhance ac- treatment plant and inland to the first road. cess and recreational value. Ream Field. Encourage elimination of non-coastal dependent military air operations. SUBREGION 9: SAN DIEGO CITY BAYFRONT Tijuana Estuary and River Valley. Preserve and protect re- Lindbergh Field. Relocate regional airport to a site less dam- source and habitat values and agricultural lands. Prevent ur- aging to the coastal environment. ban encroachment. Complete the acquisition of 380 acres cur- rently being carried out by the Department of Parks and Recre- Embarcadero. Create a pedestrian-tourist commercial envir- ation and improve in a manner consistent with estuarine pres- onment for maximum public use and enjoyment of the bay ervation. Retain or restore the estuary to tidal action. front. San Diego CBD. Downtown redevelopment project is consist- ent with Plan policies on concentrating development and cre- ating high density uses at appropriate locations. Barrio Logan. Protect the residential character of the Chicano community and consider linking it with direct access to San Diego Bay. San Diego Bay. Increase public access and recreational use. Accommodate small craft facility demands in conformance with Coastal Plan policies. SUBREGION 10: CORONADO AND THE SILVER STRAND Coronado. Preserve and improve primarily as a beautiful, plea- sant residential community. North Island Naval Air Station. Acquire 10,000 lineal feet of beach frontage from Sunset Park to Zuniga Point for general recreation. Coronado-Silver Strand Beaches. Increase accessibility to, and facilities on, the beaches to promote increased recreational use of beach areas, including military beach frontage. Silver Strand State Beach. Extend existing State Park hold- ings on both Bay and Ocean frontages to the north and south. Silver Strand/Coronado/Imperial Beach. Devise and imple- ment long-term beach sand maintenance program. SUBREGION 11: SOUTH SAN DIEGO BAY Sweetwater Marsh Complex. Acquire 200 acres of dry land that drain into the marsh and the key habitat areas for the preser- vation of the estuarine habitat. Preserve resource values, pre- vent urban encroachment. Chula Vista Bayfront. Promote development of a recreational/ 418 i t - A /1 U~~ Ladera Street ___ _Slver tra I~~~~~~~~~BahSaePr ~~~~~~~~~~~NaaRaio C~~~~~~~~~~~~~~~~Nto S~~~~~~~~ Impe a__ N~~~~~~Tjatnal') u~~~~~~~~~bf B onrderr0_ I Fielndo _- Scale 11~~~~~~~~~~ ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~12100 ~ ~ 0 b Det uvsaI0ftoitIa I~~~~~~~~~~~~~ea * _ u$ ___ SAN DIEGO REGION SELECTED MAPPING SOURCES PRODUCTIVE RESOURCE AREAS Agricultural Lands, Map No. 29. San Diego County Planning Department, 1973. Agricultural Preserves, Map No. 48. San Diego County Planning Department, 1974. Farm Advisor's Office, San Diego County Agricultural extension, miscellaneous maps. General Soil Map, San Diego County. U.S. Soil Conservation Service, 1974. Mines and Mineral Resources of San Diego County. Division of Mines and Geology, 1963. Natural Resource Inventory of San Diego County-Section 3, Geology. Environ- mental Development Agency, 1971. Open Space Project No. 8-Map No. 69, Soil Suitable for Agriculture. San Diego County Planning Department, 1971. Open Space Project No. 10-Map No. 71, Special Factors. San Diego County Planning Department, 1971. Regional Open Space Plan and Implementation Program. Comprehensive Plan- ning Organization, 1974. Tijuana River Valley, Land Use and Flood Control Alternatives. Joint study by the Office of the City Manager and the City of San Diego Planning Department, 1973. HABITAT AREAS A Plan for the Preservation of Natural Parks for San Diego, City of San Diego General Plan 1990. City of San Diego Planning Department, 1973. Coast Physical Features Map. San Diego County Planning Department, 1972. Comprehensive Plan for the San Diego Region, Vol. 3, Coastline. Comprehensive Planning Organization, 1974. Initial Coastline Study and Plan. Comprehensive Planning Organization, 1972. Kelp Habitat Improvement Project. W.M. Keck Laboratory of Environmental Health Engineering, California Institute of Technology, 1970. Long-Range Plan for Multiple-Use Management of Natural Resources. Natural Resources Office, Camp Pendleton Marine Corps Base, 1974. Los Penasquitos Lagoon, Environmental Evaluation and Planning Project. San Diego State University, 1974. Master Plan, Cabrillo National Monument. Western Regional Office, National Park Service, 1974. Natural Resource Inventory of San Diego County, Section 5, Coastal Environment. County of San Diego Environmental Development Agency, 1971. San Diego County Regional Parks Implementation Study. County of San Diego Park Development Division, 1972. San Diego's Offshore Area. City of San Diego Planning Department, 1969. The Coastal Lagoons of San Diego County. Laboratory for Experimental Design, California State Polytechnic College, Pomona, 1971. The Natural Resources of San Diego Bay, TheirStatus and Future. State of Call- fomrnia Department of Fish and Game, 1973. RECREATION-DEVELOPED AREAS-PUBLIC OWNERSHIP. Del Mar General Plan. Del Mar Planning Department, 1975. Generalized Land Use Map, San Diego County Region. Comprehensive Planning Organization, 1972. Land Use Maps. Natural Resources Office, Camp Pendleton Marine Corps Base, 1975. Memo on Coastal Projects. Department of Navigation and Ocean Development, 1974. Open Space Project No. 1-Map No. 62, Existing Developed Areas, San Diego County Planning Department, 1971. Open Space Project No. 2-Map No. 63, Public and Semi-Public Ownership. County of San Diego Planning Department, 1974. Public-Owned Lands, Map No. 18. County of San Diego Planning Department, 1974. San Diego County Assessor's Office, 1975. Regional Open Space Plan and Implementation Program. Comprehensive Plan- ning Organization, 1972. San Dieguito Community Plan. San Diegulto Citizens Planning Group and County of San Diego Planning Department, 1975. Torrey Pines Community Plan. Torrey Pines Community Planning Group and County of San Diego Planning Department, 1975. 420 * . Appendix - .. Vt ''4 C.' -4 4 C 4 C 4 <.4 C' V C 4, 7j4 <,C$4<4<444;,,<' '4 Th4;. '' GLOSSARY * 423 GLOSSARY Note: The glossary below, an adopted part of the Coastal area. (Term can be used informally for a broader area.) Plan, includes words and terms that are used throughout * Nearcoast area - the area within easy walking distance - the Plan, and are listed here for convenience. Most other generally 1,000 yards - of the shoreline. words and terms are defined where they occur in the text. Although every effort has been made to conform to technical, * Upland - pertains to the area landward from the oceanfront dictionary, and popular usage, it should be emphasized that area, generally to the coastal zone boundary. these definitions reflect how the words and terms are used *� Coastal zone - as defined in the California Coastal Zone in this document. Conservation Act of 1972 (Proposition 20) - see elsewhere in the Appendix for complete text. * Coastal resource management area - the area within which local plans would be brought into conformity with Parts of the Coastal Zone the Coastal Plan. See complete definition in Part IV, in introduction to Plan Maps. Following are terms used in Plan policies and elsewhere * Inland - any land area outside the coastal zone. to indicate parts of the coastal zone and adjacent areas: *� Coastal - pertains to anything within the coastal zone. � Ocean waters - marine waters beyond the seaward extent of the State's jurisdiction (three miles). � Coastal waters - marine waters from the shoreline seaward to the State's three-mile limit. Coastal Resources � Intertidal area - the area from the lowest low tide line to the shoreline (the landward extent of the tidal influence), including estuaries and coastal wetlands. Coastal resources - natural or man-made areas or features � Shoreline, coastline - the precise interface between land on or near the coast or enhanced by a coastal location that and sea, coinciding with the line marking the landward are of value to man for economic, environmental, recrea- extent of tidal influence. (Term can be used informally for tional, cultural, and aesthetic reasons. These resources are an actual area near the shoreline.) divided into several overlapping categories: � Oceanfront area - the area from the shoreline landward, *Natural resources-e.g., agricultural and timber lands including the beach and/or rocks above the high tide line to the top of adjacent bluffs and cliffs, and in most parts of the coastal zone including the first coastal road where *� Marine resources - e.g., coastal waters, kelp beds, salt it parallels the coast, and first tier of lots. Usually extends marshes, tidepools, islets and offshore rocks, anadromous not more than 1,000 feet landward. fisheries. * Coast - encompasses the intertidal area and the oceanfront *� Coastal land resources - e.g., watersheds, freshwater Parts of the Coastal Zone Landward extent of Highest elevation of nearest coastal tidal influence mountain range, or five miles in some areas (Prop. 20) -~UJ Walking distance O (about 1000 yards) 03) Blufftops, Seaward extent A first road, of State jurisdiction first tier of (3 miles)- lots, e tc. Lowest low tide line 0 [ - -UPLAND {OR I, ) -NLAND OCEAN 9100W0 C:: 1AME: QC�Afl E1- PCOASTAL TERI:- :] : : S4I SL OA X t: 424 � APPENDIX supplies, agricultural land, open space, bluffs, dunes, wild- - Non-prime agricultural land - other coastal agricultural life, natural habitat areas. lands that are now in use for crops or grazing, or that are � Productive resources - e.g., aquaculture areas, gravel suitable for use as agricultural lands. deposits, agricultural and timber lands, petroleum resources. * Coastal-related crops - those crops that achieve substantial Manmade resources - coastal communities and neighbor- production advantages attributable to the coastal climate � Manmade resources -- coastal communities and neighbor- influerrce, including artichokes, brussels sprouts, asparagus, hoods with particular cultural, historical, architectural, and influece, including artichokes, brussels sprouts, asparagus, lima beans, snap beans, broccoli, cabbaae. carrots, cauli- aesthetic qualities. These towns and neighborhoods are flower, celery, cucumbers, spinach, tomatoes, avocados, characterized by orientation to the water, usually a small flower, celery, cucumbers, spinach, tomatoes, avocados, scale of development, pedestrian use, diversity of develop- grapefruit, lemons, oranges, strawberries, and floriculture. scale of development, pedestrian use, diversity of develop- ment and activities, public attraction and use of facilities, distinct architectural character, historical significance, or ethnic or cultural characteristics sufficient to yield a sense of identity and differentiation from nearby areas. Estuaries, Wetlands, � Historical and prehistorical resources - e.g., recognized and 'Sensitive Areas' historical landmarks such as the Franciscan missions and Fort Ross; outstanding architectural landmarks; Indian b (Coastal) estuary - all or part of the mouth of a river, burial sites and shellmounds; plant and animal-�fossils. stream, or other semi-enclosed body of water (such as a bay, * Recreational resources - e.g., beaches, coastal streams, slough, or lagoon) connecting with the sea permanently or marinas, SCUBA diving areas, scenic coastal roads, and periodically and within which seawater is continuously, other land and water areas with the potential for providing periodically, or occasionally diluted with freshwater runoff significant recreational use for the public. from the land. � Scenic resources - e.g., open space areas, coastal land- (Coastal) wetlands - saltwater and related freshwater forms, highly scenic areas. marshes and mudflats. � Educational and scientific resources - e.g., marine life � Environmentally and biologically sensitive areas - areas refuges, rare and endangered species habitat, primitive in which plant or animal life and their habitats are either areas, tidepools, wetlands. rare or especially valuable because of their special nature � Renewable resources - those of the above that can be or role in a life system and which are easily disturbed or replenished either by nature or human effort, e.g., water, degraded by human activities and developments, including: timber, agriculture, fisheries. Areas of Special Biological Significance as identified by the State Water Resources Control Board; rare and endangered � Non-renewable resources -- those of the above that are species habitat identified by the State Department of Fish finite in ultimate quantity, e.g., beaches, gravel deposits, and Game; all coastal wetlands and lagoons; allmarine, petroeum rsourcs, prmitiv area, wetands.and Game; all coastal wetlands and lagoons; all marine, petroleum resources, primitive areas, wetlands. wildlife, and education and research reserves; nearshore reefs; tidepools, sea caves; islets and offshore rocks; kelp beds; indigenous dune plant habitats; wilderness and primitive areas. Coastal Agriculture Coastal watersheds - the lands that drain into streams that in turn drain into coastal rivers, wetlands, or the ocean itself, � Coastal agricultural land - all lands within the coastal as shown on the four Coastal Resource Area maps preceding climate zone currently being used or suitable for raising the Plan Maps in Part IV. More specifically, coastal water- agricultural products (crops and livestock). sheds include all lands within the State Water Resources � Prime agricultural land - crop or grazing lands that, Control Board's Basin Planning Areas 1A (except the Lost because of soils or economic productivity, are especially River-Butte Valley Hydrographic Unit), 1 B, 2 (except all valuable, as defined in the Williamson Act: land areas that drain directly into San Francisco Bay), 3, 4A, 4B, 8, and 9. (1) All land which qualifies for rating as Class I and Class II in the Soil Conservation Service land use capability � Highly scenic areas - include (1) landscape preservation classifications. projects designated by the California Department of Parks and Recreation in the California Coastline Preservation and (2) Land which qualifies for rating 80 through 100 in the Recreation Plan; (2) open areas identified in the Coastal Storie Index Rating. Plan as being of particular value in providing visual relief (3) Land which supports livestock used for the production from urbanization, in preserving natural landforms and of food and fiber and which has an annual carrying significant vegetation, in providing attractive transitions capacity equivalent to at least one animal unit per acre between natural and urbanized areas, in carrying out the as defined by the U.S. Department of Agriculture. policies of the Coastal Plan, or as scenic open space; and (4) Land planted with fruit- or nut-bearing trees, vines, (3) scenic areas and historical districts designated by cities bushes, or crop s which thave a nonbearing period of iess and counties in their design procedures and standards pre- bushes, or crops which have a nonbearing period of less prdprun oPlc 6 than five years and which will normally return during pared pursuant to Policy 46. the commercial bearing period on an annual basis from the production of unprocessed agricultural plant pro- duction not less than $200 per acre. Types of Development (5) Land which has returned from the production of unpro- cessed agricultural plant products an annual gross value � Development - means, on land, in or under water, (1) the of not less than $200 per acre for three of the previous placement or erection of any solid material or structure; five years. (2) discharge or disposal of any dredged material or of any GLOSSARY * 425 gaseous, liquid, solid, or thermal waste; (3) grading, � Visitor-serving facilities - both public and private develop- removing, dredging, mining, or extraction of any materials; ments that provide visitor accommodations, food, and (4) change in the density or intensity of use of land, in- services, including certain commercial recreation develop- cluding, but not limited to, subdivision of land pursuant to ments such as shopping, eating, and amusement areas for the Subdivision Map Act and any other division of land, tourists, as well as hotels, motels, recreational including lot splits; (5) change in the intensity of use of vehicle and tent campgrounds, and restaurants. water, ecology related thereto, or of access thereto; � Recreational support facilities - buildings and land areas (6) construction, reconstruction, demolition, or alteration that provide goods and services for users of recreational of the size of any structure, including any facility of any facilities but that do not provide for recreational use by private, public, or municipal utility; (7) the removal or themselves, including parking lots, restaurants and snack logging of major vegetation; (8) acquisition, sale, or lease bars, recreational equipment sales and repair shops, main- of land by a public agency; (9) annexations of land to or tenance facilities, and park administrative buildings. establishment of incorporated cities or service districts; and (10) official determinations of urban service boundaries or Industrial development - buildings or facilities for the ~spheres of influence.,~ ~ ~extraction, manufacture, processing, storage, distribution, spheres of influence. and handling of materials and products, including energy � Structure - includes, but is not limited to, any building, facilities, ports, major agricultural processing plants, road, pipe, flume, conduit, siphon, aqueduct, telephone mineral extraction sites and equipment, lumbermillsand line, and electrical power transmission and distribution line. yards, processing plants, assembly plants. Development occurs in several forms, including: residential, � Public service facilities - buildings, lines, pipes, etc., commercial, industrial, institutional, agricultural, public necessary for the provision and distribution of utility service, transportation, energy, recreation (and commercial services, including water, electricity, gas, telephone, sewer, recreation), and visitor-serving facilities. As these terms solid waste disposal, storm drainage, etc., and public safety, are used in Coastal Plan policies, they generally refer to health, and welfare services, including fire houses, police both the major structures (e.g., house, apartment house, stations, civil defense, and public works facilities. highway, shopping center, factory) and appurtenant �highway, shopping center, factory) and appurtenant Energy facilities - power plants, refineries, tanker ter- structures (e.g., fences, patios, parking lots, signs, gate houses, motor yards, overhead conveyors, curbs, gutters, minals, liquefied natural gas terminals, petroleum drilling, bridges) insofar as the major structure necessitates the production, and handling facilities, or any other facilities minor structures. The terms as used generally do not apply necessary for the extraction, recovery, import, or processing minor structures. The terms as used generally do not apply ofmtrashtpovdengy to these secondary structures if proposed separately (e.g., of materials that provide energy. as structures to complete a planned system or as replace- � Transportation facilities - roads, public parking lots or ments) from the major structure or structures, though other structures, ports, airports, railroad and transit facilities policies will apply. and stations, and related structures such as bridges and � Residential development - houses (generally several) and trolley wires. other dwelling units, including single and multiple-family � Institutional development - buildings and facilities for units and mobile homes, but not including transient quarters public or quasi-public institutions such as schools, colleges, such as hotels and motels. hospitals, libraries, museums, art and music centers, and � Commercial development - buildings or facilities in which government offices. products or services are bought and sold, generally for � Agricultural development - includes farm buildings, private profit, including shops, stores, shopping centers, packing and processing plants, greenhouses, and pumps. offices, gas stations, theaters, hotels, restaurants, stands, commercial parking lots and garages. The term may also � High-intensity development - includes highrise office commercial parking lots and garages. The term may also include temporary and outdoor activities conducted for buildings, large apartment and condominium buildings, private profit where applicable. shopping centers, amusement parks, and tourist attractions. General commercial - refers to all such commercial *� Coastal-dependent developments - developments that development except commercial recreation and visitor- must have an immediate coastal site to be able to function serving facilities (see following definitions), at all. These include fishing, aquaculture, and port facilities, extraction of coastal minerals (e.g., sand and offshore � Recreation facilities - buildings and land and water areas petroleum), tanker terminals, boat works, shipyards, serving active recreational uses, such as swimming, boating, and marinas. tennis, hiking, riding, golf, ball-playing, picnicking, sun- bathing, fishing, diving, bowling, birdwatching, etc. Generally includes campgrounds, parking lots, and other support facilities, though these may not require the same Other Terms location as the principal recreational use. � Commercial recreation - pertains to facilities serving � Feasibility - Practicability based on a case-by-case public recreational needs but operated for private profit, analysis, taking into account short-term economic, social, including recreational areas and services (e.g., golf courses, and technological constraints as weighed against the long- riding stables, commercial party fishing boats), tourist term benefits of strict and immediate compliance with a attractions (e.g., Queen Mary), shopping areas (e.g., Ports Coastal Plan policy. O'Call), and amusement parks (e.g., Marineland). � Significant - important, weighty, not trivial. 426 *�APPENDIX EXAMPLES OF SUBREGIONAL PLANS Note: The following illustrates subregional planning as dis- pation of local government and citizens groups that would be cussed in Part II, Further Stages of Planning; see, particularly, necessary in preparing such plans for actual adoption. Policy 162. Although local governments and other public agencies in both subregions cooperated by providing extensive infor- mation and reports, these case studies should be regarded as preliminary tests only. In most coastal areas there is no effective system for identi- as preliminary tests only. fying the potential cumulative impact of many local decisions regarding public services and development as they will ultimately impact upon coastal resources and coastal access. Half Moon Bay What is needed is a method of assessing potential long-term impacts before commitments to specific patterns of develop- ments are made and of identifying alternative development patterns that would not adversely affect coastal resources The Half Moon Bay sample case study covers 58 square miles or access. and includes the City of Half Moon Bay, the unincorporated communities of Montara, El Granada, and Moss Beach, and rural lands in San Mateo County. Devil's Slide and the Santa Subregional plans would apply Coastal Plan policies to specific Cruz Mountains presently insulate the subregion from San geographic areas of the coast. The planning approach sug- Francisco and the urbanized portions of San Mateo County. gested below would be applied to the subregional areas The boundaries of the subregion were drawn to include the described in Part IV or to some special study areas defined entire watershed draining into Half Moon Bay, the coastal in the Coastal Plan. Two sample case studies are summar- viewshed, and the highway service system. The land use is ized below to help in understanding and evaluating the pro- presently in transition from row crops and grazing to flori- posed planning approach. culture and suburban residential development. Step 1: Existing Development Potential. A 1972 special Preliminary work on the two case studies suggests that a census estimated the population in the subregion to be 11,700. four-step process is required to establish alternatives to By overlaying maps showing developable lots, existing zoning, existing development trends. These four basic steps are: and land ownership patterns, it was determined that 15,600 � Define the nature and extent of the current implied com- residential units could potentially be constructed to house an mitment to development on the basis of local zoning and additional 48,000 residents. The result would be a population ownership patterns, of 60,000 - a five-fold increase. = Use maps delineating coastal resource and hazard Use maps delineating coastal resource and hazard Step2: Mapping of Resource and Hazards Policies. The areas to analyze the extent to which coastal protection and Coastal Plan's resource protection policies for preservation Coastal Plan's resource protection policies for preservation geologic hazards policies will affect the amount and location of prime agricultural land, coastal-related cropland, etc., of prime agricultural land, coastal-related cropland, etc., of development in specific coastal areas. were mapped. If these are protected, the number of resi- Project alternative capacities for future stages of road, dential units would be reduced by 9,500 and the ultimate sewer, and water system expansions and then the land uses population reduced by 23,000 persons. and population levels associated with each level of expansion of these systems in order to assess the potential impact on Step 3: Estimation of Development Potential Resulting from coastal resources and coastal access. The key decision points Possible Sewer, Water, and Transportation Systems Expan- and alternatives concerning the amount and location of sions. Roads and transit: The two existing inter-regional services would be spotlighted. highways (State Highways 1 and 92) can accommodate a � Using the information from the first three steps, apply 4,500-person increase in the residential population before development policies (concerning density, concentration reaching capacity at the poorest service level (30 mph) of development, manmade resources, etc.) to determine during peak use periods. alternative development patterns that would beconsistent Proposals have been made to reroute the two inter-regional with all Coastal Plan policies. These alternatives would highways and expand the roadway from two to four lanes. attempt to determine development priorities for specific The road cuts, fills, and new alignment would significantly areas, identify where density increases or reductions should conflict with the Coastal Plan policies that are designed to occur, and indicate precautions necessary to protect specific protect the scenic quality of coastal landscapes. If Highway 1 sensitive resource areas. is rerouted and expanded to four lanes, the residential popu- lation could increase to 36,000 before reaching capacity. A Along with the analysis required in these four steps, a moni- residential population of 57,000 could be accommodated if toring system should be created for evaluating the effective- Highways 1 and 92 were both rerouted and widened to ness of the subregional planning process in protecting coastal four lanes. resources and preserving coastal access. The Half Moon Bay area, however, is currently being trans- formed into a regional recreation center; there are proposals The following summaries of case studies indicate how this to develop a 1,000-boat marina, expand county and State approach would apply in a heavily-urbanized area and in a recreation areas by 6,241 acres, and intensify recreational low-density, rural area. Because of lack of time, the two use in existing coastal parks. Proponents for expanding the sample case studies did not employ the active, full partici- capacities of Highways 1 and 92 have argued that the primary EXAMPLES OF SUBREGIONAL PLANS * 427 reason is to serve recreational traffic. But projected recrea- through substitution of reclaimed waste water, County Coast- tional traffic to the proposed facilities would congest even the side Water District must construct a pipeline across the Santa four-lane versions of both highways on peak weekends; Cruz range to obtain the Crystal Springs Reservoir water for transit alternatives to highway expansion may be needed to which it has a 10 million gallons per day contract. In addition, resolve the recreational road congestion problem (e.g., a substantial increase in residential, recreational, and agri- possible use of San Mateo County Transit District buses on cultural water demand would have to be promoted to finance weekends). This recreational traffic volume would be an the large capital investment required to construct the pipeline. alternative to the volume an additional 57,000 residents Assessment of properties within the water district to pay for would create. Both cannot be accommodated without addi- the pipeline may force conversion of agricultural lands to tional roads. urban uses, a major conflict with Coastal Plan policies. Water supply and sewage treatment systems: It was estimated Other water supply alternatives might require stream im- that both the water supply and wastewater systems in the poundments or groundwater withdrawal with potential subregion can accommodate a 6,000-person increase in popu- impacts on sediment transport, biotic communities, or anadromous species that will conflict with Coastal Plan lation before reaching their designed service capacity of 18,500 persons. Expansion of the water supply system beyond policies; for example, Coastside Water District must limit its the design capacity depends on both the extent to which proposed groundwater withdrawal program to prevent salt- reclaimed wastewater can be used to supply agriculture water intrusion of Pillar Point marsh. demands and the development of new domestic water sup- Expansion of sewage treatment capacity in excess of current plies. Unless agricultural use of domestic water is reduced Department of Finance population projections of 13,500 for Possible population based on city and POPULATION county plans 60,000- Expand Highway 1 to s four lanes (service level:E" E") and import water i from Crystal Springs Reservoir 36,000 - 39,000 Existing wastewater Existing capacity of and water capacity Highway 1 at service 18,500- level 'E" 16,500 Existing population Population Increase . EXISTING AND MODIFIED LEVELS OF PUBLIC SERVICE CAPACITIES - HALF MOON BAY CASE STUDY - 428 * APPENDIX the Half Moon Bay area must be funded totally by the local Huntington Beach utility. If the sewage plan expansion is considerably greater than the capacity funded by State and Federal grants, assess- The Huntington Beach sample case study is in northwest ment of properties within the sewage district to pay for the Orange County and covers the 5-mile-wide coastal zone Orange County and covers the 5-mile-wide coastal zoneO excess capacity may force conversion of agricultural lands between the cities of Seal Beach (Anaheim Bay) and Newport to urban uses. ~~~~~~~~~betwveen the cities of Seal Beach (Anaheim Bay) and Newport to urban uses. Beach (the Santa Ana River). This area is actually part of a larger subregion that includes Alamitos Bay in Long Beach Step 4: Alternative Development Levels and Patterns Con- a larger subregion that includes Alamitos Bay in Long Beach and much of Newport Beach. The larger subregion is charac- sistent with Coastal Plan Density and Access Policies. The and much of Newport Beach. The larger subregion is charac- terized by similar development pressures, public service previous step suggests two population levels as a basis for terized by similar development pressures, public service commitments, and transportation and coastal access problems. posing alternative development patterns that would be in corwith Ctaltanaive d opnt ternsith wofu e and Because of lack of time, this sample illustration of the sub- accord with Coastal Plan policies on intensity of use and regional planning process is limited to the Bolsa Chica accessibility to coastal resources: (1) a population level of regional planning process is limited to the Bolsa Chica Lowlands and Townlot area of Huntington Beach. 16,500 (the decision point on expanding the existing highways) Lowlands and Townot area of Huntington Beach. to 18,500 (the decision point on expanding the existing waste- Step 1: Existing Development Potential. Huntington Beach water and water supply capacity); and (2) a population level is one of the fastest-growing communities in southern of 36,000 to 39,000, with Highway 1 at four lanes and water California. During the past 10 years the population has being imported. increased from 15,000 to 150,000, and the city's general Patterns of development atthe6,500-to-18,500population plan projects up to 250,000 persons by the year 2000. Roughly � Patterns of development at the 16,500-to-18,500 population level: One possible developmentpatternatthispopulation 80 per cent of future growth in the area is expected to occur level: n psis te development of vacanat lths wiulthinthsal level is the development of vacant lots within the small along the primary coastal access roads and in the nearcoast communities of Montara, Moss Beach, El Granada, and area, with the major part of this growth expected in the communities of Montara, Moss Beach, El Granada, and Half Moon Bay. Development would be permitted only following areas: the unincorporated Bolsa Chica Lowlands where it would not conflict with the Commission's resource (26,200 persons), Standard Oil properties (22,570), Huntington protection policies, with development priority for lots Harbour (14,200), the Townlots (9,500), and the Highway 39 and Warner Avenue corridors (88,000). Huntington Beach presently served by water, sewer, and road facilities. The and Warner Avenue corridors (88,000). Huntington Beach bulk of the remaining land is in a single ownership, and may be an appropriate area to encourage development this may make it possible for the allowable level of develop- because of its proximity to major employment centers, but ment to be concentrated in areas of the holdings where the key issue is how to do this without adversely affecting coastal resources and access. the resources have already been altered, thus preserving coastal resources and access. the remaining lands for open space and agricultural uses. Step 2: Mapping Resource and Hazard Policies. Resource An alternative pattern of development would allocate a areas that should not be developed: The Bolsa Chica Lowlands areas40 thtsoul not0 bces deeoped The Blas an Chioab Lwlands, significant portion of road, water, and sewer services to are 1,400 to 1,600 acres of wetlands and restorable wetlands, recreational visitors. For instance, if the remaining peak- portions of which are in agricultural use. This area is one of hour capacity of Highway I were allocated for recreational four Planning Reserve Areas designated by the county as access instead of residential development, the existing needing critical planning decisions in the next few years. It highway could serve approximately 18,000 recreational is surrounded by residential development. Two major projects travelers during a three-hour peak travel period. Additional are proposed for the lowlands: (1)the State Department of residential development would have to be limited until Fish and Game, cooperating with other agencies, plans to Highway 1 is improved or inter-regional transit is provided. restore portions of the wetlands (about 380 acres) and to Similarly, additional residential development will likely develop about 150 acres as a commercial marina and small compete with recreational development for water supply craft harbor; and (2) Signal Properties proposes to develop caf hrbo;ad()Sigental Prmuit oprties2 proposesi toe develop and sewage services available from the existing systems. a residential community for 26,200 people in the remainder Reserving the water supply and wastewater treatment for of the former wetlands. Proposed land uses must comply with rereaional uses wot upl ad limiwte tresietia eeoment tor recreational uses would limit residential development to Coastal Plan Policy 15, which states that no development of a maximum of 14,000 persons. former wetlands is permitted unless the area cannot be restored. Only the restoration program is clearly in compliance l Pattern of development at the 36,000-the-39,000 population with the adopted policy; the residential and marina proposals level: To reach this population level, higher-density develop- present substantial conflicts with the Coastal Plan and require ment would probably have to occur within the subregion. further study and project modification or relocation. As lands not covered by resource protection policies become developed, the undeveloped coastal resource areas - Hazard areas in which development should be modified: including agricultural lands and view corridors - would Huntington Beach is traversed by the active Newport- come under more intense pressure for development. Agri- Inglewood fault system; the greatest potential for surface cultural, recreational, and residential uses would continue rupture occurs from Bolsa Chica Lagoon northwest through to compete for water supplies. Competition would continue Huntington Harbour. According to Policy 67, structures for between recreational and residential development for human occupancy would be allowed only if site treatment and wastewater treatment service and highway capacity. construction techniques can overcome the hazard. This policy would affect the city's existing commitment to the proposed It should be noted that the 36,000-39,000 population level planned residential community in the Bolsa Chica Lowlands coincides with the maximum population growth that could for 26,200 persons. Similarly, Policy 23, which directs that occur under current zoning without having direct adverse development shall not adversely affect the recharge capacity effects on coastal resource areas (see Step 2 analysis). o of floodplain areas, would also discourage the paving and go above this population figure without encroaching on covering with residences of the substantial floodplain area. resource areas would require an increase in zoning beyond present densities to allow intensification of development in Recreation and education priority uses: Related Marine non-resource areas. Transfer of development rights from Environment and Recreation policies would encourage the resource areas to high intensity areas might also be proposed restoration program and the creation of a recreation necessary if the lands involved are not all in the same center primarily addressed to environmental education and ownership. science but linked by transit and trails to surrounding parks, EXAMPLES OF SUBREGIONAL PLANS * 429 beaches, and other nearby visitor areas. The Plan policies ment pressures on the fragile Bolsa Chica resource could relegate residential development in the lowlands to a low be relieved by channeling higher intensity development priority and substantially reduce the number of units that toward areas with available service capacities and public could be constructed in the unincorporated Bolsa Chica area. transit potential. Based on the foregoing analysis, the following development Step 3: Estimation of Development Potential Resulting From alternatives might be consistent with the Plan: Possible Sewer, Water and Transportation Systems Expan- sions. Coastal access: The existing development commitment * Intensifying development along major coastal access routes (Step 1) assumes the need for increasing beach access, com- (Route 39, Warner, and Golden West); mercial resort and overnight uses, and restoration and � Restricting residential development in the Bolsa Chica management of the Bolsa Chica Lowlands. The proposal to Lowlands and increasing densities along the major road construct the 1,800-boat harbor and marina in Bolsa Chica, corridors in conjunction with transit plans; however, might require a bridge on Highway 1 to provide a new boat entrance for the marina. More critically, it would * intensifying resort commercial development in the down- generate substantial traffic (500,000 visitors per year) that town areas; would compete with other recreation activities (day-use beach * Developing recreation and visitor-serving facilities in activities) for the limited remaining road capacity. Based on Huntington Harbour; and existing and projected congestion along Highway 1 and key * Expanding the current Central Park concept to include coastal access roads, improved access for the boating publicnkages via g linkages via greenbelt and trails with the Bolsa Chica Low- may be achieved at the expense of area beach and park users. lands and Bolsa Chica State Beach, including provision of Therefore, potential marina sites (such as Pier J in Long upland support and buffer park facilities (parking, passive Beach) that might not create these conflicts should be con- areas, etc.) sidered as alternatives. In contrast, development of a sizable portion of the unde- Transportation - key decision points and alternatives: The primary public service commitments affecting the level of mercial and residential purposes would result in (1) the loss improvements. The key coastal access routes for inland of scenic viewshed, recreation land, and open space; (2) com- improvements. The key coastal access routes for inland residents, Warner Avenue, Highway 39, and Golden West mitment of a sizable portion of one of the last remaining wetland habitats in the South Coast to intensive recreation/ Street, must accommodate most of the increasing visitor comme rcial use; (3) dredging a channel to the marina through traffic; according to city projections, these corridors also commercial use; (3) dredging a channel to the marina through will accommodate about half of the city's projected residential the State Beach and highway; and (4) excessive public costs growth. Highways 1 and 39 are already at or near capacity, and Warner Avenue will exceed design capacity by the year residential development in an area with severe geologic and 2000. Only six-lane Golden West Street appears Capable of Iflood plain hazards. The commitment to develop the Bolsa absorbing the expected traffic increase based on current Chica Lowlands also would continue a pattern of consuming design. Therefore, basic decisions concerning road and transit vast coastal land areas for low density sprawl (e.g., Sunset service levels must be made in the near future. Buildout to Heights, and Townlots areas). the projected population should involve the consideration of Shifting the proposed Bolsa Chica residential development specific transit proposals, including: improved public transit to other parts of the City with good public services would service along major coastal access routes (Highway 39, Golden have the following positive impacts: (1) a density shift with West, and Warner); development of the Orange County rail development at higher densities in the Townlots area would corridor for passenger service; development of visitor desti- facilitate the provision and maintenance of public transit along nation points combined with park-and-ride shuttle service to major access routes; (2) dependence on the automobile would public beaches and the downtown area; and resolution of be diminished, thus contributing to improved air quality and alternative proposals for the Highway 1 Transportation coastal access; (3) efficiency of existing public services might Corridor behind Bolsa Chica. be improved and the high costs associated with development in the lowlands area might be avoided; and (4) new incentives Step 4: Alternative Development Levels and Patterns Con- could be offered to landowners (in the form of increased sistent with Coastal Plan Density and Access Policies. Low- densities) that would encourage the consolidation of lots and density residential development in the Bolsa Chica Lowlands blocks in areas such as the Townlots area to enable the pro- would conflict with Policy 59 (concentrating development) vision of a mix of housing types and costs, with an increase as long as additional development could be accommodated in public open space and parkland and a more coordinated in the already developed, serviced portion of the city. Develop- approach to site planning and design. 430 * APPENDIX HOW THE COASTAL PLAN WAS PREPARED The California Coastal Plan was prepared in a unique monthly through 1974. Each Region made its recommenda- manner that sought the full involvement of the largest pos- tions on each plan element to the State Commission, which sible number of people throughout the State. then adopted a composite of the six sets of recommenda- tions and resolved any conflicts among recommendations. The foundation of the process was the Coastal Act itself (Proposition 20), which established six Regional Commis- Early in 1975 a Preliminary Plan was compiled from adop- sions in addition to the one statewide Commission; this was ted Plan Elements, together with a map section and explan- designed to give the public maximum access to and in- atory text in which each Regional Commission illustrated volvement with the Commissions, and to encourage devel- how the statewide policies would apply to the specific opment of policies and plans sensitive to the different coastal areas in each region. needs of the different Regions. All during this time, the seven Commissions were also Building on that foundation, the Regional and State carrying out the other major responsibility given them by the Commissions cooperated in setting up a planning process the Coastal Act: regulating virtually all development within that: (1) the plan would be developed in a series of ele- 1,000 yards of the ocean to forestall any developments that ments, e.g., recreation, marine environment, etc., which might conflict with the Plan as it was being prepared. Over would be more understandable than attempting to present 15,000 permit applications were processed by the Commis- the whole plan at once; (2) the Regional Commissions sions, ranging from single-family homes to divisions of would all consider each element at the same time, to max- agricultural lands to power plants and offshore petroleum imize attention and visibility In the press and thus public development. Many practical lessons from the permit ex- understanding of the issues being discussed; (3) the basic perience entered into the evolving plan, giving the Com- background research for each element would be done cen- missioners full knowledge of the practical problems of traily by the State Commission staff to save time and making coastal development compatible with protecting money from otherwise duplicative efforts and to assure that coastal resources. Indeed, one of the strengths of the Plan virtually all ideas would get exposure in each Region. is its basis on this knowledge of the real issues in coastal Together, the elements covered all those required by the conservation and development. Coastal Act (see Section 27304 in full text elsewhere in the Appendix.) Nineteen public hearings (and countless informal meetings) were held on the Preliminary Plan in coastal communities Each Commission had a staff, and many used outside con- during April and May 1975, and one more in Fresno, so sultants on various aspects of the planning. Consistently, that inland Californians could make their views known to the Commissions and staffs sought - and received - ad- the Commissions. From the results, a final plan and defini- vice from experts in many fields, representatives of interest tive proposals for its implementation were developed, and groups (both developers and citizen organizations), State the Regional maps and texts were reviewed for their consis- and Federal agencies, and thousands of individuals. Con- tency with statewide policies, and thereupon approved by munication has been in person, in writing, by telephone - the State Commission. and in hundreds of public meetings and hearings held at the local, Regional, and State level. As quickly as possible, In all, nine separate planning elements and the Preliminary new ideas brought up in one Region were forwarded to the Plan were evolved in an unusually open planning process in other Regions for maximum possible exposure and debate. the space of only about 18 months - an undertaking that required constant dedication of Commissioners, staffs, and The planning process was organized during the early the thousands of participants. The Plan is thus a document months of 1973. The first formal hearings on the first plan honed by the direct involvement of thousands of Califor- element got under way in October 1973, and continued nians with a broad range of ideas, goals, and concerns. CALIFORNIA COASTAL ZONE CONSERVATION ACT * 431 THE CALIFORNIA COASTAL ZONE CONSERVATION ACT OF 1972 ('Proposition 20') as amended by Chapters 28 and 1014 (1973) amendments printed in bold type The people of the State of California do enact 27102. (a) "Commission" means the California (d) Each regional commission shall adopt a map as follows: Coastal Zone Conservation Commission. delineating the precise boundaries of the permit area SECTION 1. Division 18 (commencing with Section within 60 days after its first meeting and ile a copy of 27000) isadded to the Public Resources Code, to read: (b) "Regional commission" means any regional such map in the office of the county clerk of each coasta zoneconsevationcommision.such map in the office of the county clerk of each coastal zone conservation commission. county within its region. In delineating any Inland DIVISION 18. CALIFORNIA COASTAL 27103. "Development" means, on land, in or boundary of the permlt area, thereglonalcommlsslon ZONE CONSERVATION COMMISSION under water, the placement or erection of any solid may adjust such boundary by moving it seaward by material or structure; discharge or disposal of any myads uch bunty ony not more than 50 yards. Such adjustments may only CHAPTER 1. GENERAL PROVISIONS dredged material or of any gaseous, liquid, solid, or be made to avoid bisecting any lot or parcel owned by CHAPTER 1. GENERAL PROVISIONS thermal waste; grading, removing, dredging, mining, the same prson or to conform to Identifiable physical AND FINDINGS AND DECLARATIONS or extraction of any materials; change in the density natural or manmade features such as streets, high- OF POLICY or intensity of use of land, including, but not limiteder to more eicntly ways, or any structures, in order to more efficiently 27000. This division may be cited as the California to, subdivision of land pursuant to the Subdivision carry out the provisions of Chapter 5 (commencing Coastal Zone Conservation Act of 1972. Map Act and any other division of land, including lot with Section 27400) of this division. splits; change in the intensity of use of water, ecology 27001. The peopleof the State of California hereby related thereto, or of access thereto; construction, 27105. "Person" includes any individual, organi- find and declare that the California coastal zone is a reconstruction, demolition, or alteration of the size zation, partnership, and corporation, including any distinct and valuable natural resource belonging to of any structure, including any facility of any private, utility and any agency of federal, state, and local all the people and existing as a delicately balanced public, or municipal utility, and the removal or government. ecosystem; that the permanent protection of the logging of major vegetation. As used in this section, 27106. "Sea" means the Pacific Ocean and all the remaining natural and scenic resources of the coastal "structure" includes, but is not limited to, any zone is a paramount concern to present and future buildingharbors, bays, channels, estuaries, salt marshes, bu Idring, road, pipe, flume, conduit, siphon, aque- residents of the state and nation; that in order to duct,telephoneline,andelectrical powertransmission sloughs, and otherareassubject totidal action through promote the public safety, health, and welfare, and and distribution line. a c nnection with the Pacific Ocean, excluding non- to protect public and private property, wildlife, marine estuarine rivers, streams, ribuaries, creeks and fisheries, and other ocean resources, and the natural 27104. "Permit area" means that portion of the flood control and drainage channels. environment, it is necessary to preservetheecological coastal zone lying between the seaward limit of the balance of the coastal zone and prevent its further jurisdiction of the state and 1,000 yards landward MEMBER- deterioration and destruction; that it is the policy of fromthemeanhightidelineoftheseasubject to the the state to preserve, protect, and, where possible, following provisions: SHIP, AND POWERS OF COMMISSION to restore the resources of the coastal zone for the (a) The area of jurisdiction of the San Francisco AND REGIONAL COMMISSIONS (a) The area of jurisdiction of the San Francisco enjoyment ofthecurrentandsucceedinggenerations; Bay Conservation and Development Commission, Article 1. Creation and Membership of and that to protect the coastal zone it is necessary: togetherwith all contiguous areas2,900 feet landward Commissions and Regional Commissions (a) To study the coastal zone to determine the thereof, and any river, stream, tributary, creek, or ecological planning principles and assumptions need- flood control or drainage channel which flows into 27200. The California Coastal Zone Conservation ed to ensure conservation of coastal zone resources. such area, is excluded. Commission is hereby created and shall consist of the following members: (b) To prepare, based upon such study and in full (b) If any portion of any body of water which is not consultation with all affected governmental agencies, subject to tidal action lies within the permit area, the (a) Six representatives from the regional com- private interests, and the general public, a compre- body of water together with a strip of land 1,000-feet missions, selected by each regional commission from hensive, coordinated,enforceableplanfortheorderly, wide surrounding it shall be included; provided, among its members. long-range conservation and management of the however, that this subdivision does not apply to any (b) Six representatives of the public who shall not natural resources of the coastal zone, to be known as river, stream, tributary, creek, or flood control or be members of a regional commission. the California Coastal Zone Conservation Plan. drainage channel when a portion of it lies within the ()Tesrtaandvlpnwhcocr permit area. 27201. The following six regional commissions are (c) To ensure that any development which occurs hereby created: in the permit area during the study and planning (c) Any urban land area which is (1) a residential period will be consistent with the objectives of this area zoned, stabilized and developed to a density of (a) The North Coast Regional Commission for Del division. four or more dwelling units per acre on or before Norte, Humboldt, and Mendocino Counties shall January 1, 1972; or (2) a commercial or industrial consist of the following members: (d) To create the California Coastal Zone Conset- areazoned, developed, and stabilized for such useon (1) One supervisor and one city councilman from vation Commission, and six regional coastal zone or before January 1, 1972, may, after public hearing, each county. conservation commissions, to implement the pro- conservation commissions, to implement the pro- beexcludedbytheregionalcommissionattherequest (2) Six representatives of the public. visions of this division. ~visions of this division. of a city or county within which such area is located. An urban land area is "stabilized" if 80 per cent of (b) The North Central Coast Regional Commission CHAPTER 2. DEFINITIONS the lots are built upon to the maximum density or for Sonoma, Marin, and San Francisco Counties 27100. "Coastal zone" means that land and water intensity of use permitted by the applicable zoning shall consist of the following members: area of the State of California from the border of the regulations existing on January 1, 1972. (1) One supervisor and one city councilman from State of Oregon to the border of the Republic of Tidal and submerged lands, beaches, and lots Sonoma County and Marin County. Mexico, extending seaward to the outer limit of the immediatelyadjacenttotheinlandextentofanybeach (2) Two supervisors of the City and County of state jurisdiction, including all islands within the or of the mean high tide line where there is no beach San Francisco. jurisdiction of the state, and extending inland to the shall not be excluded. (3) One delegate to the Association of Bay Area highest elevation of the nearest coastal mountain Governments. range, except that in Los Angeles, Orange, and San Orders granting such exclusion shall be subject (4) Seven representatives of the public. Diego Counties, the inland boundary of the coastal to conditions which shall assure that no significant zone shall be the highest elevation of the nearest change in density, height, or nature of uses occurs. (c) The Central Coast Regional Commission for San Mateo, Santa Cruz, and Monterey Counties shall coastal mountain range or five miles from the mean An order granting exclusion may be revoked at consist of the following members: high tide line, whichever is the shorter distance. any time by the regional commission, after public 27101. "Coastal zone plan" means the California hearing. (1) One supervisor and one city councilman from ~~~~~~Coastal Zone Conservation Plan.,~~ ~each county. Coastal Zone Conservation Plan. 432 � APPENDIX (2) One delegate to the Association of Bay Area appointment to the commission. the following has a financial iterest: the member or Governments. employee himself; his spouse; his child; his partner; (3) One delegate to the Association of Monterey Article 2. Organization any organization in which he is then serving or has, Bay Area Governments. 27220. Each public member of the commission or within two years prior to his selection or appointment (4) Eight representatives of the public, of a regional commission shall be a person who, as to or employment by such commission or regional (d) The South Central Coast Regional Commission a result of his training, experience, and attainments, commission,served,inthecapacityofofficer,director, for San Luis Obispo, Santa Barbara, and Ventura is exceptionally well qualified to analyze and interpret trustee, partner, employer or employee; any organi- Counties shall consist of the tollowing members: environmental trends and informatidn, to appraise zation within which he is negotiating for or has any resource uses in light of the policies set forth in this arrangement or understanding concerning prospec- (1) One supervisor and one city councilman from division, to be responsive to the scientific, social, tive partnership or employment. each county. aesthetic, recreational, and cultural needsof the state., (2) Six representatives of the public. 27232. In any case within the coverage of Section (2) Six representatives of the public. Expertise in conservation, recreation, ecological and 27230, or Section 27231 when the commission deter- (e) The South Coast Regional Commission for Los physical sciences, planning, and education shall be mines that in any case within the coverage of such Angeles and Orange Counties shall consist of the represented on the commission and regional comn- section the financial interest involved Is not substan- following members: missions. tial, the prohibitionstherein contained shall not apply (1) One supervisor from each county. 27221. Each member of the commission and each if the person concerned advises the commission in (2) One city councilman from the City of Los regional commission shall be appointed or selected advance of the nature and circumstances thereof, Angeles selected by the president of such not later than December 31, 1972. includingfull publicdisclosureof the facts which may city council.Eah othsalbe o potentially give rise to a violation of this article, and Each appointee of the Governor shall be subject to (3) One city councilman from Los Angeles County t obtains from the commission a written determination confirmation by the Senate. from a city other than Los Angeles. from a city other than Los Angeles. that the contemplated action will not adversely affect (4) One city councilman from Orange County. 27222. In the case of persons qualified for mem- the integrity of the commission or any regional com- (5) One delegate to the Southern California Asso- bership because they hold a specified office, such mission. Any determination made pursuant to this ciation of Governments. membership ceases when their term of office ceases, section shall require the affirmative vote of two-thirds (6) SIx representatives of the public. Vacancies which oCcur shall be filled in the same of the members of the commission. manner in which the original member was selected (f) Th e San Diego Coast Regional Commission for mannerinwh ct e o rgrwas selected 27233. Nothing' in this article shall preclude or San Diego County, shall c onsist of the followingr appointed prevent any member of the commission or any re- San Diego County, shall consist of the following members: 27223. Except as provided in this section, members gional commission, or any employee thereof, who is shall serve without compensation but shall be reim- also an employee of another public agency, a county (1) Two supervisors from San Diego County and bursed for the actual and necessary expenses incurred supervisor, city councilman, member of the Associa- two city councilmen from San Diego County, in the performance of their duties to the extent that tion of Bay Area Governments, member of the Asso- at least one of whom shall be from a city which reimbursement is not otherwise provided by another ciation of Monterey Bay Associated Governments, lies within the permit area. public agency. All members shall receive fifty dollars delegate to the Southern California Association of (2) One city councilman from theCityofSan Diego, ($50) for each full day of attending meetings of the Governments, or member of the San Diego Compre- selected by the city council of such city. commission or of any regional commission. hensive Planning Organization, and who has In such (3) One member of the San Diego Comprehensive designated capacity voted or acted upon a particular Planning Organization. 27224. The commission and regional commissions matter, from voting or otherwise acting upon such (4) Six representatives of the public, shall meet no less than once a month at a place con- matter as member of thecommisson orany regional matter as a member of the commission or any reglonal venient to the public. Unless otherwise provided in 27202. All members of the regional commissions this division, no decision on permit applications or commission, or employee thereof, as the case may this division, no decision an permit applications or be. Nothing In this section shall be construed to and public members of the commission shall be on the adoption of the coastal zone plan or sny part exempt any suc h member of the commission or any selected or appointed as follows:ol the commission or any selected or appointed as follows: thereof shall be made without a prior public hearing. regional commission, or any employee thereof, from (a) All supervisors, by the board of supervisors All meetings of the commission and each regional any other provision co this article. on which they sit; commission shall be open to the public. A majority affirmative vote of the total authorized membership 27234. Any person who violates any provision of (b) All city councilmen except under subsections shall be necessary to approve any action required or this article shall, upon conviction, and for each such (e) (2) and (f) (2), by the city selection committee of permitted bythisdivision, unlessotherwiseprovided. offense, be subject to a fine of not more than ten their respective counties; 27225. The first meeting of the commission shall thousand dollars ($10,000) or imprisonment in the (c) All delegates of regional agencies, by their beno later than February 15, 1973. Thefirst meeting state prison for not more than two years, or both. respective agency; of the regional commissions shall be no later than February 1, 1973. Article 3. Powers and Duties (d) All public representatives, equally by the Governor, the Senate Rules Committee and the 27226. The headquarters of the commission shall 27240. The commission and each regional com- Speaker of the Assembly, provided that the extra be in a city, county, or city and county which lies, mission, may: member under (b) (4) and the extra member under In whole or in part, within the coastal zone. (a) Accept g-ants, contributions, and appropria- (c) (4) shall be appointed by the Governor, the Senate tions; Rules Committee and the Speaker of the Assembly Article 2.5. Conflicts of Interest (b) Contract for any professional services if such respectively. 27230. Except as hereinafter provided none of the work or services cannot satisfactorily be performed 27203. A member of a regional commission who is following persons shall appear or act, in any capacity by its employees; also a supervisor from a county or city and county whatsoever except as a representative of the state, or with a populatIon greater than 650,000 may, subject political subdivision thereof, in connection with any (C) Be ue d and sue to obtain any remedy to res- to confirmation by his appointing power, appoint an proceeding, hearing, application, request for ruling cision o ion c on e the alternate member to represent him at any regional or other official determination, judicial or otherwise, Ammission O r any regional commission, the State commission meeting. The alternate member shall in which the coastal zone plan, or the commission or Attorney General shall provide necessary legal repre- serve at the pleasure of the member who appointed any regional commission is involved in an officialsentation. him. The alternate member shall have the same capacity: (d) Adopt any regulations or take any action it qualifications as a public member pursuant to Section deems reasonable and necessary to carry out the 27220. An alternate member shall have all of the (a) Any member or employee of the commission orwers and dutiesas a member of t0 regional commission; provisions of this division, but no regulations shall powers and duties as a member of ther regional comm be adopted without a prior public hearing. mission, except that the alternate member shall only (b) Any former member or employee of the com- participateand votein meetings In the absence of the mission or regional commission during the year 27241. T he c ommission and regiona l commissions member who appointed him. following ermination of such membership or em- may requea ste and utilize the advice and services of all An alternate member shall be entitled to a payment ployment; federal, state, and local agencies. Upon request of a regional commission any federally recognized regional and reimbursement for the necessary expenses, (c) Any partner, employer, an employee of a planning agency within its region shall provide staff pursuant to Section 27223, incurred In participating member or employee of the commission or any re- assistance insofar as its resources permit. in regional commission meetings. Either the member gional commission, when the matter in issue is one of the regional commission or his alternate member which is under the official responsibility of such 27242. All elements of the California Compre- shall receive such payment and reimbursement for member or employee, or in connection with which hensive Ocean Area Plan, together with all staff and the necessary expenses pursuant to this division. If such member or employee has acted or is scheduled funds appropriated orallocatedtoit, shall bedelivered both the member of the regional commission and his to act, in any official capacity whatsoever. by the Governor and shall be attached and allocated alternate member attend and participate In any por. to the commission at its first meeting. tion of a regional commission meeting, only the alter- 27231. No member or employee of the commission and each regional corn- nate member shall be entitled to such a payment and or any regional commission shall participate, in any is reimbursement for attending that particular meeting official capacity whatsoever, in any proceeding, mission shall each elect a chairman and appoint an hearing, application, requestforrulingorotherofficial executive director, who shall be exempt from civil An alternate member shall not be eligible for determination, judicial or otherwise, in which any of service. CALIFORNIA COASTAL ZONE CONSERVATION ACT � 433 CHAPTER 4. CALIFORNIA COASTAL (c) OnorbeforeDecember l,1975,thecommission incurred in obtaining the enactment of an ordinance ZONE CONSERVATION PLAN shall adopt the coastal zone plan and submit it to the in relation to the particular development or the is- Legislature for its adoption and implementation. suance of a permit shall not be deemed liabilities for Article 1. Generally work or material. 27300. The commission shall prepare, adopt, and CHAPTER 5. INTERIM PERMIT CON- 27405. Notwithstanding any provision in this submit to the Legislature for implementation the TROL chapter to the contrary, no permit shall be required California Coastal Zone Conservation Plan. for the following types of development: Article 1. General Provisions 27301. The coastal zone plan shall be based upon (a) Repairs and improvements not in excess of detailed studies of all the factors that significantly person seven thousand five hundred dollars ($7,500) to exist- affect the coastal zone wishing to perform nydevelopment within the permit Ing single-family residences; provided, that the com- area shall obtain a permit authorizing such develop- mission shall specify by regulation those classes of 27302. The coastal zone plan shall be consistent ment from the regional commission and, if required development which involve a risk of adverse envi- with all of the following objectives: by law, from any city, county, state, regional or local ronmental effect and may require that a permit be (a) The maintenance, restoration, and enhance- agency. obtained. ment of theoverall qualityofthecoastalzoneenviron- Except as provided in Sections 27401 and 27422, (b) Maintenance dredging of existing navigation ment, including, but not limited to, its amenities and no permit shall be issued without the affirmative vote channels or moving dredged material from such aesthetic values, of a majority of the total authorized membership of channels to a disposal area outside the permit area, (b) The continued existence of optmmpua the regional commission, or of the commission on pursuant to a permit from the United States Army tions of all species of living organisms. appeal. Corps of Engineers. (c) The orderly, balanced utilization and preser- 27401. No permit shall be Issued for any of the (c) Repair or maintenance activities of any sort; vation, consistent with sound conservation principles, following without the affirmative vote of two-thirds provided, that such activities do not result In an of all living and noniving coastal zone resources. of the total authorized membership of the regional additionto, orenlargementor expansion of, theobject Aodnecommission, or of the commission on appeal: of such repair or maintenance activities. (d) Avoidance of irreversible and irretrievable (a) Dredging, filling, or otherwisealtering any bay, commitments of coastal zone resources. Article 2. Permit Procedure estuary, salt marsh, river mouth, slough, or lagoon. Artile 2 Permit Procedure 27303. The coastal zone plan shall consist of such 27 capstal and stalonts of polisujcth (b) Any development which would reduce the size 27420. (a) The commission shall prescribe the maps, text and statements of policies and objectives maps, thex and atermin es arn bectvess of any beach or other area usable for public recreation. procedures for permit applicatios and their appeal as the commission determines are necessary. 27304. Theplan shall contain at least the following (c) Any development which would reduce or im- and may require a reasonable filing fee and the specific components: pose restrictions upon public access to tidal and reimbursement of expenses. All such fees and submerged lands, beachesandthe mean hightidellne reimbursements collected heretofore or hereafter (a) A precise, comprehensive definition of the where there is no beach, shall be credited to, and shall be in augmentation of, public Interest in the coastal zone, the appropriation made In Section 4 of Proposition 20 (d) Any development which would substantially as approved by the electorate at the general election (b) Ecological planning principles and assumptions interfere with or detract from the line of sight toward on November 7, 1972, and are hereby appropriated to be used in determining the suitability and extent the sea from the state highway nearest the coast. to the commission for the same period and for the of allowable development. (e) Any development which would adversely affect same purposes as set forth therein. (c) A component which includes the following water quality, existing areas of open water free of (b) The regional commission shall give written elements: visible structures, existing and potential commercial public notice of the nature of the proposed develop- (1) A land-use element. and sport fisheries, or agricultural uses of land which ment and of the time and place of the public hearing. (2) A transportation element. are existing on the effective date of this division. Such hearing shall be set no less than 21 nor more and management ofthe scenic and other natural al commission has first found, both of the following: is filed. re~~~~~~~~~~~~lcmisiou asfrest onb of the coastlzowne. (resources4o)hoe (a) That the development will not have any sub- (c) The regional commission shall act upon an (4) A public access element for maximum visual and physical use and enjoyment of the coastal stantial adverse environmental or ecological effect. application for permit within 60 days after the con- clusion of the hearing and such action shall become zone by the public. (b) That the development is consistent with, the final after the tenth working day unless an appeal (5) A recreation element. findings and declarations set forth in Sections 27001 is filed within that time. (6) A public services and facilities element for the and with the objectives set forth in Section 27302. general location, scale, and provision in the 27421. Each unit of local government within the least environmentally destructive manner of The applicant shall have the burden of proof on permit area shall send a duplicate of each application public services and facilities in the coastal all issues. for a development within the permit area to the zone. This element shall include a power plant 27403. All permits shall be subject to reasonable regional commission at the time such application for siting study. terms and conditions in order to ensure: a local permit is filed, and shall advise the regional (7) An ocean mineral and living resources element. commission of the granting of any such permit. (8) A population element for the establishment of (a) Access to publicly owned or used beaches, maximum desirable population densities. recreation areas, and natural reserves is increased 27422. The commission shall provide, by regula- maximum desirable population densities. tion, for the issuance of permits by the executive (9) An educational or scientific use element to the maximum extent possible by appropriate de- tion, for the issuance of permits by the executive (9) An educational or scientific use element. dication. directors without compliance with the procedure (d) Reservations of land or water in the coastal specified in this chapter in cases of emergency or zone for certain uses, or the prohibition of certain (b) Adequate and properly located public recrea- for repairs or improvements to existing structures uses In specific areas. tion areas and wildlife preserves are reserved. not in excess of twenty-five thousand dollars ($25,000) () Recommendations for the governmental pol- (c) Provisions are made for solid and liquid waste and other developments not in excess of ten thousand cies and powers required to Implement the o astal ot rea tment, disposition, and management which will dollars ($10,000). Nonemergency permits shall not be t~~~~~~~~~~~~~~olrs(1 , 0 ) Nnemerency ipermitson sall mnogmt bec wl zcies paninldi the rganizato alnd atheority f minimize adverseeffects upon coastal zone resourcs. effective until after reasonable public notice and zone plan including the organization and authority of adequate time for the review of such issuance has the governmental agency or agencies which should (d) Alterations to existing land forms and vege- been provided. If any two members of the regional assume permanent responsibility for its implemen- tation, and construction of structures shall cause commission so request at the first meeting following tation. minimum adverse effect to scenic resources and the issuance of such permit, such issuance shall not minimum danger of floods, landslides, erosion, silta- be effective and instead the application shall be set Article 2. Planning Procedure tion, or failure in the event of earthquake. for a public hearing pursuant to the provisions of 27320. (a) Thecommission shall, within six months 27404. If, prior to November 8, 1972, any city or Section 27420. 27404. If, prior to November 8, 1972, any city or after its first meeting, publish objectives, guidelines, after Its first meeting, publish objectives guidelines, county has issued a building permit, no person who 27423. (a) An applicant, or any person aggrieved and criteria for the collection of data, the conduct of and criteria for the collection of data the conduct of has obtained a vested right thereunder shall be by approval of a permit by the regional commission, studies, and the preparation of local and regional studies and the preparation of local and regional required to secure a permit from the regional con- may appeal to the commission. recommendations for the coastal zone plan. recommendations for the coastal zone plan. mission; providing that no substantial changes may (b) Each regional commission shall, In cooperation be made In any such development, except.in accor- (b) Thecommission may affirm, reverse, or modify with appropriate local agencies, prepare its definitive dance with the provisions of this division. Any such the decision of the regional commission. If the con- conclusions and recommendations, including recom- person shall be deemed to have such vested rights if, mission fails to act within 60 days after notice of mendations for areas that should be reserved for prior to November8, 1972, he has in good faith and in appeal has been filed, the regional commission's specific uses or within which specific uses should be reliance upon the building permit diligently corn- decision shall become final. prohibited, which it shall, after public hearing in each menced construction and performed substantial work (c) The commission may decline to hear appeals county within its region, adopt and submit to the on thedevelopment and incurred substantial liabilities that it determines raise no substantial issues. Appeals commission no later than April 1, 1975. for work and materials necessary therefor. Expenses it hears shall be scheduled for a de novo public hearing 434 * APPENDIX and shall be decided in the same manner and by the of this division shall be subject to a civil fine not to section does not exempt any such subdivision from same vote as provided for decisions by the regional exceed five hundred dollars ($500) per day for each the permit requirements of Chapter 5 (commencing commissions. day in which such violation persists. with Section 27400) of Division 18 of the Public 27424. Any person, including an applicant for a Resources Code. commission or regional commission shall have a right 27600. (a) The commission shall file annual pro- 91st day after the final adjournment of the 1976 to judicial review of such decision or action by filing gress reports with the Governor and the Legislature Regular Session of the Legislature, and as of that day a petition for a writ of mandate in accordance with not later than the fifth calendar day of the 1974 and is repealed. the provisions of Chapter 2, (commencing with 1975 Regular SessionoftheLegislature, and shall file Section 1084) of Title 1 of Part 3 of the Code of Civil its final report containing the coastal zone plan with SECTION 3. If any provision of this act or the Procedure, within 60 days after such decision or the Governor and the Legislature not later than the application thereof to any person or circumstances action has become final. fifth calendar day of the 1976 Regular Session of is held invalid, such invalidity shall not affect other 27425. Any person may maintain an action for the Legislature. provisions or applications of the act which can be declaratory and equitable relief to restrain violation given effect without the invaid provision or appil- ofthisdivision. Nobondshallberequiredforanaction CHAPTER 8. TERMINATION cation, and to this end the provisions of this act under this section. are severable. 27650. This division shall remain in effect until 27426. Any person may maintain an action for the January 1, 1977, and as of that date is repealed. SECTION 4. There is hereby appropriated from recovery of civil penalties provided in Sections 27500 the Bagley Conservation Fund to the California and 27501. SECTION 2. Section 11528.2 is added to the Busi- Coastal Zone Conservation Commission the sum of 27427. The provisions of this article shall be in ness and Professions Code, to read: five million dollars ($5,000,000) to the extent that addition to any other remedies available at law. 11528.2 The clerk of the governing body or the any moneys are available in such fund and if all or 27428. Any person who prevails in a civil action advisory agency of each city or county or city and any portions thereof are not available then from the brought to enjoin a violation of this division or to county having jurisdiction over any part of the coastal General Fund for expenditu re to supal port the opera- recover civil penalties shall be awarded his costs, zone as defined in Section 27100 of the Public Re- tons of the commission and regional coastal zone conservation commissions during the fiscal years of including reasonable attorneys fees. sources Code, shall transmit to the office of the 1973 t o 1976, inclusive, pursuant to the provis ions California Coatal Zone Conservation Commission of Division 18 (commencing with Section 27000) of CHAPTER 6. PENALTIES within three days after the receipt thereof, one copy the Public Resources Code. of each tentative map of any subdivision located, 27500. Any person who violates any provision of wholly or partly, within the coastal zone and such SECTION 5. The Legislature may, by two-thirds this division shall be subect to a civil fine not to Commission may, within 15 days thereafter, make of hemembershipcon urring,amendthisactinorder exceed ten thousand dollars ($10,000). recommendations to the appropriate local agency to better achieve the objectives set forth in Sections 27501. In addition to any other penalties, any regardingtheeffectofthe proposed subdivision upon 27001 and 27302 of the Public Resources Code. person who performs any development In violation the California Coastal Zone Conservation Plan. This COMMISSION STAFFS � 435 COMMISSION STAFFS s* STATE COASTAL COMMISSION STAFF Executive Director Joseph E. Bodovitz Chief Planner E. Jack Schoop Deputy to the Executive Director William T. Davoren Assistant Chief of Planning William Travis Staff Counsel Joseph Petrillo Mapping Coordinators Allan Lind, Thomas Mikkelsen Planning and Appeals Staff Chris Ames, William Boyd, Frank Broadhead, Richard Hammond, Stephanie Hoppe, Harvey Levine, Roderick Meade, Don Neuwirth, Pat Stebbins. Secretarial/staff support: Paula Dorian, Terri Doyle, Helen Ellioff, Chris Goehler, Mildred Held, Linda Pirola, Terry Sarris, Irene Sullivan. Supplemental staff during planning: Dennis Antenore, John Ashbaugh, Jim Bergland, Charles Bien, Jeff Bordelon, Richard Cowart, Dan Davis, Janet Falk, Greg Fox, Ralph Gigliello, Charlotte Higgins, Sandy Hillyer, John Hitchcock, Lee Ann Huntington, Stefan Jovanovich, Campbell Killefer, Steve Matthews, Paul Minault, David Mowday, Irwin Mussen, John Passerello, Thomas R. Rauh, Joan Samuelson, John Sanger, Vince Siciliano, Tim Tosta, Peter Vander Naillen, Patti Weesner, Paul Zucker. Secretarial/staff support: Judy Anderegg, Judy Clark, Debbie Downer, Mary Egan, Andrea Javier, Valeri Kim, Conchita Lage, Jody Loeffler, Charlene Loo, Chris Louie, Pam Louie, Karen Maguire, Barbara Martin, Marilyn Myer, Elsy Orellana, Norma Pierce, Liz Roach, Sandy Sanders, Sue Siciliano, Rachael Toews, Sylvia Woo. Editorial and Mapping Staff Madge Strong. Supplemental staff during planning: James W. Arnold, Ann Barbour, Madge Caughman, Alan Magary, Lisa McAndrews, Barbara Meacham, Joe Nicholson, Margit Nickell, Nancy Owens, Nathan Raspar, R.B. Read, Grant Reid, Sonia Seeman. Administrative Staff Dan Gomes (Chief Administrator), Ken Stevens (Assistant Administrator), Dave Campbell, Beverly Poston, Janna Scopel. Supplemental staff during planning: Forrest Gok, Jo Ann Marie, Jason Wright. NORTH COAST REGIONAL COASTAL COMMISSION STAFF Executive Director John W. Lahr Planning and Permit Staff Alan Ardizone, Richard Laursen, Rich Rayburn, Wayne Woodroof. Secretarial/staff support: Barbara Glass, June Pine. Supplemental staff during planning: Bruce Fodge, Len Kashuba, Diane Reese, Ron Schlorff, Noah Tilghman. NORTH CENTRAL REGIONAL COASTAL COMMISSION STAFF Executive Director Michael Fischer Chief Planner David Dubbink Planning and Permit Staff Bob Brown, Ross Gibson, Gary Holloway, Barry Steiner. Secretarial/staff support: Arleen Barr, Irene Biagi, Lynda Johnson, Larry McDonald, Joan Pippin, Berta Vittier. 436 * APPENDIX CENTRAL REGIONAL COASTAL COMMISSION STAFF Executive Director Edward Y. Brown Chief Planner Robert B. Lagle Planning and Permit Staff Diane Landry, Michael Miller. Secretarial/staff support: Diana Chapman, Joyce Chase, Jackie Murillo, Jeri Sheele. Supplemental staff during planning: Ann Ainsworth, William Allayaud, Wes Cherry, Candace Corsetto, Beverly Firestone, Ilona Fleck, Susan Hansch, Rich Hyman, Virginia Johnson, Gail Largis, Patricia McCorty, Lee Otter, Carol Pillsbury, Mary Helen Reader, Michael Sherra, Patricia Smith, Les Strnad, Ray Trethaway, Dennis Wardell, Bill Woodward. SOUTH CENTRAL REGIONAL COASTAL COMMISSION STAFF Executive Director F. C. Butcher Chief Planner David C. Loomis Planning and Permit Staff Pamela Emerson, Carl C. Hetrick, Robert J. London, Kevin C. Smith. Secretarial/staff support: Wendy L. Brewer, Bea Brown, James Lindsy, Margaret J. Macleod, Hilda Parker, Jennifer Sheetz, Joan C. Valdes, Evelyn Wilson. SOUTH COAST REGIONAL COASTAL COMMISSION STAFF Executive Director Melvin J. Carpenter Chief Planner David N. Smith Planning and Permit Staff David Homsey (former Chief Planner); James Barrett, Alexander S. Bond, Gilbert R. Caldwell, Bryce M. Caughey, Jean Chamberlin, R. Gordon Craig, Jr., Robert Cunningham, Michael A. Dadasovich, Pamela D. Emerson, A. Richard Fitch, Jr., Praveen Gupta, Robert F. Joseph, Roderick J. Meade, Lee W. Pitman, Steven W. Salomon, Joan Sunderland, Stephanie M. Trenck, Michael L. Ward. Secretarial/staff support: R. W. Atwater, Jr., Eleanor Bickel, Myrna Cadby, Maureen Condon, Cheryl Dickie, lone M. Draper, Eliza H. Earle, Carolyn Everett, Nancy Gardner, Blair Gray, Debi Harmaning, M. Debra Horgan, Leona Jansma, Louis F. Jobst, Wendy Krietzburg, Janice Matthews, Marilyn Mayer, Michelle Micklus, Raymond W. Mills, Geraldine Munoz, Rachel Ninos, Dixie Nowell, James D. Perry, Debra Richmond, Stella W. Sanchez, Ann K. Sharkey, Carol Tatum, J. Gregory Van Orman. Supplemental staff during planning: Ellen G. Aronson, R. C. Bopp, Mary Egan, David S. Gould, Kreig S. Larson, David McCarraher, Robert A. Meyer, Glenn D. Perica, Richard A. Ribar, Carla J. Walecka.. SAN DIEGO REGIONAL COASTAL COMMISSION STAFF Executive Director Thomas A. Crandall Chief Planner Daniel Gorfain Planning and Permit Staff Charles Damm, William Healy, Elene Johnston, Michael Kennedy. Secretarial/staff support: Bernice Browne, Saundra Lawrence, Bette Sole, Dolores Yost. Supplemental staff during planning: Bob Klapstein, Michael McCabe. 0 CREDITS * 437 CREDITS PHOTOGRAPHS Michael Alexander, courtesy Sierra Club: page 157. Amtrak: page 146. Army Corps of Engineers, San Francisco District: pages 11,44,47, 58, 80,219, 221, 228, 232. Bruce Bambaum, courtesy Sierra Club: page 32. Calalina Island Chamberof Commerce: page 252. Clark-FulmerAdvertising:page 255. Comprehensive Ocean Area Plan (archives of Coastal Commission): pages 64, 70. Don Engdahl: pages 31, 240. Robert Evans, courtesy Sunset Books: page 27. Charles D. Everts: pages 260, 262. Gene's Photo and Rock Shop, Avalon: page 15. Martin Litton, courtesy Sierra Club: page 238. Kerstin Fraser Magary: pages 74,152. Jack McDowell, courtesy Sunset Books: pages 5, 7,10, 20, 29, 33, 54, 60, 61,76, 78, 85, 88,121,125,143,154,160,161,169,173, 207, 214, 241,245, 248, 271. Port of Long Beach: pages 134,150. Redwood Empire Association: pages62, 144,164,167,202,204, 211, 218. San Diego Convention and Visitors Bureau: pages 166, 265, 267, 269. Santa Monica Chamber of Commerce: page 247. Norm Saunders, courtesy Sierra Club: pages 36, 83. Sierra Club: page 73. John Speth, courtesy Department of Fish and Game: page 40. Baron Wolman, courtesy Sierra Club: page 122. DIAGRAMS AND TEXT MAPS James Amrnold, with Joe Nicholson: pages 28, 34, 42, 43, 48, 86, 90, 91, 94, 96,1041105,106,107,114, 130,132,133, 426. David Dubbink, with Allan Lind: page 224. William Travis, with James Arnold: page 423. DRAWINGS David Dubbink: pages 14 (reproduced courtesy of Owen Menard & Assoc.), 17, 41, 53, 71, 72,111,129,163. Diane Landry: 170. COVER Joan Browning, with thanks to Lynn MacDonald. PLAN DESIGN Alan Magary 438 * APPENDIX NUMERICAL LIST OF POLICIES AND RECOMMENDATIONS PART II POLICIES PG PAGE BASIC GOALS FOR COASTAL PLANNING 25 1. Basic Goals for Coastal Zone Conservation and Development 25 MARINE ENVIRONMENT 26 OCEAN RESOURCES MANAGEMENT 26 2. Basic Policy: Protect, Enhance, and Restore Marine Resources 28 3. Maintain Healthy Populations of All Marine Organisms 28 4. CriteriaforAquaculture 29 5. Upgrade Commercial Fishing Facilities 29 COASTAL WATER QUALITY 30 6. Expand Ocean Water Quality Research and Regulatory Program 30 WASTE DISCHARGES 30 7. Basic Policy: Maintain, Manage, and Restore Ocean Water Quality 31 8. Stress Reclamation of Waste Water 32 9. StrictlyRegulateWastesfromVessels 32 HEATED AND COOLED DISCHARGES 32 10. Avoid Adverse Effects of Thermal Discharge and Entrainment 33 OIL AND TOXIC SPILLS 34 11. Prevent Release of Oil and Toxic Substances by Strict Regulation 35 12. Enact State Oil Spill Liability Measures 36 13. Create Single National Oil Spill Liability Fund 37 RUNOFF 37 14. Control Runoff that Degrades Coastal Waters 38 COASTAL WATERS, ESTUARIES, AND WETLANDS 38 15. Give Special Protection to Estuaries and Wetlands 39 16. Protect Other Coastal Waters by Limiting Dredging, Diking, and Filling 41 17. Require Replacement Areas for Diked or Filled Areas 42 18. Regulate Permitted Dredging 42 SAN MOVEMENT AND SHORELINE STRUCTURES 43 19. Criteria for Seawalls, Breakwaters, and Other Shoreline Structures 44 20. Initiate Positive Programs to Restore Sand Supply 45 COASTAL LAND ENVIRONMENT 46 COASTAL STREAMS AND WATERSHED MANAGEMENT 46 21. Basic Policy: Establish Comprehensive Watershed Management 48 22. Prepare and Implement Comprehensive Watershed Management Plans 49 23. Relate Development and Water Supply Decisions to Coastal Watershed Management Plans 49 24. Review Major Projects Affecting Coastal Streams 50 25. Provide Special Protection for Anadromous Fish Streams 51 NATURAL HABITAT AREAS 52 26. Preserve Significant Natural Areas and Rare Species 52 27. Protect Fragile Habitat Areas 53 28. Control Development Adjacent to Significant and Fragile Habitat Areas 53 29. Minimize Habitat Damage Wherever Development is Permitted 53 AGRICULTURE 54 30. Basic Policy: Protect Agriculture and Its Economic Viability 55 31. Provide Statewide Programs for the Maintenance of Agricultural Lands 56 32. Establish Stable Urban-Rural Boundaries 57 33. Designate Use of Remaining Agricultural Parcels Within Highly Developed Areas 59 34. Criteria for Maintaining Non-Prime Agricultural Lands in Production 60 35. Permit Only Agriculturally-Related Development on Agricultural Lands 61 NUMERICAL LIST OF POLICIES AND RECOMMENDATIONS � 439 36. Limit Division of Land Within Agricultural Areas 61 37. Regulate Development and Land Division Near Agricultural Areas 61 FORESTRY 62 is 38. Protect Coastal Forest Resources 62 39. Modify Taxation to Encourage Sustained Yield 63 SOIL AND MINERAL RESOURCES 63 40. Protect Coastal Soil Resources 64 41. Regulate Mining 64 42. Inventory and Reserve Mineral Deposits 65 AIR QUALITY 65 43. Design and Operate Coastal Developments to Protect Air Quality 66 COASTAL APPEARANCE AND DESIGN 68 PROTECTING COASTAL VISUAL RESOURCES 69 44. Design Development to Protect Coastal Viewshed 69 45. Protect the Visual Quality of Highly Scenic Areas 69 46. Establish Local Design Procedures and Standards 69 47. Establish a Design Review Process 70 48. Reduce Litter in Coastal Areas 71 DESIGN GUIDELINES FOR VIEWSHED DEVELOPMENT 71 49. Design Guidelines: Compatibility with Natural Environment 71 50. Design Guideline: Protection of Coastal Views 72 51. Design Guideline: Scale, Height, Materials, and Colors 73 52. Design Guideline: Landscaping 73 53. Design Guideline: Alteration of Natural Landforms 73 54. Design Guideline: Signs 74 55. Design Guideline: Utility Structures 74 56. Design Guideline: Major Public Service, Commercial, and Industrial Facilities 75 COASTAL DEVELOPMENT 76 DEVELOPMENT AND NATURAL RESOURCES 76 57. Design Development to Complement Natural and Scenic Resource Areas 77 SPECIAL COASTAL COMMUNITIES AND NEIGHBORHOODS 77 58. Protect and Enhance Special Coastal Communities and Neighborhoods 77 ORDERLY, BALANCED DEVELOPMENT 79 CONCENTRATING DEVELOPMENT IN URBAN AREAS 79 59. Concentrate Development in Already Developed Areas 79 60. Criteria for Division of Rural Land 81 PROVISION OF PUBLIC SERVICES 81 61. Regulate New or Expanded Public Service and Transportation Facilities 81 COASTAL-DEPENDENT AND INDUSTRIAL DEVELOPMENT 82 62. Give Priority to Coastal-Dependent Development 82 63. Criteria for Location of Industrial Development 82 DEVELOPMENT IN HAZARDOUS AREAS 83 FLOOD HAZARD AREAS 83 64. Restrict Development in Flood Hazard Areas 84 GEOLOGIC HAZARD AREAS 84 65. Improve Statewide Geologic Safety Measures 87 66. Require Filing of Geologic Hazards Information 87 67. Review and Regulate New Developments for.Geologic Safety 87 68. Prevent Public Subsidy for Hazardous Developments 88 69. Establish Safety Measures for Possible Tsunami Occurence 89 BLUFFTOPS 89 70. Regulate Bluff and Cliff Developments for Geologic Safety 89 ENERGY 91 ENERGY AND THE COAST 91 ENERGY CONSERVATION 95 71. Restructure Utility Rates to Encourage Energy Conservation 99 440 * APPENDIX 72. Recommendations for Statewide Energy Conservation Measures in New Developments 99 73. Recommendations for Additional Energy Conservation Measures 101 ALTERNATIVE ENERGY SOURCES 101 74. Encourage Development of Alternative Energy Sources 108 75. Recommendation for Implementing Solar Heating and Cooling Systems 108 ENERGY FACILITY SITING AND DESIGN 110 76. Establish a Statewide Agency to Plan and Certify All Energy Facilities 112 POWER PLANTS 112 77. Coastal Agency Role in Siting Coastal Power Plants 115 78. Coastal Agency Role in Ongoing Site Identification Process 115 79. Criteria for Siting and Design of Coastal Power Plants 115 80. Remove Outmoded Power Plants from Beach Areas 117 PETROLEUM DEVELOPMENT 117 81. Basic Policy for Offshore Petroleum Development 123 82. Recommendation to Separate Permit Review of Petroleum Exploration Phase and Development/Production Phase 123 83. Criteria for Siting and Design of Petroleum Facilities 124 84. Recommendations for Increasing Oil Recovery Efficiency 126 85. Recommendation for Disclosing Exploration and Production Data 126 86. Recommendations for Avoiding Adverse Impacts of Federal OCS Petroleum Development 126 REFINERIES 127 87. Coastal Agency Role in Refinery Siting 129 88. Criteria for Siting and Design of Coastal Refineries 129 TANKER TERMINALS 130 89, Basic Policy for Tanker Terminal Planning 133 90. Coastal Agency Role in Tanker Terminal Siting 134 91. Maximize Use of Existing Tanker Facilities 134 92. Criteria for New or Enlarged Tanker Terminals 134 93. Recommendations for Improving and Enforcing Tanker Technology and Operating Procedures 134 LNG FACILITIES 135 94. Coastal Agency Role in LNG Facility Siting 137 95. Criteria for Siting and Design of LNG Facilities 137 96. Require Safety Measures During Marine Operations 137 97. Require Safety Measures at Onshore Facilities 138 98. Establish Liability for Accident Damage 138 TRANSPORTATION 139 TRANSPORTATION PLANNING AND THE COAST 139 99, Consider Coastal Concerns in Transportation Plans 140 100. Review Transportation Plans Affecting Coastal Resources or Access 140 LAND TRANSPORTATION 140 HIGHWAY 1 AND COASTAL ROADS 140 101. Relate Land Use Decisions to Transportation Capacity 141 102. Criteria for New or Expanded Coastal Roads 142 103. Develop Alternatives to Prevent Excessive Use of Coastal Routes 142 104. Maximize Recreational and Scenic Value of Highway 1 and Other Coastal Roads 143 PARKING 144 105. Minimize Impact of Parking Facilities 144 106. Require Adequate Parking in New Developments 145 PUBLIC TRANSIT 145 107. Provide New Funding for Coastal Zone Transit ' 146 108. Establish Priority of Transit Over New Roads 146 109. Expand Transit in Urban and Air Quality Maintenance Areas 146 110. Encourage Expanded Rail Service 146 111. EncourageTransitUsage 147 AIR TRANSPORTATION 147 112, Policy on Future Airport Siting 147 113. Limit Expansion of Coastal Airports 147 114. Provide Public Access in Some Airport Buffer Land 148 115. Reduce Impact of Airport-Related Transportation and Parking on Coastal Access 148 NUMERICAL LIST OF POLICIES AND RECOMMENDATIONS � 441 WATER TRANSPORTATION 148 116. No Additional Major Port Areas Required 149 117. Maximize Use of Existing Ports 150 118. Criteria for Port Development Involving Filling or Dredging 150 119. Recommendations for Navigational Safety 151 120. Study Feasibility of Expanded Coastal Ferry Service 151 PUBLIC ACCESS TO THE COAST 152 121. Basic Policy: Provide Access to the Coast for All People 153 THE RIGHT OF PUBLIC ACCESS 153 122. Guarantee Legal Rights of Public Access to the Coastline 153 123. Provide Public Access Ways to the Coastline 154 124. Manage Public Access Areas 155 EQUALITY OF ACCESS 155 125. Provide Lower-Cost Tourist Facilities in the Nearcoast Area 155 126. Increase Coastal Access for Low- and Moderate-Income Persons 156 ACCESS THROUGH MULTIPLE USE OF COASTAL LANDS 156 127. Retain Surplus Lands in Public Ownership 156 128. Encourage Institutional Development that Provides Public Access to the Coast 156 129. Maximize Public Use of Federal Lands 157 130. Include Multiple Uses in Major Facilities 157 RECREATION 158 131. Basic Policy: Increase Coastal Recreation Compatible with Resource Protection 159 RECREATION AND THE COAST 160 132. Consider Recreational Potential Before Allowing Other Uses of Oceanfront Land 160 133. Give Priority to Commercial Recreation Over Other Private Development 160 134. Reserve Shoreline Areas for Recreation Activities that Need Access to Water 161 135. Restrict Substantial Alterations Along the Coast for Recreation 161 136. Reserve Upland Areas for Recreational Support 161 137. Provide a Variety of Recreational Facilities near Metropolitan Areas 161 138. Expand the Statewide System for Overnight Reservations 161 139. Ensure Equity in Cost of Maintaining Coastal Recreational Facilities 161 RECREATION AND DEVELOPMENT 162 140. Balance Development with Open Space and Recreation Facilities 162 141. Require Sufficient On-Site Recreation in New Development 162 CONTROLLING RECREATION TO PROTECT RESOURCES 162 142. Limit Access and Recreational Use Where Necessary 163 143. Restrict Off-Road Recreational Vehicles Along the Coast 163 144. Establish Long-Range Program to Protect Recreational Resources 163 COASTAL TRAILS SYSTEM 164 145. Establish a Coastal Trails System 164 MARINAS 165 146. Accommodate New Recreational Boating Facilities Without Degrading Coastal Resources 166 147. Maximize Use of Boating Facilities 166 148. Provide Public Access to Marinas 166 EDUCATIONAL AND SCIENTIFIC USE 167 149. Encourage Education on the Coastal Environment 168 COASTAL RESERVE SYSTEM 168 150. Establish a Coastal Reserve System 168 HISTORICAL AND PREHISTORICAL RESOURCES 169 151. Protect Historical and Prehistorical Resources 169 RESTORATION OF COASTAL RESOURCES 171 152. Restore Degraded Coastal Resources 171 153. Require that Environmental Damage Be Offset by Restoration 172 154. Resubdivide or Consolidate Certain Lots 172 PUBLIC ACQUISITION OF COASTAL LAND 173 155. Priorities for Public Acquisition 173 156. Use Appropriate Techniques for Expanding Public Use of the Coast 174 157. Protect Potential Acquisition Areas 174 442 * APPENDIX 158. Increase Funds for Coastal Recreational Facilities 174 159. Expand the Authority of Existing State Acquisition Agencies 174 160. Create an Interagency Coordinating Council 174 FURTHER STAGES OF PLANNING 175 161. Prepare Regional and Local Plans to Carry Out the Coastal Plan 175 162. Prepare Subregional Plans forSome Coastal Areas 176 PART III RECOMMENDATIONS GOVERNMENT ORGANIZATION AND POWERS 179 GENERAL PROVISIONS 179 1. Establish Statewide Policy to Preserve, Protect, Enhance, and Restore Coastal Zone Resources 179 2. Require the Actions of All Governmental Agencies in the Coastal Zone to Be Consistent with the Coastal Plan 179 3. Definitions 179 LOCAL IMPLEMENTATION PROGRAMS 180 PREPARATION OF LOCAL PROGRAMS 180 4. Require Local Governments in the Coastal Resource Management Area to Conform Plans and Ordinances with the Coastal Plan 181 5. Special Districts and Other Units to Submit Development Plans 181 6. Coastal Agency Assistance in Preparation of Local Implementation Programs 181 7. Content of Local Implementation Program 182 8. Special Considerations in Local Implementation Programs 183 9. Public Participation 183 CERTIFICATION OF LOCAL PROGRAMS 184 10. Process of Certification of Local Implementation Programs 184 11. Appeals After Local Implementation Programs Are Certified 184 12. Review of Changes in Local Implementation Programs 185 13. Authority to Revoke Local Implementation Programs 185 STATE COASTAL AGENCY 185 STRUCTURE OF COASTAL AGENCY 185 14. Incorporate Coastal Planning and Regulation Into a Statewide Land Use Planning Agency 186 15. In the Interim, Continue Coastal Agency 186 16. Appointment of Coastal Agency Members 186 17. Terms of Coastal Agency Members 186 18. Coordinate with the San Francisco Bay Conservation and Development Commission 186 DEVELOPMENT REVIEW 187 19. Interim Permits and Appeals Before Certification of Local Implementation Programs -187 20. Appeals After Certification of Local Implementation Programs 187 21. Retained Jurisdiction Over Public Trust Lands and Areas Seaward of the Mean High Tide Line 187 22. Review Authority Over Major State and Federal Projects 187 23. Review Authority Over Major Energy Facilities 188 24. Review Authority Over Major Watershed Projects 188 25. Waiver of Review 188 OTHER DUTIES AND PROCEDURES 188 26. Coastal Plan Amendment 188 27. Guidelines, Standards, and Regulations 188 28. Enforcement 188 29. Monitor Performance of Local Implementation Programs 188 30. Set Performance Objectives 189 31. Improve Efficiency of Permit Procedures 189 32. Inter-Agency Agreements and Role of Regional Organizations 189 33. Coordinate Research and Studies to Implement the Coastal Plan 189 PUBLIC PARTICIPATION 189 34. Maintain Public Involvement in Coastal Matters 189 35. Equitable Public Access to the Courts 190 PUBLIC TRUST LANDS 190 36. Protect Public Trust Lands in the Coastal Zone 190 NUMERICAL LIST OF POLICIES AND RECOMMENDATIONS * 443 37. Title Status of Certain Lands 190 38. Uniform Coastal Mapping 190 39. Coastal Survey for Beach Access 190 ACQUISITION AND RESTORATION 191 40. Establish a Coastal Conservation Trust 192 41. Purposes of the Coastal Conservation Trust 192 42. Powers and Duties of the Coastal Conservation Trust 193 43. Exemption from Review bythe PublicWorks Board 193 FUNDING 194 44. Finance Implementation of the Coastal Plan through Federal Grants, State Funds, and Revenues from Coastal Activities 195 NOTES is Plan Maps LEGEND D Special Marine Environment Wetland or Estuary Special Land Habitat - Other Land Habitat or Open Space Area Grazing Cultivated Agricultural Lands and Class I and II Soils Forestry Resource Area Mineral Extraction Area Developed Area Existing Recreation Area Existing Boating Facility '? Existing Public Ownership1 Proposed Immediate Acquisition Area* Special Study Area t t o;Subregion < v, >Coastal Zone :-- - -Coastal Resource Management Area 3 a - _Coastal Zone/ Management Area Boundary 1Under the provisions of the Federal Coastal Zone Management Act of 1972, "Excluded from the coastal zone are lands the use of which is by law subject solely to the discretion of or which is held In trust by the Federal Government, its officers or agents." 'Acquisition proposalsaretentative, pending further review and final recommendation by the State Coastal Commission. PLAN MAPS LEGEND (FOLD OUT)