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Ronald Reagan Presidential Library
Digital Library Collections
This is a PDF of a folder from our textual collections.
Collection: Reagan, Ronald: Gubernatorial Papers,
1966-74: Press Unit
Folder Title: [Environment] - Environmental Quality
Study Council Report, March 1972
Box: P36
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Contact a reference archivist at: [email protected]
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ENVIRONMENTAL QUALITY IN CALIFORNIA
March 1972
ENVIRONMENTAL QUALITY IN CALIFORNIA
A STRATEGY FOR ACTION
REPORT OF THE
STATE ENVIRONAL QUALITY STUDY COUNCIL
March 1972
STATE OF CALIFORNIA
RONALD REAGAN, Governor
ENVIRONMENTAL QUALITY STUDY COUNCIL
SACRAMENTO
March 10, 1972
Honorable Ronald Reagan
Governor of California
Honorable Ed Reinecke
Lieutenant Governor, and
President of the Senate
Honorable James R. Mills
President pro Tempore, and
Members of the State Senate
Honorable Bob Moretti
Speaker, and Members of
the State Assembly
Gentlemen:
In compliance with Section 16055 of the Government Code,
the 1972 Report of the State Environmental Quality Study
Council is hereby submitted. The report covers the
activities of the Council during 1971, and recommends
legislative action for the current session.
The Council trusts that its efforts, in proposing a long-
term strategy for the control and enhancement of our
environment and in recommending immediate measures
for alleviation of our more crictical problems, will prove
helpful.
Submitted on behalf of the members of the Council.
Respectfully
David L. Baker
Chairman
TABLE OF CONTENTS
LETTER OF TRANSMITTAL
TABLE OF CONTENTS
1-4
COUNCIL MEMBERS
5-6
ACKNOWLEDGEMENTS
7
FOREWORD
9
I/ INTRODUCTION
11
II/ SUMMARY OF FINDINGS AND RECOMMENDATIONS
15
A/ GOVERNMENTAL ORGANIZATION
15
B/ LAND USE, POPULATION, AND TRANSPORTATION
15
c/ ENERGY USE
23
D/ AIR QUALITY
25
E/ NOISE
27
F/ OTHER ENVIRONMENTAL ISSUES
29
III/ DISCUSSION OF FINDINGS AND RECOMMENDATIONS
31
A/ GOVERNMENTAL ORGANIZATION
31
A New Organization
31
Responsibilities
31
Organization
32
Organization of Regional Boards
33
Land Use -- An Essential Element of Reorganization
34
Review of Public Projects
34
Environmental Quality Citizens Council
34
Other Organizational Recommendations
35
What Would Be Different?
35
B/ LAND USE, POPULATION, AND TRANSPORTATION
35
1
Rapid Growth -- The Basic Cause
36
Conservation and Development Plan
37
Population Growth and Distribution
38
Basin Carrying Capacity
40
Immediate Strengthening of State Role in Land Use
41
Loss of Prime Agricultural Land
41
Assessment Practices
42
Flood Control Policies
43
Open Space Program
43
Bond Funding Needed
46
Other Possible Methods of Funding Open Space
46
Transportation -- Providing a Balance
47
More State Involvement -- Increased Funding
48
Rural Development
48
California's Disappearing Coast
51
Geologic Hazards
52
The State's Land Use Role
54
Area-Wide Planning
56
Environmental Impact Statements
57
Land Use and Population -- Unresolved Environmental Issues
58
c/ ENERGY USE
58
Overall Energy Problem
59
Energy Use and the South Coast Basin
59
Electric Energy
60
Factors Contributing to Growth
61
Electric Energy Conservation
62
The Need for Additional Electricity
64
Nuclear Energy
65
Near-Zero Emission Electric Energy Alternatives
67
The Alternatives in Balance
68
Overall Energy Use Strategy
69
Research and Development
70
Funding of a Statewide Energy Use and
70
Power Plant Siting Program
2
A Parting Shot
70
D/ AIR QUALITY
71
Causes
71
Local Districts
72
State Program
73
Mulford-Carrell Act
74
Additional Board Responsibilities
74
New Motor Vehicles
75
Used Cars
75
Standards, Inspections
76
Fuel Composition
76
Voluntary Use of Gaseous Fuels
76
Gasoline Marketing
77
Large-Scale Conversion to Gaseous Fuels
77
Overriding Problem
78
Federal Law
79
State Implementation Plan
80
Engines Not Yet Controlled
82
Necessary Action
82
Implementation of State Control Strategy
82
A Long-Range Strategy
84
E/ NOISE
85
Air Transport
85
Airport and Aircraft Noise Regulations
85
The Funding of Corrective Action
86
Airport Land Use Commissions
86
Other Airport Development Considerations
86
Motor Vehicles
87
Additional Enforcement
88
Freeways and Highways
89
Occupational Noise
89
Community Noise
90
Equipment, Machinery, and Appliances
92
3
Education
93
F/ OTHER ENVIRONMENTAL ISSUES
94
IV/ COUNCIL ACTIVITIES
95
The Council's Third Year
95
Council Hearings
95
Proposed Remaining Activities
99
The Council's Role
100
v/ APPENDICES
APPENDIX A - - SCHEDULE OF COUNCIL AND COMMITTEE
ACTIVITIES, 1971
A-1
APPENDIX B - - PUBLIC HEARINGS, PARTICIPANTS
Nuclear Energy
B-1
Coastline Management
B-1
Problems and Issues of North Coastal Region
B-2
Airport Expansion
B-2
Sonoma-Marin Aqueduct
B-3
Energy Use
B-3
APPENDIX C - SPECIAL MEETINGS AND STUDY SESSIONS,
PARTICIPANTS
EQSC Legislative Proposals
C-1
Environmental Problems of the South Central Coastal Area
C-1
Environmental Implications of Geothermal Development
C-2
Air Quality, Riverside
C-2
4
STATE OF CALIFORNIA / ENVIRONMENTAL QUALITY STUDY COUNCIL
MEMBERS
DAVID L. BAKER, Chairman, Supervisor, County of Ornage
PETER H. BEHR, State Senator
ALBERT PEARLSON, Attorney
SAMUEL A. EGIGIAN, Southern
at Law
District Refuse Removal Council
ARTHUR F. PILLSBURY
ARLEN GREGORIO, State Senator
Director, Water Resources
A.J. HAAGEN-SMIT, Ph. D.
Center, UCLA
Chairman, State Air Resources
HELEN B. REYNOLDS, President
Board
California Roadside Council
ELLEN STERN HARRIS, Executive
EDWARD M. ROSS, Attorney at Law
Secretary, Council for
FRANK J. TYSEN, Professor,
Planning and Conservation
Air Pollution Control
BARRY KEENE, Attorney at Law
Institute, School of Public
NORMAN B. LIVERMORE, JR.,
Administration, USC
State Secretary for Resources
FRANK J. WALTON, State
KERRY MULLIGAN, Chairman, State
Secretary for Business
Water Resources Control Board
and Transportation
EX-OFFICIO MEMBERS
WILLIAM J. KURTZ, Acting Director,
City and County Members of
Department of Public Health
Council on Intergovernmental
JERRY FIELDER, Director
Relations
Department of Agriculture
WILLIAM PENN MOTT, JR., Director,
PAUL M. ANDERSON, Supervisor
Department of Parks and Recreation
County of Riverside
RAY ARNETT, Director
JAMES V. FIZGERALD,
Department of Fish and Game
Supervisor, County of San
JAMES G. STEARNS, Director,
Mateo
Department of Conservation
MAURICE K. HAMILTON,
JAMES MOE, Director,
Councilman, City of San
Department of Public Works
Bruno
WILLIAM R. GIANELLI, Director
WESLEY McCLURE, City Manager,
Department of Water Resources
City of San Leandro
DONALD F. PINKERTON, Director,
HOWARD H. WIEFELS, Mayor,
Department of Housing and
City of Palm Springs
Community Development
COUNSEL:
NICHOLAS C. YOST, Deputy Attorney General
STAFF:
JOHN K. GEOGHEGAN, Executive Secretary
ELDON E. RINEHART, Special Consultant
CHRISTOPHER A. BROWN, Executive Intern, University of
California, Los Angeles
ROBERT C. BURNESS, Executive Intern, University of
California, Davis
VI RIEFSTAHL and KAREN PEARCE, Secretarial
5
COMMITTEES
AIR QUALITY COMMITTEE
WATER RESOURCES COMMITTEE
Albert Pearlson, Chairman
Arthur F. Pillsbury, Chairman
Arlen Gregorio
Peter H. Behr
A.J. Haagen-Smit, Ph. D.
Paul Clifton
Ellen Stern Harris
Ellen Stern Harris
Barry Keene
Kerry Mulligan
Helen B. Reynolds
Albert Pearlson
LAND USE COMMITTEE
WASTE MANAGEMENT COMMITTEE
Frank J. Tysen, Chairman
Samuel A. Egigian,
Peter H. Behr
Chairman
Paul Clifton
Kerry Mulligan
Barry Keene
Arthur F. Pillsbury
Helen B. Reynolds
Edward M. Ross
William S. Weber
Frank J. Tysen
NOISE ABATEMENT COMMITTEE
Edward M. Ross, Chairman
Arlen Gregorio
Samuel A. Egigian
William S. Weber
SCIENTIFIC ADVISORY GROUP ON NOISE *
Dr. Robert W. Young, Chairman
Dr. Walter W. Soroka
Naval Undersea Research and
Professor of Acoustical
Development Center, San Diego
Sciences, University of
California, Berkeley
David M. Green, Department
of Psycology, University of
Dr. John D. Webster
California, San Diego
Naval Electronics
Laboratory, San Diego
Jack B. C. Purcell
Purcell-Noppe Assoicates,
Dr. George P. Wilson
Chatsworth
Wilson, Ihrig & Associates
Berkeley
Ludwig M. Sepmeyer, Consulting
Engineer, Los Angeles
*
All are members of the Acoustical Society of America.
6
ACKNOWLEDGEMENTS
The Council expresses sincere thanks to
In conveying our appreciation to those
those who have aided and supported
who have worked so tirelessly
its activities over the past three years:
with us for a better environment,
members of the Legislature, their
we would encourage their continuing
committees and consultants; members of
dedication to the enormous task
the Administration; the environmentally
of assuring a decent quality of life
involved entities of state government;
for us all.
and the numerous conservation and
environmental groups throughout the
State. Very special thanks go to
Californians for Environmental Quality,
a statewide organization created for
the sole purpose of advocating the
Council's 1971 legislative proposals.
The Council is also grateful to the many
witnesses who gave of their time and
expertise at our public hearings and
study sessions. We appreciate the
hospitality extended in those cities in
which we have met. Regardless of
the issues involved, the Council has
been warmly and courteously received.
We wish also to express thanks to the
many citizens who have taken time
to write to the Council. While we have
not been able to hold a special hearing
on each problem presented, these
letters have given us a better insight
into the many environmental concerns
facing citizens of California.
Under current enabling legislation,
the Council will soon cease its function.
7
the
199
3
FOREWORD
The State Environmental Quality Study
AB 1056 (Z'berg) of the 1971 session,
Council, consisting of 17 members
and AB 681 (Z'berg) of the current
appointed by the Governor and the Legis-
session. The 1972 report contains a
lature, was created by the California
number of recommendations on a
Legislature in 1968 to make an in depth
variety of environmental subjects. But
study of the state's environmental
more important, it attempts to develop
problems and to recommend, after
a comprehensive strategy for dealing
holding public hearings, such legislative
with basic underlying issues of
and administrative action and state,
governmental organization, land use
regional, and local governmental
and population growth, balanced
mechanisms necessary for coordinated
transportation, and energy use.
protection, management, and improve-
ment of California's physical environ-
This report does not cover all the
ment. Since first convening in April
state's environmental problems in depth.
1969, the Council has held 20 public
Some have been studied in greater
hearings throughout the State on
detail and reported on by a number of
such subjects as air pollution, land use,
legislative committees and state
coastline management, preservation
departments. The Council did not feel
of open space, transportation, noise
the need nor have the time or resources
abatement, and energy use. In addition,
to duplicate these efforts. The
the Council has held monthly business
Assembly Science and Technology
meetings, committee meetings, and
Advisory Council's studies on the
numerous study sessions at which
question of population; the Assembly
specific problems were considered.
Committee on Environmental Quality's
hearings on pesticides; the Assembly
The Council was charged with reporting
Committee on Natural Resources
its findings and recommendations
and Conservation's study of forest
to the Governor and the Legislature
practices; the reports of the Joint Com-
annually. It first report, in February
mittee on Open Space; the work of the
1970, contained a number of recom-
1970 Assembly Select Committee on
mendations on land use, air quality,
Environmental Quality in identifying
and noise abatement. The February
environmental problems and projecting
1971 report concentrated primarily on
costs; the study of the 1970 Assembly
the question of governmental organ-
Committee on Revenue and Taxation on
ization and formed the basis of
emission taxes; the reports of the
9
Department of Conservation on second
home subdivisions and problems of
urban geology; the coastline studies of
the Department of Parks and Recrea-
tion; the report of the Department of
Public Health on noise; the State
Implementation Plan of the Air Re-
sources Board; and the upcoming
Environmental Goals and Policy Report
of the Office of Planning and Research
are but a few of the activities which,
combined with the efforts of this
Council, will hopefully serve to in-
crease our understanding of the
critical environmental issues facing
the State and move us to take the
necessary corrective action.
10
-/ INTRODUCTION
I INTRODUCTION
The Council's February 1970 report
fashion, and much of it obliterated
stated:
beyond repair. If the present
course is continued, our posterity
"Environmental Quality:
will inherit a vast wasteland. "
A Losing Battle
The February 1971 report stated:
"The first six months of our in-
depth study of California's
"Population Distribution on
environmental ills has revealed
a National Scale
an extremely pessimistic picture.
Our beautiful State is in severe
"Under the present state of tech-
danger of being destroyed as a
nology and our current mode of
desirable place to live. Our lush
living, not only has an environmen-
orange and walnut groves, our
tally sound carrying capacity of
vineyards, our primeval sagebrush
our metropolitan areas been chal-
country, our secluded valleys,
lenged, and even that of our great
our meandering streams, our
valleys, but the carrying capacity
majestic mountains, and our wind-
of the entire State as well. And,
swept beaches are going -- and
of course, smog is only one index.
they are going fast, replaced
With noise pollution, heavy
largely by depressing urban sprawl.
traffic congestion, and inadequate
It is even questionable whether
land use policies, an ever grow-
major portions of the State will be
ing array of environmental ills is
capable of supporting tolerable
endangering this State at an
human life within several more
accelerating rate. Population
decades.
distribution is still urgently needed,
but it will no longer suffice to
"Having been called upon for the
design such policies within the
past 25 years to accommondate
State. The problem is national in
one of the greatest bursts of inmi-
scale. Urban growth and popu-
gration and population growth
lation influx must be encouraged
the world has ever known,
in those states where the proper
California's legendary environ-
balance between man and nature
mental assets have been squan-
can still be accommodated. It is
dered in a grossly negligent
obvious that California cannot
11
handle the problem of population
of pollution control, there is little
growth alone.
action to report with regard to the under-
lying issues of land use and population
"The Growth Ethic
or to organizational changes necessary
to deal with environmental problems
"Last year's progress report
in a comprehensive way. During the
described the pollution elements
1971 session of the Legislature the
contributing to the 'moribund
Council's main recommendation for a
Los Angeles region'. We find
strong governmental entity embodied
this year conditions have even
in AB 1056 was passed by the Assembly,
worsened, not only there but in
but failed in the Senate. This bill
the San Francisco Bay Area
would have created state and regional
as well. In these critical air
bodies with authority to deal with
basins we have to change our
statewide pollution problems of air,
course drastically, and do SO now.
water, solid waste, land use, popula-
We simply have to slow down our
tion growth, and other environmental
growth and stabilize the popu-
issues in an integrated manner.
lation of these areas according to
The coastline legislation aimed at the
their carrying capacities. This
preservation and rational use of this
may be hard to accomplish, for
scarce resource suffered a similar
growth has served us well in this
fate.
country since its beginnings.
But the harsh reality is that unre-
Some advances were made to restrain
strained growth and environmen-
further exploitation of our scenic
tal quality have become incompati-
rural areas, and improvements were
ble in California's metropolitan
achieved in air pollution control.
regions. "
But these individual measures dealing
with specific environmental problems,
although useful elements of a broader
1972 - Present Solutions Are Not
pollution control scheme, in them-
Enough
selves can only be viewed as interim
steps.
The overall situation has not improved
significantly. While progress has
been made in certain individual areas
12
A Comprehensive Long-Term Strategy
capable of bringing some temporary
relief, will not stand the test of the
A cohesive strategy for improving and
decades ahead.
maintaining a reasonable level of
environmental quality has not yet be-
The Council strongly urges both the
come a part of state policy. The
Governor and the Legislature to act
State has not addressed itself to the
this year, and to act decisively, for
problems of population growth and
only the boldest and most imaginative
the impact of such growth on our
measures, implemented now, can
natural resources or to the institutional
prevent the ultimate deterioration of
changes needed to face these issues
the environment of this State to a
head-on. This report, although con-
level unacceptable by any standard.
taining a number of recommendations
for complementing specific environ-
mental efforts (air and noise),
attempts primarily to develop a much
needed long-term strategy, the key
elements of which are governmental
organization, land use and population
(including population growth and
distribution policies, basin carrying
capacity, and open space), balanced
transportation, and energy use.
Need for Action
The major categories cited above are
the essential elements of the com-
prehensive environmental quality
strategy SO desperately needed by this
State. Any course that does not deal
with each of these issues in the most
aggressive way can only be viewed as
short-term, and, although perhaps
13
I/
SUMMARY OF FINDINGS AND
RECOMMENDATIONS
II SUMMARY OF FINDINGS AND RECOMMENDATIONS
A/ GOVERNMENTAL ORGANIZATION
alternative approaches to organizing
a State Environmental Quality
Governmental organization at the state
Board, which could accomplish equal-
and basin levels, developed in a
ly well the objectives recommended
manner that will properly relate prob-
by the Council.
lems of air, water, solid waste,
and transportation, with the basic
underlying questions of land use, urban
B/ LAND USE, POPULATION, AND
growth, and population distribution,
TRANSPORTATION
and operating within the framework
of a statewide conservation and
Conservation and Development Plan
development plan, remains the most
critical unmet environmental quality
The demand placed on California's
need facing the State of California.
resources by an increasing popu-
lation has resulted in the degradation
of its environment. The State must
A New Organization
play a new and strong role in land
use, urban growth, and population
The Council recommends the
distribution by providing the policies
creation of a State Environmental
and common framework for deter-
Quality Board and eight corre-
mining how its resources are to
sponding Regional Boards, with
be allocated.
well defined powers and respon-
sibilities over water, air, solid
The Council recommends that the
waste, nuclear radiation, noise,
proposed Environmental Quality
pesticides, forest practices,
Board be required to adopt and
and land use. The State and
present to the Legislature by
Regional Boards would also be
January 1, 1976, a comprehensive,
empowered to review and under
coordinated, and enforceable plan
certain conditions disallow
and management program for the
projects of other governmental
orderly long-range conservation
agencies having significant
and development of California's
impact on the environment.
natural resources, known as the
California Conservation and
The text of this report discusses
Development Plan. Individual plan
15
elements would include environ-
of similar regulation which is not
mental goals and policy (including
consistent with the adopted local
a population growth and distri-
conservation and development
bution policy), land use, basin
plans.
carrying capacity, environmental
quality (waste control), coastal
Until such time as the Legislature
zone, transportation, parks and
has taken final action on the
open space, natural resources
California Conservation and De-
conservation, critical historical,
velopment Plan, proposed major
scenic and wildlife habitat areas
developments involving significant
of statewide interest, and power
and irreversible environmental
plant siting.
changes in the coastal zone and
certain rural areas of unique state-
Based on the state plan, each
wide value would, in accordance
regional board would be required
with specified criteria, be subject
to adopt by January 1, 1977,
to an interim permit procedure
with approval of the state board,
administered by the state or re-
a regional conservation and
gional boards.
and development plan which would
include, in addition to those
elements cited above, certain
Population Growth and Distribution
specified elements appropriate to
the region. Based on the re-
The development and implementation
gional plan, cities and counties
of state, regional, and local conser-
would be required to adopt by
vation and development plans will
January 1, 1978, with approval of
require the adoption of a comprehen-
their regional board, a local
sive policy to guide to what degree
conservation and development
and in what locations growth should
plan.
occur.
Local planning and zoning would
The Council recommends that
continue essentially as at present.
state government formulate and
However, no city or county
adopt explicit population growth
would enforce any zoning ordin-
and distribution policy aimed at
ance, amendment, or other form
achieving desirable long-term
16
social, economic, and environmen-
distribution policy should be the natural
tal goals for California. In the
carrying capacities of the state's basins.
formulation of such policy each
major unit of state government,
The Council recommends that
particularly those concerned with
state government undertake to de-
transportation, resources, housing,
termine the maximum carrying
employment, and education, would
capacity for each region, based on
be directed to determine the impact
the best of available information
of present population trends on their
relating to air, water, land, and
activities and the impact of their
other resources which are critical
activities on population distribtion.
to public health and environmental
protection, and that the Environ-
State actions, with respect to the
mental Goals and Policy Report
construction of public works
developed pursuant to Section 65041
projects, the placement of educa-
of the Government Code include:
tional facilities, the location of
(1) the estimated carrying capac-
power plants, the development of
ity, based on those factors
resource management policies, and
mentioned above, of the state's
the conduct of other activities
most critical basins; (2) a dis-
should be carried out in a way which
cussion of where and how much
will influence population growth
future growth should occur in the
and distribution; and further that
state's different regions, with
Environmental Impact Statements
particular emphasis on the coastal
prepared in connection with various
urban corridor between Santa Rosa
projects and activities of federal,
and San Diego; and (3) those
state, and local agencies should be
alternative patterns of regional
expanded to include a description
development which should be
as to their impact on population
encouraged, including "new towns"
growth and distibution.
and the expansion of existing
smaller communities.
Basin Carrying Capacity
The major criteria in the development
Immediate Strengthening of State Role
of a statewide population growth and
in Land Use
17
The important planning program
capacity studies; and (5) be given
described above should be started as
the additional funding needed to
soon as possible. The Council rec-
carry out these and other tasks.
ognizes, however, that the creation of
the Environmental Quality Board and
the new land use planning role for state
Loss of Prime Agricultural Land
government proposed herein will take
a certain period of time to become
The accelerating loss of our best
reality. On the other hand, the Office
agricultural lands is a particular ex-
of Planning and Research, which
ample of unwise land use, and policies
would later come under the administra-
that encourage this should be changed.
tive jurisdiction of the proposed board,
is presently functioning and could
The Council recommends:
begin, during the interim period, to
assume the strong land use program
That it be the public policy of the
proposed by the Council. To do this
State of California that agricul-
stronger financial commitment and
tural usage, the planting and grow-
specific new direction will need to be
ing of crops, be recognized as
given it.
the highest and best use of prime
agricultural land, and that the
The Council recommends that the
assessed valuation of such land
Office of Planning and Research:
for ad valorem tax purposes be
(1) be directed to begin prepar-
based on the value its use gives it.
ation of the California Conservation
This is the land, in the most
and Development Plan called for
part, that is classed as recent
herein, and to provide for adequate
alluvium and as basin land. Such
public participation in the prep-
recognition, duly implemented,
aration of same; (2) be given the
would serve to create badly needed
authority to develop criteria for
"open space" and would help to
determining the adequacy of local
preserve the economic viability
and regional plans; (3) be directed
of California.
to begin immediately the prepar-
ation of a state population growth
That present federal, state, and
and distribution policy; (4) be
local policies which fund flood
directed to begin basin carrying
control projects at general public
18
expense and therby provide a public
use which should be preserved,
subsidy for the urbanization of
and establish priorities for open
flood plains (which are usually prime
space preservation.
agricultural lands), be revised SO
that the landowners benefitted incur
That the Office of Planning and
a more reasonable portion of the
Research prepare by January 1974
costs of such facilities.
a State Open Space Plan to become
a functional element of the
California Conservation and
Open Space
Development Plan and to augment
and give substance to the state
A well-designed open space program
population growth and distribution
can be a key to resolving major land
policy. It should classify state
use conflicts and is an essential element
lands into open space categories,
of the proposed state, regional, and
indicate those areas which should
local conservation and development
remain as open space, designate
plans. It can preserve lands needed to
lands sufficiently important to the
supply our resource needs, prevent
State to require direct and immedi-
the development of geologically hazar-
ate action to protect or preserve
dous areas, help meet our huge
them, and outline a program and
recreational demands, halt urban
financial requirements necessary
sprawl, and provide direction for urban
to implement the plan. The
growth.
State Open Space Plan should also
be designed to serve as a guide
The Council recommends:
in the preparation of basin plans.
That an open space policy be in-
That a bond issue in the amount of
corporated into the State Environ-
$250-million be placed on the
mental Goals and Policy Report.
November 1972 ballot to provide
This policy would define the desir-
funds for the acquisition of needed
able objectives which should
open space, threatened wildlife
guide an open space program,
habitats, and important scenic and
delineate the areas of responsibility
historic areas of statewide sig-
at different levels of government,
nificance. This measure should
outline the broad categories of land
also provide for grants to regional
19
and local agencies to assist in
tion, with primary emphasis on
carrying out the purposes of a
the development of integrated mass
statewide open space policy.
transit systems for the major
metropolitan areas, such plan to
become a part of the California
Transportation Providing a Balance
Conservation and Development Plan.
In the state's most critical air basins
That additional funding be made
the use of the automobile will have
available to mass transit, giving
to be substantially reduced if national
consideration to a variety of
ambient air quality standards are to
funding sources, including gasoline
be equalled or even closely approxi-
taxes, exise taxes on automobiles,
mated. To do this, acceptable alterna-
and taxes on the increased value
tives must be made available. Al-
of property resulting from
though legislation has been passed to
development of mass transit
give further assistance to public
facilities.
transportation agencies, new aggres-
sive efforts are needed at the state
level in terms of organization, plan-
Rural Development
ning, and massive funding if a truly
balanced transportation system is to be
Legislation passed during 1971 imposed
provided.
new requirements on local government
and provided improved tools for deal-
The Council recommends:
ing with premature or second home
subdivisions in rural areas. The situ-
That a Department of Transporta-
ation would be further improved by
tion be created within the Business
bringing certain of these areas under
and Transportation Agency, and
the interim permit jurisdiction of the
that this department, in coordina-
State and Regional Environmental
tion with and subject to the
Quality Boards as proposed in previous
approval of the proposed Environ-
recommendations. Short of that,
mental Quality Board, develop
however, additional measures regard-
a comprehensive state master
ing "finding of need" and strengthening
transportation plan for California,
local plans and ordinances can and
analyzing all modes of transporta-
should be taken promptly.
20
The Council recommends:
ordinances to apply to all develop-
ment. Since a significant number
Legislation that would require as
of lots are sold in rural areas
a condition for approval of a land
which do not come under the Sub-
project as defined in Section
division Map Act, cities and
11000. 5 of the Business and Pro-
counties should also be required to
fessions Code, that the local
adopt minor subdivision ordinances
agency make a finding, based on
in order that all division of land,
the "build-out" rate in the vicinity,
or "lot splitting" can be regulated.
the number of lots being offered
for resale, and other market indi-
That cities and counties be given
cators, that there is a need for
the authority to review all sub-
the project. Certainly if only 200
divisions approved prior to the
homes had been built over a six-
Subdivision Map Act, and, where
year period in a county where the
little or no development has
subdivision of some 15, 000 lots
occurred, revert the unused lots
had been approved, the need could
to acreage, as provided for by
be legitimately questioned and a
Chapter 4, Part 2, Division 4, of
finding made to that effect.
the Business and Professions Code.
That the Office of Planning and
Research develop criteria for de-
Coastline Management
termining the adequacy of city
and county general plans and that
The Council has attempted to deal with
appropriate procedures be de-
the coastal zone by recommending
veloped (which might include the
that it be brought within the interim
withholding of certain state
permit jurisdiction of the proposed
subventions to local government)
State and Regional Environmental
to insure that such criteria are
Quality Boards. The Council recog-
adhered to.
nizes, however, that a governmental
mechanism to protect the coastline is
That cities and counties be re-
long overdue and must stand on its
quired to adopt adequate grading
own in the event the creation of the
(including maximum slopes) and
State and Regional Environmental
erosion and sedimentation control
Quality Boards does not become a
21
reality this year. It is for this reason
That, in order to provide a better
that the Council strongly supports
perspective for local government,
legislation for the creation of a separ-
the appropriate state departments,
ate entity to develop a coordinated
coordinated by the Resources
plan for the coastal zone and to exercise
Agency, be directed to prepare
interim permit authority while the plan
criteria for the use of local
is under preparation.
agencies in determining the suffi-
ciency of soil and geologic con-
ditions to accommodate develop-
ment with a minimum landslide
Geologic Hazards
hazard and establish procedures
for adherence to these criteria.
Rapid urbanization of the State has
often ignored the obvious threats to
That the guidelines now being pre-
life and property -- flood, earthquake,
pared by the Council on Inter-
and landslide. Legislation has been
governmental Relations for the
addressed to these problems, but fur-
seismic safety elements (recently
ther steps need to be taken to strengthen
required as part of local general
these provisions and to insure that they
plans) include a definition of
are properly implemented.
earthquake risk, a classification
of land into standard earthquake
The Council recommends:
hazard zones, and minimum
design specifications for construc-
That the Legislature expand the
tion in different zones.
provisions of the Cobey-Alquist
Flood Plain Management Act to re-
That it be a matter of state policy,
quire that all lands which have
contained in the Environmental
been or may be inundated by flood-
Goals and Policy Report, that the
waters be subject to flood plain
continued development of geologi-
regulation, irrespective of the
cally unstable land constitutes a
existence of any federal flood con-
threat to the cítizens of California,
trol project report, and that
and hence should be prohibited.
those uses which are not compati-
In addition, guidelines and criteria
ble with flood plain lands be SO
relating to landslides and earth-
defined as part of the Act.
quakes should also be incorporated
22
as part of the Environmental Goals
statement on the population growth
and Policy Report.
and distribution implications of
the action; and (5) require that the
decision of the responsible entity
Environmental Impact Statements
adhere to the findings of the EIS
unless, consistent with the intent
The Environmental Quality Act of 1970
of the Act, it makes a specific
provides that all state and local
finding that the benefits to the
entities of government submit an
public outweigh the disadvantages
Environmental Impact Statement (EIS)
to the environment.
on any project they wish to carry out
which will have a significant impact on
the environment. The Act has served
c/ ENERGY USE
as an effective tool in reducing the
adverse effects of certain projects. It
Energy use has become one of the most
should, however, be broadened in
critical environmental issues facing
application.
the State. Present attitudes and public
policy have led to the unrestrained
The Council recommends that the
use of natural resources and excessive
Environmental Quality Act of 1970
pollution. A clear cut energy use and
be amended to: (1) specifically
power plant siting policy, with em-
apply to all "actions" of state and
phasis on conservation of energy, the
local government, including
appropriate governmental mechanism
special districts, which would have
for implementing such a policy, and
a significant impact on the environ-
a coordinated state and federal re-
ment; (2) specifically apply to
search and development program on all
regulatory activities as well as
aspects of the problem is required.
those that are being carried out by
the entity itself; (3) require that
The Council recommends:
cities and counties prepare an EIS
on any change of zoning or con-
That an Energy Conservation and
templated private project that will
Power Plant Siting Commission be
have a significant impact on the
established to develop, in cooper-
environment; (4) include as one of
ation with the federal government,
the elements of an EIS a detailed
the proposed Environmental
23
Quality Board, and all other
the California Conservation and
appropriate agencies, organiza-
Development Plan. The Com-
tions, and individual citizens, an
mission would test each proposal
overall energy use and power plant
for power development and
siting policy and measures for
transmission line routing against
its implementation. Such a policy
the approved master plan, as well
should involve: (1) specific
as various demand, environmental,
measures for reducing the per
scenic, and safety standards and
capita use of energy and for using
criteria, and, after holding public
energy which is available in the
hearings, have the authority to
most efficient manner; (2) con-
approve or reject the proposal.
tinuing evaluation and provision of
legitimate energy needs; (3)
The Commission might also be
developing all feasible and safe
given the authority to purchase
means for replacing, to the degree
sites in advance of need and lease
possible, the use of fossil fuels
them back to utility companies.
with near-zero emission electric
energy; and (4) a program for
That the federal government be
massive research and development
urged to embark on massive
and new technology regarding
research and development pro-
alternative sources of power, the
grams in connection with new
siting of power plants, the trans-
sources of energy, power plant
mission of electric power, and
siting, energy conservation, and
the handling, processing, and
other matters related to energy
storage of wastes.
policy administration.
The Commission would also de-
That a use tax (as well as an
velop a statewide power plant
increase in the basic rates) be
siting plan, after appropriate pub-
applied to the higher usage portion
lic hearings, which would be
of the utility rate structure to
subject to the approval of the State
finance the statewide energy con-
Legislature and the Environmental
servation and power plant siting
Quality Board, and which would
program. Present rate structures
constitute a master plan of pre-
for electric power begin at a few
ferred sites and become a part of
cents per kilowatt-hour and drop
24
to several tenths of a cent per kwh
quality depend on the comprehensive
as usage increases. A tax of one
land use, transportation, and energy
mill per kwh in the high-use
use programs and policies mentioned
brackets could raise as much as
in other sections of the report. The
$50-million. High volume energy
recommendations cited below are
users such as rapid transit
of a more immediate nature intended
agencies and those engaged in
to bring relief as soon as possible
other environmentally beneficial
to the state's more critical air basins.
activities should be exempt from
such taxes or rate modifications.
State Control Strategy
The development of nuclear fission
(present day and fast breeder reactors)
The Federal Clean Air Amendments
over the next 10 to 20 years, consid-
of 1970 require state government to
ering other alternatives, appears to be
develop a control strategy for meeting
the most feasible step toward meeting
national ambient quality standards.
the state's increased electrical de-
The measures cited in the control
mand, which at present is almost
strategy will significantly improve air
totally dependent on the use of fossil
quality. Some, however, cannot be
fuels. What is of utmost concern to
implemented without additional legisla-
the Council is that adequate steps be
tion. The Council endorses the pro-
taken to insure that this source of
posed control strategy and urges that
energy is developed in a way that
the Legislature act in those areas
minimizes the detrimental effects on
which are necessary to the plan but
the environment, conserves our fuel
which are not now within the purview
resources, and is safe. In particular,
of the State Air Resources Board.
continued development must be con-
ditioned on finding suitable solutions to
The Council recommends immed-
the problems of radioactive waste
iate legislative action on the
handling, processing, and storage.
following measures which are
essential to the state's control
strategy:
D/ AIR QUALITY
A program of mandatory periodic
Essential long range solutions to air
vehicle inspection, maintenance,
25
and repair to insure that required
That some form of emissions tax
smog devices are in proper
as well as other incentives to
working order.
operate low emission automobiles,
use cleaner fuels, and maintain
A program to expedite the de-
vehicles at a low emission level be
velopment of evaporative control
instituted. Such a tax could be
devices for retrofitting 1966-69
administered in conjunction with
vehicles, and to require the
the proposed mandatory inspection
installation of such devices at the
program which would be necessary
earliest date after their approval
to determine an automobile's
by ARB.
level of emission. Proceeds from
the tax would go to finance rapid
A program to phase the lead out
transit and clean air research and
of gasoline to "traces only" by
to assist lower income individuals
1977 in a manner that will not raise
to properly maintain their cars.
other undesirable emissions.
That the best available means to
used to substantially reduce
Additional Recommendations for
oxides of nitrogen emissions from
Immediate Action:
fossil-fueled power plants and
large industrial furnaces using
The Council recommends the
natural gas. Devices are in use
following additional measures
now on a limited scale which
which will strengthen the state's
reduce these emissions by as much
control strategy and help speed
as 50 percent.
the reduction in air pollution:
That steps be taken to control
That district hearing boards make
vapors emitted in connection with
an affirmative finding that the
the transferring of gasoline
applicant is making the maximum
from the tank truck to the service
effort to comply with air pollution
station and from the service
regulations before granting
renewals of variances.
station to the automobile through
the use of vapor recirculation
systems.
That increased supplies of gas
26
and low sulphur fuel for the state's
The Council recommends:
critical air basins be obtained
and that the proper federal author-
The imposition of an aviation fuel
ities be made aware of the
tax, the proceeds to be used for
extreme and critical need for such
aircraft noise abatement and nec-
fuel in these areas.
essary land acquisition, preferably
in the area where the tax is
That the present tax incentives
collected.
now applicable to the purchase of
gaseous fuels and the installation
That regulations or legislation be
of conversion kits for the use of
adopted which would apply the
gaseous fuels, which expire in
same permit requirements and
1975, be extended to 1980.
procedures to airport expansions
as now exist for the construction
of new airports. Such procedures
E/ NOISE
include provisions for holding of
hearings and require that all
Legislation to control airport noise, to
environmental considerations be
insure that adequate consideration is
taken into account.
given to the environment in connection
with new airports and to regulate new
That the Department of Education
development in the vicinity of an
and the State College Trustees
airport has been adopted over the last
be directed to investigate all pro-
three sessions of the Legislature.
posed acquisition of lands for
school and state college use within
Legislation was adopted during the
eight miles in each direction along
last session aimed at reducing noise
the flight corridor of an existing
from motor vehicle exhaust systems,
or proposed airport, and report
including off-highway vehicles, and
their findings to the Legislature on
motor vehicle tires.
February 1, 1973.
Major unresolved problems relate to
That alternatives for the determi-
airport expansion, jet overflights,
nation of allowable residence
occupational noise, building insulation,
proximity to freeways be estab-
and general community noise.
lished. These should be: (1)
27
a 500-foot buffer zone; or (2) a
ventilating, or air conditioning
depressed freeway or barrier,
equipment, or re-radiated noise
or combination thereof, such that
from fluid flowing in piping.
the average A-weighted (A) noise
level contour does not exceed 60
That each city and county be re-
dB(A) and maximum levels do not
quired to enact an ordinance
exceed 70 dB(A) at the boundary
setting fixed noise level limits,
of any residential zoning.
establishing criteria for consider-
ing noise in connection with zoning
That legislation be introduced to
changes, and establishing quiet
reduce the values in the General
zones within certain park areas.
Industrial Safety Orders to a
maximum occupational noise level
That the basic provisions of SB 692
of 85 dB(A) for an eight-hour day,
(1971) requiring the adoption of
by 1977, using a table of increased
rules and regulations relating to
noise levels for less than eight
noise insulation for buildings
hours of exposure, similar to the
intended for human occupancy, be
present Federal Occupational
reintroduced in 1972, and be
Safety and Health Act of 1970 Noise
changed to identify the types of
Exposure Limit Table.
buildings which come under the
bill's jurisdiction as "single and
That the Health and Safety Code be
multi-family dwelling units,
amended to require that all code
motels, hotels, and other resi-
jurisdictions in California add a
dential buildings."
section on airborne noise and
impact sound isolation in Group H
That noise standards be set for
and I occupancies, based on a
construction equipment, office
field performance standard which
machinery, and appliances, con-
shall be no less than the Federal
sistent with technological and
Housing Administration's rec-
economic feasibility and product
ommended criteria, as well as a
utility, and that the appropriate
section to the mechanical code set-
state agency be given the authority
ting a maximum noise level limit
to certify, or refuse certification
for interior noise in any dwelling
of, those products for sale in
unit, arising from heating,
the State.
28
That sufficient funds be made avail-
able to the University and State
Colleges to establish and maintain
a curriculum in environmentally-
related acoustics and noise con-
trol engineering; and further, that
the State encourage and promote
the upgrading of skill and knowledge
among architects, engineers, and
the appropriate segments of the
building trades through increasing
professional standards and by
supporting on-the-job programs.
F/ OTHER ENVIRONMENTAL ISSUES
Specific recommendations on water
resources, solid waste, pesticides, and
assessment practices, and other un-
resolved environmental issues are
pending further Council hearings and
study and will be the subject of in-
dividual reports to be submitted prior
to June 30, 1972.
While the Council decided that the ques-
tion of campaign financing is not within
the scope of its legislative charge,
some members felt that it is at the
heart of many environmental problems
and represents one of the most sig-
nificant obstacles to the enactment of
effective measures in this field.
29
ш/ DISCUSSION OF FINDINGS AND
RECOMMENDATIONS
III DISCUSSION OF FINDINGS AND RECOMMENDATIONS
A/ GOVERNMENTAL ORGANIZATION
A New Organization
The Council therefore reaffirms its
Introduction
recommendation for a strong govern-
mental organization not only to regu-
late pollution but also to provide
The Council's February 1971 report
the mechanism, at the state and basin
reflected the conviction that the major
levels, to preserve open space, pro-
void in the battle to restore and main-
tect critical ecological areas, and
tain a quality environment is the
redirect, phase, and, where neces-
state's lack of a governmental mecha-
sary, limit growth to a level consis-
nism capable of dealing with environ-
tent with appropriate health standards
mental problems in a comprehensive
and an attractive environment.
way.
The Council recommends the
creation of a State Environmental
Based on the report and testimony re-
Quality Board and eight corre-
ceived since, and because this ques-
sponding Regional Boards, with
tion was not resolved during the 1971
well defined powers and responsi-
Legislative Session, the Council is
bilities over water, air, solid
compelled to restate the problem in
waste, nuclear radiation, noise,
even stronger terms.
pesticides, forest practices, and
land use. The State and Regional
Governmental organization at the state
Boards would also be empowered
and basin levels, developed in a man-
to review and under certain con-
ner that will properly relate problems
ditions disallow projects of
of air, water, solid waste, and trans-
other governmental agencies
portation with the basic underlying
having significant impact on the
questions of land use, urban growth,
environment.
and population distribution, and oper-
ating within the framework of a state-
wide Conservation and Development
Responsibilities
Plan, remains the most critical unmet
environmental quality need facing
The existing and future programs for
the State of California.
the control of air, noise, water,
31
solid waste, and, at the state level,
government.
land use, would be consolidated under
the state board and eight regional
boards, and be administered directly
Organization
by them. The new state and regional
entities would assume the duties and
The State Environmental Quality Board
powers of the State Office of Planning
would consist of seven full-time mem-
and Research; the State Air Resources
bers appointed by the Governor for four-
Board and County and Regional Air
year staggered terms. Each member
Pollution Control Districts; and the
would be qualified in the protection,
State Water Resources Control Board
management, and improvement of the
and the nine Regional Water Quality
environment. The state board would
Control Boards. The state board
have jurisdiction over Planning and
would have the authority to coordinate
Research, Land Use, Environmental
the activities of, and review and set
Impact Review, Environmental Regula-
regulations for, pesticide use, nuclear
tion (Noise, Nuclear Radiation, and
radiation, and forest practices; but
Pesticides), Air Quality, Water Quality,
line administration and enforcement
and Solid Waste Management programs.
would remain primarily with those
departments now responsible.
An alternative approach to the state
level organization (not regional) would
In the case of land use, the regional
be to confine the state board to rule-
boards would be empowered to review
making and adjudication, and vest with
those projects having regional sig-
an administrator appointed by the
nificance, test these projects against
Governor the authority to execute policy
established regional environmental
established by the board and to carry
policies and objectives, and, if appro-
out the day-to-day regulatory responsi-
priate, disallow them or require
bilities. As state government is
necessary modification. Regional
presently organized, such an adminis-
boards would also have interim permit
trator would most likely be a depart-
authority over certain defined areas
ment head operating under the adminis-
of critical basin-wide or statewide
trative coordination of an agency
interest. Generally speaking, however,
secretary, who in turn sits as a mem-
day-to-day administration of land use
ber of the Governor's cabinet. It
matters would remain with local
would be possible, however, to have
32
this department head report directly
tive to environmental problems.
to the Governor as does the Director of
Others criticized it because they felt
Finance.
it would not be responsive government.
The Board-Department Head approach
One alternative is to have directly
could be a workable one as has been
elected representatives. Unless the
demonstrated in the State of Illinois.
districts were very small, however,
However, in order to accomplish the
seeking such an office would be costly.
objectives sought by the Council,
If the districts were made smaller,
the act creating such an entity would
to reduce campaign expenses, the
necessarily have to provide for the
boards in an area like the South Coast
regional agencies and other substantive
Basin would be too large and cum-
powers called for in this section.
bersome to be effective.
Regional boards made up primarily, if
Organization of Regional Boards
not entirely, of (or selected by) per-
sons presently holding office in city or
In its 1971 proposal, the Council rec-
county government is a second al-
ommended that the regional boards
ternative. This type of procedure is
consist of five full-time members
presently provided for in the Planning
appointed by the Governor. Later this
District Act of 1963, and would be
was amended, giving the Legislature
favored by local government.
two of the five appointments. The idea
of a small number of appointed board
Another alternative is some combina-
members determining the land use
tion of membership such as with the
policies of, for example, the South
San Francisco Bay Conservation
Coast Basin, in relationship to the mul-
and Development Commission, which
titude of competing economic and
consists of about 45 percent local
social considerations, and over ten
elected officials (or their designees),
million people, does not in retrospect
30 percent representatives of con-
appear to be the most desirable
cerned federal and state agencies, and
approach. It is criticized by conser-
25 percent public members appointed
vationists who fear that the appointing
by the Governor and the Legislature.
authority would have too much con-
trol and may not be sufficiently sensi-
Each of these alternatives has
33
advantages and disadvantages. Any of
and locations of business centers. The
them might be made to work effec-
problem, however, is that there now
tively. In the final analysis, the choice
exists no organizational, planning, or
will probably have to be made on the
policy framework for attempting to
basis of which is most politically
influence these interrelationships in
acceptable.
any kind of comprehensive manner.
To fill this void, the proposed Environ-
Land Use -- An Essential Element of
mental Quality Board would be re-
Reorganization
quired to prepare and adopt the State
Conservation and Development Plan,
Land use is covered in detail in the
which is described in more detail in the
Land Use and Population section of this
following section of this report.
report. However, it also must be
recognized as a critical element in re-
organizing government to deal with
Review of Public Projects
environmental problems. Basic deci-
sions that must be made to maintain
All state and local public agencies
reasonable levels of environmental
would be required to submit to the
quality (primarily land use decisions)
board an environmental impact report,
are being made or influenced by
in accordance with regulations pre-
hundreds of governmental agencies at
scribed by the board, on any major
all levels. To achieve a desired
proposed action which could have a sig-
balance between environmental quality
nificant effect on the quality of the
and social and economic objectives
environment. The board would be
it is necessary to attempt to deal with
authorized to modify or disapprove any
numbers and distribution of people
proposed action which fails to comply
within a given basin. This is dependent
with environmental protection re-
on land use decisions. The numbers
quirements.
and location of people and industries
determine (or are determined by)
the location and size of freeways, de-
Environmental Quality Citizens Council
sign of public transportation, design
of water and sewage systems, distribu-
The Council would consist of eleven
tion systems for gas and electricity,
members: seven appointed by the
34
Governor; two by the Assembly
and the laws that create it can serve as
Speaker; and two by the Senate Rules
the foundation for the constructive
Committee, all of whom would have
planning and action so desperately need-
demonstrated interest in and know-
ed. The new organization would be
ledge of the protection, management,
able to plan and regulate in a compre-
and improvement of California's
hensive manner on the basis of what
physical environment. The Council
is environmentally sound. It would
would report annually to the Governor
provide the mechanism for giving en-
and the Legislature and to the board
vironmental matters proper standing
on California's environmental problems
in the decision-making process and
and the effectiveness of governmental
a new stature and visibility for that
agencies in solving environmental
part of government responsible for en-
questions.
vironmental quality. The govern-
mental changes recommended are an
essential step toward achieving a
Other Organizational Recommendations
livable balance between man's demands
and nature's limitations. It is one
The Council has made additional rec-
that should be taken immediately.
ommendations dealing with the
organization of state government
which are covered in other sections of
B/ LAND USE, POPULATION, AND
the report. Specifically, these call
TRANSPORTATION
for creation of a Commission on Energy
Conservation and Power Plant Siting
(Energy Use section), and a Department
Introduction
of Transportation (Land Use, Popu-
lation, and Transportation section).
Land is our most basic resource.
Upon it we build our networks of human
activities. It provides our major
What Would Be Different?
sources of food, water, fiber, miner-
als, and other needs to sustain and en-
The Council fully recognizes that or-
hance human existence. And the richly
ganization alone will not resolve
variegated landscape, created by
the state's environmental problems.
natural processes over eons of time,
However, the appropriate organization
provides us beauty and inspiration.
35
Given the numbers of people who now
the demands of a burgeoning population,
populate our planet, it is self-evident
we have sprawled all over the country-
that the use we make of our land is
side, virtually oblivious to the con-
critical to the well-being of society.
straints of the environment or the ame-
In simple terms, the allocation of land
nities which make the State unique;
resources is based on the needs and
and, in the process, we have designed
demands of society to provide for sus-
for ourselves inefficient and some-
tenance, shelter, circulation, and
times untenable living patterns. As
services. These demands predicate a
part of the charge of the Council we
complex fabric of physical uses to
will in this section examine the land
which land is put. The character of
problems of California and their
this fabric determines to a large degree
causes, and recommend a set of pro-
the quality of human environment.
grams and policies designed to re-
The density of urban metropolises, the
solve those problems.
convenience with which we move
around in this fabric, our perception
of its aesthetic qualities, our con-
Rapid Growth The Basic Cause
tinued ability to productively utilize
natural resources, and indeed, our
At the root of California's environ-
overall health and welfare are depen-
mental problems, particularly with re-
dent in part on our ability to effectively
spect to land use, is the rapid rate of
integrate the patterns of human exis-
population increase that the State
tence with the character of the land.
has experienced ever since the Gold
Rush. The growth rate in California
Over the past three years it has
has consistently throughout the
become clearly evident to the Council,
Twentieth Century been over twice that
in its process of examining California's
of the rest of the United States. In
environmental problems, that the
1940 the population was just under
State as a whole has failed both to plan
seven million. In 1960, following the
adequately and to carry out plans for
great boom of the 1950's, Californians
accommodating its growth through the
numbered fifteen million. The state
wise allocation of land resources.
population now is in the vicinity of
In fact, California has squandered its
twenty million people, and by 1980 it
land resources in a grossly negligent
has been forecast that it will rise to
fashion. In our attempts to meet
approximately twenty-six million.
36
Conservation and Development Plan
interest; and power plant siting.
The demand placed on California's
Based on the state plan, each
resources by an increasing population
regional board would be required
has resulted in the degradation of its
to adopt by January 1, 1977,
environment. The State must play
with approval of the state board, a
a new and strong role in land use, ur-
regional conservation and devel-
ban growth, and population distribution
opment plan which would include,
by providing the policies and common
in addition to those elements cited
framework for determining how its
above, certain specified ele-
resources are to be allocated.
ments appropriate to the region.
Based on the regional plan,
The Council recommends that the
cities and counties would be re-
proposed Environmental Quality
quired to adopt by January 1, 1978,
Board be required to adopt and
with approval of their regional
present to the Legislature by
board, a local conservation and
January 1, 1976, a comprehensive,
development plan.
coordinated, and enforceable
plan and management program for
Local planning and zoning would
the orderly long-range conser-
continue essentially as at present.
vation and development of
However, under the Act, no city
California's natural resources,
or county would enforce any zoning
known as the California Conserva-
ordinance, amendment, or other
tion and Development Plan. In-
form of similar regulation which is
dividual plan elements would
not consistent with the adopted
include environmental goals and
local conservation and development
policy (including a population
plans.
growth and distribution policy);
land use; basin carrying capacity;
Until such time as the Legislature
environmental quality (waste
has taken final action on the
control); coastal zone; transpor-
California Conservation and Devel-
tation; parks and open space;
opment Plan, proposed major
natural resources conservation;
developments involving significant
critical historical, scenic, and
and irreversible environmental
wildlife habitat areas of statewide
changes in the coastal zone and
37
certain rural areas of unique
problems must necessarily involve a
statewide value would, in accor-
commitment to alleviate the pressures
dance with specified criteria, be
of uncontrolled growth.
subject to an interim permit
procedure administered by the
This has been borne out by any number
state or regional boards.
of responsible studies on the question,
the most recent of which, by the
Assembly Science and Technology
Population Growth and Distribution
Advisory Council, states in part:
Complicating the problem of numbers
"California's growth has been
of people is their distribution. Some
characterized by an ever larger
80 percent of all Californians live
proportion of population living
in the San Francisco Bay Region and
within a few metropolitan areas.
the Los Angeles Basin. Over 90
Recent urban expansion has taken
percent of the people live in metropol-
place in sprawling, suburban
itan areas. If present trends con-
fringes of these areas. The urban
tinue, most of California's future pop-
settlement pattern has occurred
ulation will continue to be channeled
largely through the interplay of
into our present urban areas.
economic forces, and not through
conscious public policies aimed
The pressures generated by the phe-
at influencing the rate and charac-
nomenal growth rate in California
ter of new urban development.
have been sufficient to thwart construc-
The present pattern of disorga-
tive attempts to accommodate it within
nized urban sprawl in California:
the context of sound planning and
(1) is inefficient and costly in
environmental principles. Despite
terms of public services; (2) is
stepped-up efforts to correct the prob-
dull, unattractive, and does not
lems, we continue to lose ground in
promote stable neighborhood
the fight to maintain the quality of our
patterns; (3) wastes land and
physical environment, let alone in
other resources; and (4) encour-
our efforts to meet the challenge of
ages unproductive land speculation.
improving it. The Council is convinced
Californians are becoming in-
that any dedicated attempt to resolve
creasingly dissatisfied with the
our land use and other environmental
quality of urban life at the same
38
time that accessibility to open
tional facilities, the location of
space and recreation areas for ur-
power plants, the development of
ban residents is decreasing.
resource management policies,
These conditions will not be solved
and the conduct of other activities
unless population growth is
should be carried out in a way
reduced.
which will influence population
growth and distribution; and further
The development and implementation of
that Environmental Impact State-
state, regional, and local conserva-
ments prepared in connection with
tion and development plans would re-
various projects and activities
quire the adoption of a comprehensive
of federal, state, and local agen-
policy to guide to what degree and
cies should be expanded to include
in what locations growth should occur.
a description as to their impact
on population growth and
The Council recommends that
distribution.
state government formulate and
adopt explicit population growth
and distribution policy aimed at
The Council noted in its 1971 progress
achieving desirable long-term
report that the question of population
social, economic, and environmen-
distribution is national in scale and
tal goals for California. In the
that urban growth and population influx
formulation of such a policy each
must be encouraged in those states
major unit of state government,
where the proper balance between man
particularly those concerned with
and nature can still be accommodated.
transportation, resources,
During World War II, contracts were
housing, employment, and educa-
distributed throughout the country
tion, should be directed to de-
to reduce vulnerability to enemy attack.
termine the impact of present pop-
Now we must employ the same tactics
ulation trends on their activities
to protect large portions of this na-
and the impact of their activities
tion from a different kind of threat.
on population distribution.
The federal government should be urged
to adopt policies consistent with state
State actions, with respect to the
population objectives and develop a
construction of public works
national population growth and distribu-
projects, the placement of educa-
tion policy.
39
Basin Carrying Capacity
The Council realizes that the con-
cept of a human carrying capacity,
The major criteria in the development
at least as applied to a particular
of a statewide population growth and
region, does not entail the
distribution policy should be the natural
designation of an unchanging and
carrying capacities of the state's
absolute value. As our technological
basins.
capabilities increase -- as hopefully
we begin to alleviate our air
The Council recommends that
pollution crisis, for example -- - the
state government undertake to de-
carrying capacity in a given area
termine the maximum carrying
may increase. Moreover, the
capacity for each region, based on
determination of a carrying capacity
the best of available information
depends upon a multitude of
relating to air, water, land, and
varialbes, the interaction of many
other resources which are critical
of which are not completely under-
to public health and environ-
stood, and initial conclusions may
mental protection, and that the
necessarily tend to be arbitrary.
Environmental Goals and Policy
It does, however, seem that up to
Report developed pursuant to
this point continuing concentration
Section 65041 of the Government
of population in our most heavily
Code include: (1) the estimated
urbanized regions has caused deple-
carrying capacity, based on those
tion of vital resources beyond the
factors mentioned above, of the
capacity of natural processes to
state's most critical basins; (2)
restore them. In some instances the
a discussion of where and how
technical methods available now or
much future growth should occur
in the foreseeable future are insuffi-
in the state's different regions,
cient to restore levels of quality
with particular emphasis on the
which will assure freedom from in-
coastal urban corridor between
jury to health. So long as the tech-
Santa Rosa and San Diego; and (3)
nical methods remain unavailable,
those alternative patterns of
the natural carrying capacities
regional development which should
of these urbanized regions must be
be encouraged, including "new
regarded as the principal criteria
towns" and the expansion of existing
in the establishment of standards for
smaller communities.
the maintenance of public health.
40
Immediate Strengthening of State Role
(2) be given the authority to de-
in Land Use
velop criteria for determining the
adequacy of local and regional
The preparation of a California Conser-
plans; (3) be directed to begin
vation and Development Plan, to-
immediately the preparation of a
gether with a population growth and
state population growth and
distribution policy and basin carrying
distribution policy; (4) be di-
capacity studies, is an essential task
rected to begin basin carrying
which should be started as soon as
capacity studies; and (5) be given
possible. The Council recognizes,
the additional funding needed to
however, that the creation of the Envi-
carry out these and other tasks.
ronmental Quality Board and the new
land use planning role for state govern-
Where appropriate, this new policy
ment proposed herein will take a
direction should be made a part of the
certain period of time to become real-
Environmental Goals and Policy
ity. On the other hand, the Office of
Report now being prepared by that
Planning and Research, which would
office.
later come under the administra-
tive jurisdiction of the proposed board,
is presently functioning and could
Loss of Prime Agricultural Land
begin, during the interim period, to
assume the strong land use program
The accelerating loss of our best agri-
proposed by the Council. To do
cultural lands to urban development
this stronger financial commitment
is an outstanding example of unwise
and specific new direction will need to
land use in California. The State loses
be given it.
375 acres of farmland a day to urban-
ization. If this rate were to remain
The Council recommends that the
constant, half of the state's productive
Office of Planning and Research:
farmland would be destroyed in thirty
(1) be directed to begin prepa-
years, and if it continues to accelerate
ration of the California Conserva-
as in past years, 80 percent would
tion and Development Plan
be gone.
called for herein, and to provide
for adequate public participation
Although there is no immediate threat
in the preparation of same;
of food shortages in the United States,
41
there is no guarantee that continued
land, but should pay a tax in accor-
increases in crop productivity and
dance with the value given by its use.
irrigable land acreage will indefinitely
Further, when lands are assessed on
counterbalance the loss of agricul-
the speculation that their use will
tural land. There is a diminishing
change to urban purposes, government
amount of additional land which can be
is incurring a de facto obligation to
converted to agricultural use in
permit the change. Zoning to the con-
California, and that use is dependent
trary will ultimately be of no avail.
upon massive water projects for which
there is growing concern as to en-
The basic problem is that much of the
vironmental side effects.
land that should be reserved for
agriculture or that needs protection to
preserve the aesthetic and recrea-
Assessment Practices
tional qualities of California is in pri-
vate ownership. So long as these lands
One public policy which tends to expe-
continue to be taxed on the basis of
dite the urbanization of agricultural
"market value", on the speculation
land has to do with assessment prac-
that they will change to an urban use,
tices. Although the Land Conservation
government is recognizing the right of
Act of 1965 (the Williamson Act) was
the owners of that land to change its
designed to offer relief in this area, it
use and indeed encourages them to do
has had little if any impact. It is
so. No arm of government can be
the policy now to assess land on the
effective in resolving problems such as
speculation that its use will change
this until the basic public policies
from agricultural or other usage to
are corrected.
urban usage. And urban usage is mis-
takenly called the "highest and best
The Council recommends that it be
use". The basic purpose of the ad
the public policy of the State of
valorem tax on land is to provide for
California that agricultural usage,
people-oriented governmental services.
the planting and growing of crops,
Agriculture is a use of land that in-
be recognized as the highest and
volves very sparse populations, as do
best use of prime agricultural
essentially all uses other than urban.
land, and that the assessed valua-
Those lands should not, then, pay the
tion of such land for ad valorem
same tax as does densely populated
tax purposes be based on the value
42
its use gives it. This is the land,
present federal, state, and local
in the most part, that is classed as
policies which fund flood control
recent alluvium and as basin land.
projects at general public expense
Such recognition, duly implemented,
and thereby provide a public sub-
would serve to create the badly
sidy for the urbanization of flood
needed "open space" and would help
plains (which are usually prime
to preserve the economic viability
agricultural lands), be revised so
of California.
that the landowners benefitted
incur a more reasonable portion
of the costs of such facilities.
Flood Control Policies
Flood control policies in particular
Open Space Program
greatly encourage urban sprawl and con-
tinued excessive population growth at
The concept of open space includes
the expense of prime agricultural land.
three basic components. First, there
Flood control is treated as a nonre-
is positive open space those lands
imbursable cost at the federal, state,
with a positive value to society which
and local levels. In other words, all
should be preserved for affirmative
people share in the cost of flood con-
reasons dealing with th e characteris-
trol, whether or not they live on lands
tics of the land itself. Examples
where there is an undue flood hazard.
include resource production and con-
And, it so happens in California that the
servation areas such as forest land,
valley and basin lands, the flood hazard
agricultural land, watersheds, estu-
lands, are also the prime agricultural
aries, wildlife refuges, unique
lands. Many of today's problems of
geologic areas, historic and cultural
urban sprawl would be abruptly halted
sites. recreation land, and scenic
by a reversal of this public policy.
areas. On the other hand, negative
Information is available now for much
open space includes those lands such
of the State to delineate precisely
as earthquake zones, flood plains,
the lands subject to flooding: and infor-
and landslide areas which are danger-
mation can be obtained for those lands
ous to use for any urban purpose.
not yet SO surveyed.
Thirdly, open space can function as a
greenbelt a band of open space
The Council recommends that
normally surrounding an urban area
43
but which also may divide portions of
"b) That discouraging premature
a greater metropolitan region. It
and unnecessary conversion of
offers a means of defining a community
open space land to urban uses is a
and serves to direct the growth of a
matter of public interest and
city.
will be of benefit to urban dwellers
because it will discourage non-
The Council is convinced that a well-
contiguous development patterns
designed open space program can be a
which unnecessarily increase the
key to resolving major land use con-
costs of community services
flicts. If implemented with vigor, it
to community residents. "
could preserve lands needed to supply
our resource needs, insure the main-
tenance of public safety by prevent-
The State has provided the rudiments
ing the development of geologically
of an open space preservation pro-
hazardous areas, help meet our huge
gram in the form of the Land Conser-
recreational demands, halt urban
vation Act of 1965 (the Williamson
sprawl, provide direction for urban
Act), which involves a contractual
growth, and serve to more easily im-
agreement between the county and the
plement sound planning principles.
landowner whereby the latter agrees
not to develop his property for
The State of California has recognized
urban uses in return for lower taxes.
the importance of open space in
It should be emphasized, however,
Section 65561 of the Government Code,
that this program is voluntary and that
which states as part of the legislative
many property owners whose land is
findings:
in the path of development have chosen
to avoid such agreements.
"a) That the preservation of open
space land is necessary not only
The State has also required that local
for the maintenance of the economy
governments include an open space
of the State, but also for the
element in their general plans, that
assurance of the continued avail-
this element be supported by an imple-
ability of land for the production of
mentation program, and that all
food and fiber, for the enjoyment
actions of the city or county concern-
of scenic beauty, for recreation,
ing open space lands be consistent
and for the use of natural resources.
with the plan.
44
Although these laws are steps in the
a functional element of the
right direction, they cannot be regarded
California Conservation and
as sufficient to provide for our open
Development Plan and to augment
space needs. We cannot expect most
and give substance to the state
landowners at the rural-urban fringe to
population growth and distribution
voluntarily forego the potential eco-
policy. It should classify state
nomic gain of urbanization in favor of
lands into open space categories,
the Williamson Act, nor can we
indicate those areas which should
expect local governments to develop
remain as open space, designate
suitable open space programs on their
lands sufficiently important to
own. The Council believes that a
the State to require direct and
much greater level of involvement by
immediate action to protect or pre-
the State is necessary.
serve them, and outline a pro-
gram and financial requirements
necessary to implement the plan.
The State Open Space Plan should
The Council recommends:
also be designed to serve as a
guide in the preparation of basin
That an open space policy be in-
plans.
corporated into the State En-
vironmental Goals and Policy
Report. This policy would define
The Council is aware that open space
the desirable objectives which
preservation does not necessarily
should guide an open space pro-
equate with land acquisition. While it
gram, delineate the areas of
is highly desirable to expand efforts
responsibility at different levels
to purchase land which has great value
of government, outline the broad
as open space, the use of the police
categories of land use which
power, principally zoning powers, will
should be preserved, and estab-
undoubtedly form the bulwark of open
lish priorities for open space
space regulation. Unfortunately, zoning
preservation.
has a rather poor record as a method
of land use control. It is the feeling of
That the Office of Planning and
the Council, however, that the strong
Research prepare by January 1974
wording of the legislation requiring
a State Open Space Plan to become
open space elements, to wit:
45
Any action by a county or city
space, threatened wildlife habitats,
must be consistent with
and important scenic and his-
the local open space plan
toric areas of statewide signifi-
No building permit may be
cance. This measure should also
issued, no subdivision map
provide for grants to regional
approved, and no open space zon-
and local agencies to assist in
ing ordinance adopted unless
carrying out the purposes of a
the proposed construction, sub-
statewide open space policy.
division, or ordinance is con-
sistent with local open space plan
Other Possible Methods of Funding
" Every city or county, by
Open Space
January 1, 1973, shall adopt an
open space zoning ordinance. "
There is a practical limit to the
general obligation bond approach to
provides sufficient restraints on local
financing open space acquisition. Other
agencies that zoning can be used as
methods need to be explored to supple-
an efficient tool for implementing open
ment this basic source. Such alterna-
space plans, particularly if assess-
tives as the unearned increment tax,
ment practices are also changed.
a one-time change-in-use tax, and a
regional or statewide property transfer
tax are some that have been pro-
Bond Funding Needed
posed. The question of open space
requirements, and methods for financ-
However, if a statewide open space
ing acquisition of same, have been
program is to be properly implemented,
the subject of studies by both the
massive acquisition of private lands
Legislature and the Administration.
at the expense of the general taxpayer
The 1970 report of the Joint Commit-
will be necessary.
tee on Open Space is perhaps the
most pertinent. This same committee
The Council recommends that a
will report again to the Legislature
bond issue in the amount of $250-
during the current session and antici-
million be placed on the November
pates covering in more detail the
1972 ballot to provide funds for
critical question of open space funding.
the acquisition of needed open
46
Transportation -- Providing a Balance
has had a single-purpose assignment
in highway construction. In the
It is well known that the automobile is
San Francisco Bay Area, there are at
the major source of air pollution in
least 15 overlapping agencies in
the State. Although steps are currently
addition to individual city and county
being taken to minimize this condition,
governments, all with some responsi-
it is projected that in the state's most
bility for transportation. The exis-
critical air basins motor vehicle
tence of many single-mode agencies
usage will have to be substantially re-
hampers the effective integration of
duced if national ambient air quality
transportation planning with other
standards are to be equalled or even
community planning and hinders coor-
closely approximated.
dination between the various modes.
Regional planning agencies which in
And there are still further problems
theory are responsible for developing
caused by reliance on the automobile.
area-wide transportation plans as
Travel demands in some of the
part of their comprehensive planning
major corridors may soon exceed the
process have been largely ineffective
practical capabilities of the present
due to a lack of funds to perform
highway program. Traffic projections
transportation planning and a lack of
in ten of the state's urban corridors,
authority to implement plans they
four in San Francisco and six in
might develop.
Los Angeles, indicate that as many as
14 to 22 freeway lanes may eventually
The Council recommends that a
be needed. Present plans call for
Department of Transportation
no more than 12. If even portions of
be created within the Business and
the projected future demand are to
Transportation Agency, and that
be met, alternative means of moving
this department, in coordination
people must be developed or we face
with and subject to the approval of
a choking off of our cities.
the proposed Environmental Quality
Board, develop a comprehensive
Currently transportation investment
state master transportation
decisions are made by independent
plan for California, analyzing all
single-mode agencies or special dis-
modes of transportation, with
tricts at the state, regional, and local
primary emphasis on the develop-
levels. The Division of Highways
ment of integrated mass transit
47
systems for the major metropol-
comprehensive transportation planning
itan areas, such plan to become a
at the state and local levels and calls
part of the California Conservation
for the Secretary for Business and
and Development Plan.
Transportation to take a more active
role in public transportation through
Timely action is clearly required if
the promulgation of rules and guide-
California is to meet successfully
lines for the use of local transportation
these transportation challenges and
funds provided by the bill. As a re-
remain a leader among the states in
sult, SB 325 provides both a require-
developing an efficient transportation
ment and to some extent the means
system. Several other states,
for the State to become more actively
New York, New Jersey, Maryland, and
involved in multi-modal transportation
Massachusetts, for example, which
planning, transportation research
are facing similar problems have al-
and development programs, and secur-
ready reorganized their transportation
ing federal funds for needed trans-
agencies and have assigned to them
portation facilities. However, far
varying degrees of responsibility for
more funding is required.
conducting statewide transportation
planning for all modes. Failure to do
The Council recommends that
so in California will almost certainly
additional funding be made avail-
result in further deterioration of the
able to mass transit, giving
environment as well as in the quality of
consideration to a variety of fund-
transportation services in the State,
ing sources, including gasoline
particularly in the urban areas.
taxes, excise taxes on automobiles,
and taxes on the increased value
of property resulting from develop-
More State Involvement - Increased
ment of mass transit facilities.
Funding
The recent passage of SB 325 (Chapter
Rural Development
1400, Statutes of 1971) makes the
consideration of an integrated trans-
California's land use problems unfor-
poration organization especially timely.
tunately are not restricted to urban
This legislation provides approximately
growth corridors. During the past
$150-million in new funds to support
decade a great land boom has originated
48
in the more remote rural areas of the
accelerated erosion and sedimentation,
State as the vacation home industry
loss of vegetative cover, polluted
has gained momentum. With added
water, loss of fish and wildlife, over-
leisure time, rising incomes and living
use and loss of recreational areas,
standards, more adults over age 60,
diminished surface water, reduced
more and better roads giving access to
groundwater recharge, reduced stor-
recreational areas, and more dis-
age capacities in reservoirs, in-
satisfaction with the frustrations of
creased flood hazard, diminished
urban living, there has been an inevit-
grazing and timber lands, scarred
able gravitation to vacation homes.
landscape, greater fire hazard, sev-
In 1971, one out of every ten new hous-
ered access to public lands, streams
ing starts in the United States was for
and lakes, and intensified air pollu-
a vacation home. Since 1957, land
tion as being some of the more signifi-
projects in California have been
cant detrimental impacts.
approved totalling 172, 497 lots on
341, 373 acres! It has been estimated
Last year the Legislature passed three
that in several northern California
measures which it is hoped will insure
counties existing lots could accommo-
more adequate consideration of the
date the established growth rate in
environment by local government and
those counties for the next one hundred
provide better information on the
to three hundred years. However,
financial pitfalls of the premature sub-
because the build-out rate (number of
divisions to the prospective buyer.
houses built in proportion to lots sold)
is very low between one and three
AB 1300 (Chapter 1399) extends to
percent large tracts of land
fourteen days the time period within
throughout the State are virtual ghost
which a buyer can rescind on an
cities, with networks of streets and
executed contract for purchase of a
blocks of cleared and houseless lots
lot within a land project.
sitting in the middle of nowhere.
In the past little attention has been
given to the potential harmful environ-
1*
"Environmental Impact of
mental effects of the premature sub-
Urbanization on the Foothill and
division. A recent report of the
Mountainous Lands of California,"
Department of Conservation 1* cited
November 1971.
49
AB 1301 (Chapter 1446) provides that
Short of that, however, additional
no city or county shall approve a
measures regarding "finding of need"
subdivision map unless it is consistent
and strengthening local plans and
with the general or specific plans of
ordinances can and should be taken
the city or county, and that no city or
promptly.
county shall approve a land project
unless a specific plan has been adopted
The Council recommends:
for the area to be covered by such
project and unless such project is con-
Legislation that would require as
sistent with the adopted specific plan.
a condition for approval of a
AB 1301 also expands the grounds on
land project as defined in Section
which land projects and subdivisions
11000. 5 of the Business and
shall be denied to include "substantial
Professions Code, that the local
environmental damage". It further
agency make a finding based on
provides that all city and county ordi-
the "build-out" rate in the vicinity,
nances shall be consistent with an
the number of lots being offered
adopted general plan by January 1, 1973.
for resale, and other market
indicators, that there is a need
AB 1302 (Chapter 1327) provides that
for the project. Certainly if only
the Office of Intergovernmental Manage-
200 homes had been built over a
ment shall serve as a clearinghouse
six-year period in a county where
for providing state expertise to cities
the subdivision of some 15, 000
and counties requesting such service
lots had been approved, the need
in connection with a subdivision or land
could be legitimately questioned
project.
and a finding made to that effect.
The above legislation imposed new
That the Office of Planning and
requirements on local government and
Research develop criteria for de-
provided improved tools for dealing
termining the adequacy of city
with premature or second home sub-
and county general plans and that
divisions in rural areas. The situation
appropriate procedures be devel-
would be further improved by bring-
oped (which might include the with-
ing certain of these areas under the
holding of certain state subventions
interim permit control as proposed in
to local government) to insure
the Council's first recommendation:
such criteria are adhered to.
50
That cities and counties be re-
the open space and other amenities
quired to adopt adequate grading
that must be replaced.
(including maximum slopes) and
erosion and sedimentation control
ordinances to apply to all develop-
California's Disappearing Coast
ment. Since a significant number
of lots are sold in rural areas
For the state's fourteen million resi-
which do not come under the Sub-
dents living within one hour of the
division Map Act, cities and
coast, it has unparalleled recreational
counties should also be required
significance. But of the 1, 272 miles
to adopt minor subdivision ordi-
of shoreline, a little over 400 miles
nances in order that all division of
is in public ownership, of which
land, or "lot splitting" can be
only about 300 miles are available for
regulated.
actual public recreational use.
That cities and counties be given
The same features which contribute to
the authority to review all sub-
the uniqueness of our coast also make
divisions approved prior to the
it very desirable for development,
Subdivision Map Act, and, where
and particularly in the South Coast,
little or no development has
where the pressure to "build, build,
occurred, revert the unused lots
build" has been tremendous. Nor is
to acreage, as provided for by
the threat restricted to Southern
Chapter 4, Part 2, Division 4, of
California. In the north, second home
the Business and Professions Code.
recreational subdivisions are prolif-
erating along the accessible parts of
AB 1304, which did not pass the 1971
the coast. In one 50-mile stretch
Legislature, would have authorized
between Dillon Beach in Marin County
counties to impose a tax on the privi-
and Del Mar Point in Sonoma County,
lege to subdivide land at the rate of
33 miles are occupied by subdivisions
5 percent of full market value of prop-
without even minimum public access
erty within a land project sold to
beyond mean high tide. In the Half
another person. This concept should
Moon Bay area of San Mateo County,
be pursued not only because of the
developers are poised to suburbanize
cost that must be incurred to service
most of the coast awaiting only
these developments but because of
the provision of domestic water.
51
Skirmishes and outright battles between
the environmental integrity of the
environmentalists and developers and
coast.
other powerful private interests,
public utilities, single-purpose govern-
The Council has attempted to deal with
mental agencies, and, ironically, en-
the coastal zone by bringing it within
vironmental regulatory agencies,
the interim permit jurisdiction of the
have become commonplace in commu-
proposed State and Regional Environ-
nities along the entire coast. A
mental Quality Boards. The Council
random listing includes a proposal to
recognizes, however, that a govern-
dredge gravel from the mouth of the
mental mechanism to protect the coast-
Russion River at Jenner, proposed
line is long overdue and must stand
high density development on prime
on its own in the event the creation of
agricultural flood plains at the mouth
the State and Regional Environmental
of the Carmel River, large growth-
Quality Boards does not become a
promoting sewage treatment plants at
reality this year. It is for this reason
Bodega and Malibu, coastal freeways
that the Council will strongly support
near Eureka, Malibu, Santa Cruz,
legislation for the creation of a separ-
and Santa Barbara, and proposed nu-
ate entity to develop a coordinated plan
clear power plants at Bodega Head,
for the coastal zone and to exercise
Point Arena, and Davenport. Suffice
interim permit authority while the plan
it to say that with ever increasing
is under preparation.
momentum a battle is being waged on
many individual fronts to protect the
It should be understood, however, that
environmental qualitites of the coast
such an approach is temporary,
from the onslaught of progress.
necessitated only by the immediate
threat of great irreversible damage to
Given the relentless pressure of devel-
a unique and limited resource, and
opment focused on the limited land area
that at the appropriate time it would be
in the coastal zone, no immediate
integrated into a broader framework
measure of success can be expected
for dealing with land use control.
within the currently existing system of
fragmented and undirected authority.
It is clear that immediate and positive
Geologic Hazards
action is necessary to forestall
further despoliation and preserve
Rapid urbanization of the State
52
has often ignored the obvious threats to
Code, which specifies that no govern-
life and property -- flood, earthquake,
ing body of a city or county shall
and landslide. Legislation has been
approve a tentative or final subdivision
addressed to these problems, but fur-
map if it is found that the site is not
ther steps need to be taken to strengthen
physically suitable for the proposed
the applicable provisions and to insure
type of development. It is the hope of
that they are properly implemented.
the Council that this provision will
enforce adequate consideration of geo-
The Cobey-Alquist Flood Plain Manage-
logic and soil characteristics with
ment Act of 1965 presently requires
respect to landslides prior to the de-
that flood plain regulations be adopted
velopment of questionable areas.
by local agencies only when a federal
There is, however, a need to provide
flood control project report has been
local government with assistance in
completed, and that such regulation
evaluating such matters.
need pertain only to the design floodway
that portion of the flood plain which
The Council recommends that, in
is needed to provide for the construction
order to provide a better per-
of a flood control project. This Act
spective for local government, the
needs to be strengthened considerably.
appropriate state departments,
coordinated by the Resources
The Council recommends that the
Agency, be directed to prepare
Legislature expand the provisions
criteria for the use of local agen-
of the Cobey-Alquist Flood Plain
cies in determining the sufficiency
Management Act to require that all
of soil and geologic conditions to
lands which have been or may be
accommodate development with
inundated by floodwaters be subject
a minimum landslide hazard and
to flood plain regulation, irre-
establish procedures for adherence
spective of the existence of any
to these criteria.
federal flood control project report,
and that those uses which are not
With the passage of SB 351 (Chapter 150,
compatible with flood plain lands be
Statutes of 1971), local jurisdictions
SO defined as part of the Act.
are required to include a seismic ele-
ment in their general plans. However,
The Legislature last year added Section
there is very little agreement as to
11549. 5 to the Business and Professions
what constitutes an acceptable
53
earthquake risk, and thus a widely
contained in the Environmental
divergent range of approaches to seis-
Goals and Policy Report, that the
mic safety regulations. The Council
continued development of geolog-
on Intergovernmental Relations is
ically unstable land constitutes
presently developing two demonstration
a threat to the citizens of Calif-
projects designed to formulate guide-
ornia, and hence should be pro-
lines for the preparation of the seismic
hibited. In addition, guidelines
safety element. The Division of Mines
and earthquakes should also be in-
and Geology, State Department of
corporated as part of the Environ-
Conservation, which has already done
mental Goals and Policy Report.
considerable work in this area, in-
cluding a recently completed Master
Plan for Urban Geology, will provide
The State's Land Use Role
assistance. These efforts, strength-
ened by the recently created Governor's
In 1959 the Legislature created the
Earthquake Council, give the State an
State Planning Office, which was
excellent opportunity to give strong
charge with the responsibility to "pre-
direction to local government in this
pare, maintain, and regularly review
important area.
and revise a comprehensive long
range general plan for the physical
The Council recommends:
growth and development of the State".
Ten years and four million dollars
That the guidelines now being pre-
later, the office produced the Calif-
pared by the Council on Inter-
ornia State Development Plan Program,
governmental Relations for the
which presented a wide range of
seismic safety elements (recently
social, economic, environmental, and
required as part of local general
political issues facing California,
plans) include a definition of
with recommendations for improving
earthquake risk, a classification
the ability of government to resolve
of land into standard earthquake
them. Although the Development Plan
hazard zones, and minimum
Program was valuable in establishing
design specifications for construc-
a perspective of California's problems,
tion in different zones.
it was not a comprehensive plan and
did not provide a basis for guiding
That it be a matter of state policy,
growth in the State.
54
Office of Planning and Research - In
Forest and agricultural lands which
1970, the Legislature replaced the
are judged to be of major impor-
State Office of Planning with the Office
tance in meeting future needs for
of Planning and Research (OPR).
food and timber.
This new planning entity, operating
------------------------- Areas which provide green space
within the Governor's office, was given
and open areas in and around high
the primary responsibility to assist
density metropolitan development.
in the formulation, evaluation, and up-
Areas which are required to provide
dating of the long-range goals and
needed access to coastal beaches,
policies for land use, population growth
lakeshores, and riverbanks.
and distribution, urban expansion,
- Areas which require special develop-
open space, resources preservation
ment regulation because of hazardous
and utilization, and other factors which
or special conditions, such as earth-
shape statewide development patterns
quake fault zones, unstable slide
and significantly influence the quality
areas, flood plains, and watersheds.
of the state's environment, These en-
vironmental objectives are to be trans-
In addition to the primary responsibility
lated into a State Environmental Goals
of policy formation, OPR is given the
and Policy Report. Prior to approval
planning responsiblities to: (1) assist
by the Governor, the report is to be
in the preparation of short-range
submitted to the Legislature for review
functional plans by line agencies to
and comment.
guide programs such as water develop-
ment, transportation, and open space
In the preparation of the report, OPR
which relate to the protection of the
was instructed by enabling legisla-
environment; (2) evaluate departmental
tion to give "immediate and high
programs and identify conflicts and
priority" to the development of a land
recommend measures to resolve con-
use policy which was to consider
flicts; (3) assist the Department of
among other things:
Finance in program budgeting to insure
an integrated program of priority
Areas of outstanding scientific,
actions to implement functional plans
recreation, and scenic value.
and achieve statewide environmental
Areas which are required as habi-
goals; (4) coordinate the development
tat for significant fish and
of policies and criteria to ensure
wildlife resources.
that federal grants-in-aid advance
55
statewide environmental goals; (5) co-
Area-Wide Planning
ordinate research activities of state
government pertaining to growth and
The evolution of area-wide planning
development of the State and preserva-
unfortunately is a very slow process.
tion of the environment; and (6) advise
During the 1960's significant gains
the Governor and his cabinet.
were made with the formation of coun-
cils of government, voluntary associa-
It is evident from these provisions that
tions of cities and counties, which
the Legislature intended that OPR
strove, through coordination of metro-
assume a central planning role in state
politan governments, to resolve re-
government. But however sufficient the
gional problems. There currently
provision of statutory authority may
exist in California four multi-county
be, it is no quarantee that the delegated
and ten single-county councils of
responsibilities will be adequately
governments of which the Association
carried out. OPR has currently a staff
of Bay Area Governments (ABAG) and
of seven professional and three clerical
the Southern California Association
personnel, and a budget of approximate-
of Governments (SCAG) are the most
ly $180, 000, about 50 percent of which
notable examples. Not all of them,
is provided by the federal government.
however, have the broad regional per-
Most of OPR's efforts have been
spective of ABAG and SCAG. Neither
directed toward the preparation of Envi-
do all the regions in the State have a
ronmental Impact Statement guidelines,
regional planning program. Most
Phase I of the Land Use Policy, and
important, they all lack any authority
the Goals and Policy Report due the
to implement an ongoing regional
Legislature on March 1, 1972.
planning effort other than by gentle per-
suasion of local government. Should
It is proposed by the Council that OPR
a county or city hold fast to a develop-
become a part of the previously recom-
ment policy which conflicts with region-
mended comprehensive statewide
al policies and plans, the particular
environmental entity. With additional
council of government is powerless, and
funding and specific new direction the
the implementation of regional ob-
office can, however, play a strong
jectives thwarted.
interim role and begin immediately on
the important land use program recom-
It is for this reason that the Council
mended by the Council.
advocates the creation of Regional
56
Environmental Quality Boards in each
Local agencies are required to prepare
geographic region of the State as a
an EIS in connection with locally
long range goal toward the establish-
funded projects, but are only required
ment of a strong land use planning
to make a finding that the project is
and regulatory program which balances
consistent with the conservation
local needs with overall state goals
element of the city or county general
and policies.
plan, or, in the absence of such an
element, submit the report to the local
This proposal does not have to be
planning agency. In such cases, how-
viewed as a drastic change for the role
ever, no agency is obligated to rule
of local government. It simply rec-
on the adequacy of the reports or
ognizes the need for state and region-
consider their findings.
al leadership and the fact that present
approaches are inadequate. This
The Act is one of the most significant
recommendation lays out a new part-
environmental measures yet passed
nership with local government in
by the Legislature and has been an ef-
the area of land use planning and built-
fective tool in protecting the envi-
in methods to insure that local and
ronment. There are ways, however,
regional entities perform in a manner
by which the process could be
consistent with statewide criteria
strengthened. The Legislature de-
and development goals.
clared in the Act that:
Environmental Impact Statements
"It is the intent of the Legisla-
ture that all agencies of the state
The Environmental Quality Act of 1970
government which regulate
provides that all state agencies,
activities of private individuals,
boards, and commissions submit an
corporations, and public agencies
Environmental Impact Statement (EIS)
which are found to affect the
on any project they propose to carry
quality of the environment, shall
out which could have a significant
regulate such activities so that
impact on the environment, and, if
major consideration is given
responsible for allocating state or fed-
to preventing environmental
eral funds to local projects, they are
damage."
obligated to require that the responsi-
ble local agency submit an EIS as well.
Unfortunately, the mandatory aspects
57
of the law limit the EIS requirement to
decision of the responsible entity
"projects", and local agencies have
adhere to the findings of the EIS
not been inclined to interpret it in any
unless, consistent with the intent
way that would go beyond this point.
of the Act, it makes a specific
The Environmental Quality Act of 1970
finding that the benefits to the
(Section 21000 to 21151, Public Re-
public outweigh the disadvantages
sources Code) should be specifically
to the environment.
broadened in its application to cover
public and private "actions" as well as
Land Use and Population - Unresolved
"projects", to require discussion of
Environmental Issues
the population growth implications of
such actions and projects, and to
Although the State has dealt effectively
require the responsible public entity to
in individual areas of environmental
make appropriate findings.
quality, the basic underlying questions
of land use and population remain sub-
The Council recommends that the
stantially unaddressed. Hopefully the
Environmental Quality Act of 1970
preceding discussion and recommend-
be amended to: (1) specifically
ations will pave the way toward a mean-
apply to all "actions" of state and
ingful process for dealing with these
local government, including
critical environmental issues.
special districts, which would have
a significant impact on the environ-
C/ ENERGY USE
ment; (2) specifically apply to
regulatory activities as well as
those that are being carried out by
Introduction
the entity itself; (3) require that
cities and counties prepare an EIS
In an attempt to better understand the
on any change of zoning or con-
conflict between environmental quality
templated private project that will
and a highly industrialized, fast growing
have a significant impact on the
society's ever increasing demand for
environment; (4) include as one of
energy and the fuels that produce that
the elements of an EIS a detailed
energy, the Council held four hearings
statement on the population growth
devoted to some aspect of this problem.
and distribution implications of
the action; and (5) require that the
The first, on nuclear energy, was held
58
in Sacramento in January 1971. The
period of time, particularly in areas
second, on power plant siting, was
like the South Coast Basin where their
held in Santa Cruz in February 1971.
use is concentrated.
The third was on geothermal energy, in
Lakeport, in August 1971; and the final
Viewed on an international level, it
hearing, on the overall question of
appears that reserves of natural gas
energy use, was held in Los Angeles
are sufficiently limited that priorities
in December of 1971.
in utilization will have to be imposed
in the near future. It further appears
The following discussion is based on
that oil and gas may be available in
testimony from these hearings as
quantities needed for heavy utilization
well as other reports and information
for another century. Coal appears
supplied by those who were asked to
to be sufficiently plentiful for several
participate. It is an attempt to put into
centuries of heavy utilization. It is
perspective the whole question of
ironic that the most plentiful of these
energy use and to chart a course for
fuels, coal, is the greatest atmos-
needed change.
pheric pollutant, whereas the least
plentiful, natural gas, is the least
polluting.
Overall Energy Problem
For purposes of this report, energy
Energy Use and the South Coast Basin
means all the primary sources for pro-
ducing heat and motive power. Most
The total annual energy release within
of man's energy needs, including elec-
the South Coast Basin translated to a
trical energy, are dependent on fossil
common frame of reference is 557
fuels, namely: gas, oil, coal, and
billion kilowatt hours (kwh). The com-
natural gas. Fossil fuels as a primary
bustion of fossil fuels accounts for
source of energy create two major
96 percent of this amount. The remain-
problems: they are non-renewable re-
ing 4 percent is electric power im-
sources; and the combustion of these
ported from outside the basin, and
fuels causes, among other things, air
human metabolism at the rate of 3200
pollution. Also, continued increase
calories/day/person. 2*
in the use of fossil fuels could further
adversely affect climate over a
59
Of the fossil fuel consumed in the basin,
Given the enormous amount of fossil
24 percent goes to operate electric
fuels being consumed in the South Coast
generating facilities, although electri-
Basin, it is the conclusion of the En-
cal energy itself accounts for only
vironmental Quality Laboratory at the
8.5 percent of all energy produced.
California Institute of Technology
This means that of about 135 billion
that, with the best possible application
kwh of fuel burned to produce elec-
of technology and assuming that all
tricity, only 47. 8 billion kwh actually
automobile emissions standards for
becomes electricity, the remainder
1976 are met in 1975, ambient air
being lost primarily from inefficient
quality can only be improved temporar-
conversion at the plant and in trans-
ily and, unless new energy demand is
mission. Of the remaining fossil fuels,
absorbed by a non-polluting energy
30 percent is used for all forms of
source, will again proceed to
transportation, and 45 percent for
deteriorate. 3*
various industrial activities. In terms
of air quality, the 30 percent devoted
It is clear to the Council, based on
to transportation constitutes about 80
testimony received, that consumption
percent of the total tons per day of
of fossil fuels has now become so
emissions into the atmosphere.
great that our ability to reduce emis-
sion factors is being surpassed, and
that steps must be taken to substan-
tially reduce the use of fossil fuels as
an energy source in the state's most
critical air basins. The primary op-
tion to the use of fossil fuels is
electric energy supplied through the
use of alternate sources. Unfortunate-
ly, our present technology does not
2* "Energy and the Environment in
permit us to do this without confronting
Southern California, E. J. List,
other environmental problems.
Environmental Quality Laboratory,
California Institute of Technology,
Electric Energy
in Council's Energy Use hearing,
December 17, 1971.
Electric generating capability in Calif-
3* Ibid.
ornia has doubled each ten years for
60
the last thirty years and, as presently
One power plant now operating in
projected, could grow at this rate
"Four Corners" consumes 7 million
in the decades to come. This is an
tons per year of coal, 20 million
average of nearly 8 percent per
gallons per day of water, and produces
year, only one third of which can be
1-1/2 million tons per year of solid
attributed to population growth.
wastes, and at one time produced
The other two thirds is caused by
enough oxides of nitrogen to equal as
increase in per capita demand.
much as one-third of that produced
Although other forms of energy use
in Los Angeles. The consequences of
have expanded at a nearly comparable
meeting power needs in this manner
rate, electric energy consumption
are obvious.
and its impact on the environment
have been of increasing concern. And
this concern and impact is more far
Factors Contributing to Growth
reaching than many had expected.
A classic example of the relationship
Electricity consumption is generally
of electric energy demands, envi-
analyzed according to commercial,
ronmental degradation, and resources
industrial, residential, governmental,
depletion is the power complex
and other.
being developed in the "Four Corners"
area of the Southwestern United
Commercial uses accounted for about
States. Because energy production
30 percent of the total electric con-
in such places as the South Coast
sumption in 1970, statewide, but run
Basin is causing more pollution than
as high as 40 percent, for example,
the atmosphere can healthfully
in the area serviced by Pacific Gas and
handle, it has become necessary to
Electric Company. The growth in this
look outside the basin for supplies
category is due to an increase in com-
electricity. The fact that this
mercial floor space of about 6 percent
threatens to create an environmental
per year and an increase in demand
export-import problem of considerable
per square foot of 4 percent per year,
dimension was borne out in the
brought about by more lighting,
Council's December 1971 hearing by
environmental conditioning, and the
representatives of the State of New
fact that a substantial amount (40 per-
Mexico, the Black Mesa Fund, and
cent in the South Coast Basin in 1970)
the Navajo Indian Tribe.
of new floor space is all electric. 4*
61
Industrial uses account for about 30
The basis of an overall energy use
percent of total sales. Although in-
policy for the future must be conserva-
dustrial activity has been dropping off
tion. Unfortunately, electric energy
somewhat, overall growth amounts
policy to date has totally disregarded
to 7 percent annually. Part of the
this element. The national policy
growth in industrial consumption is
for many years has been to provide
caused by the same factors that affect
abundant low cost energy. We are fast
commercial use, while some is
beginning to realize that this goal
brought about by more intense manu-
must be reevaluated. Electricity can
facturing processes. 5*
no longer be treated as an unlimited
commodity, and, as with any other
Residential use has gone from 17 per-
valuable resource, its waste cannot be
cent of total sales in 1950 to 27 percent
tolerated. If we are to devote greater
in 1970. This growth is due primarily
amounts of future capacity to the
to an increase in the number of single
replacement of fossil fuels (including
individual households (this trend, how-
a portion of the 24 percent now being
ever, is levelling off) and demand in
used for electric power production
home appliances and environmental
in the South Coast Basin) and other en-
conditioning, such as central heating
vironmental efforts, we must develop
and air conditioning. Between 1961
and 1969 average sales per customer
have increased 6 percent per year --
from 3290 kwh to 5244 kwh. Since
there is clearly room for growth in the
4* "California's Projected Electrical
residential sector, it does not appear
Energy Demand and Supply," Report
likely that the 6 percent annual growth
to the Assembly General Research
rate will be significantly reduced. 6*
Committee, California Legislature;
Dr. Lester Lees, Environmental
Government (buildings, street lighting,
Quality Laboratory, California Insti-
etc.) and other uses (farming, mining,
tute of Technology, in Council's Energy
etc.) have been growing at about 8
Use hearing, December 17, 1971.
percent per year. 7*
5* Ibid.
6* Ibid.
Electric Energy Conservation
7* Ibid.
62
measures to reduce consumption for
Building Construction and Design -- -
nonessential uses and use what is avail-
There is a great deal that can be done
able in the most efficient, nonpolluting
in the area of building construction
manner. Some measures for accom-
and insulation. Recently the President
plishing this are:
directed the Department of Housing
and Urban Development to develop stan-
Pricing -- At present the per unit cost
dards with this objective in mind, to
of electricity goes down as the amount
be applied to all federally assisted
consumed goes up. The result is
housing. This effort should be expand-
that many large commercial and indus-
ed into the area of building design
trial developments treat electricity
which, as was demonstrated at the
as nearly a no-cost item. Rates should
Council's hearing on Energy Use, offers
include the environmental costs of
tremendous potential. By taking ad-
producing electricity and should be de-
vantage of sunlight, shade, and prevail-
signed to discourage waste. Certainly
ing wind, much can be accomplished.
a rate structure that facilitates the
all-night lighting of large office build-
Greater Efficiency - Every effort must
ings has to be questioned. On the
be made to get more efficiency from
other hand, any rate modifications
the energy that is expended. The ques-
should not work hardships on lower
tion of space heating has already been
income groups or counteract efforts to
mentioned as has the fact that of the
replace the use of fossil fuels.
135 billion kwh of fuel burned in the
South Coast Basin, only one third of
Advertising -- Advertising, particular-
this came "on line" in the form of elec-
ly of the "all-electric" variety, has
tricity. A simple incandescent bulb
contributed significantly to increased
that converts 90 percent of its energy
consumption. It has also led to the
to heat and only 10 percent to light
inefficient use of electricity, particu-
is another example of the problem.
larly with regard to space heating.
Efforts to get more efficiency from the
Some utilities have recognized the
production of energy, through trans-
problem and have turned away from
mission and to the point where it is
promotional advertising. This trend
converted to heat or motive power,
should be expanded, and the future
should be vastly expanded. Such efforts
thrust of utility advertising should be
should not be limited to electric energy.
toward ways to conserve energy.
There are many other processes, the
63
automobile, for example, where fossil
including imports. If this is projected
fuels are used in a very inefficient
at a 7 percent annual growth rate,
manner.
taking into account a 20 percent margin
(required for peak loading, shutdown
Balancing Supply and Demand --
for maintenance, etc.), the State will
Approximately one third of the state's
need about 55, 000 MW(e) by 1980.
electric energy-producing capability
This means about 3, 500 MW(e) in new
goes unused 95 percent of the time,
electrical generating capacity each
standing by to cover periods of peak
year by 1975, and 5, 000 MW(e) of new
demand. To the degree that this prob-
capacity by 1980. 8* Using a 5 per-
lem could be alleviated, a more
cent growth rate figure plus 20 percent,
proper balance between electric energy
the requirement will be approximately
supply and demand could be attained.
45, 000 MW(e) by 1980.
Dr. Lester Lees has suggested that
Hopefully new efforts and attitudes
peak demand periods could be "shaved"
regarding conservation of energy will
by such measures as "rolling blackouts"
prevent the 7 percent per year "self-
(reducing power in certain areas for
fulfilling prophecy" from materializing.
one hour, and then moving to another
However, it is not likely that we will
area), heat storage, charging different
reach the point in the foreseeable
rates during peak demand periods,
future where there is no longer the
and putting nonessential appliances on
need for new electric generating facil-
separate circuits.
ities, particularly if, as part of an
overall energy policy, we intend to re-
duce the use of fossil fuels. Even if
The Need for Additional Electricity
the growth rate were cut to 3.5 percent
Although the State must move aggres-
sively in the field of conservation,
it must also be prepared to handle the
expected need for future power plant
facilities in an orderly manner.
8* "California's Projected Electrical
Energy Demand and Supply, Report
In 1970 California had an electric power
to the Assembly General Research
capacity of 32, 000 megawatts (MW(e)),
Committee, California Legislature.
64
between 1970 and 1980 and to 2 percent
fuel capable of meeting future demand
between 1980 and 1990, 70, 000 MW(e)
in the time required is nuclear energy.
will be needed by the end of that
There are, however, certain environ-
period. Assuming that by 1980 the
mental issues that have been raised
very low growth figure of 2 to 3.5 per-
in connection with full-scale develop-
cent per year could be achieved,
ment of nuclear power plants which
some 2, 000 to 3, 500 MW(e) of new
have not been resolved.
electrical generating capability will
be required each year beyond that
Low-Dose Radiation -- This involves
time. 9*
the radiation that is emitted from
normal operation. Dr. Arthur Tamplin,
What is required is a strong program
Lawrence Radiation Laboratory,
of conservation combined with a
Livermore, gave testimony on this
strategy for developing all feasible,
point at the Council's January 1971
safe, and environmentally sound
hearing, asserting that a danger exists
means for replacing, to the degree
in this area and that the Atomic Energy
possible, energy produced by fossil
Commission should set more strin-
fuels, as well as new technology and
gent standards. The AEC is now in
institutional mechanisms for carry-
the process of adopting standards
ing out these objectives.
equivalent to those recommended by
Dr. Tamplin. As a result, the ques-
tion of low-dose radiation in connection
Nuclear Energy
with normal plant operation will be
reduced in significance.
The only planned alternative to fossil
Reacter Safety -- Although great pre-
cautions are taken in the construction
and operation of nuclear reactors,
there is no guarantee that an accident
will not or cannot occur; and this
9* Dr. Lester Lees, Environmental
fact continues to be a major concern
Quality Laboratory, California Insti-
in the minds of many who point to the
tute of Technology, in testimony at
possibility of an earthquake or an
hearing on Energy Use, December 17,
operating malfunction as a potential
1971.
threat to the surrounding area.
65
Hopefully this problem can be lessened
Thermal Effects -- Marine biologists
by improved technology, better quality
have raised serious objections with
control during construction, new
regard to the effects of warm water
AEC seismic standards, and location
discharges. Future plants will have to
of plants underground or in remote
be sited, designed, and operated in
areas.
a manner that will minimize these
adverse effects and, where possible,
Land Use and Plant Siting -- Because
derive some recreational, municipal,
of the tremendous water demands,
and industrial benefits from warm
the coastline is usually thought to be
water discharges.
the most economical and suitable
location for nuclear power plants.
Transportation -- Spent fuel or high-
There is concern that, if most of our
level wastes from nuclear reactors
future power needs are to be met by
must be transported to reprocessing
nuclear energy, major portions of the
plants where fuels are processed
coast will be devoted to this purpose.
for reuse and where wastes are stored.
Other issues related to land use
The high-level (highly radioactive)
and siting are the need for transmis-
wastes travel by truck or train in con-
sion lines and the amount of related
tainers that are expected to meet
industrial and commercial development
rigid testing procedures, under the
that the location of power plants
supervision of the AEC. Although
might prompt. Perhaps this particu-
transportation is tightly controlled by
lar situation can be improved by
regulation, increased activity brought
consolidating facilities and thereby
about by a growing number of nuclear
reducing the number of sites, or per-
power facilities will increase the
haps locating the plants underground
possibility of accidents.
or in more remote, somewhat in-
land sites, out of public view but near
Fuel Reprocessing -- Reprocessing
enough to the ocean to utilize this
currently takes place at three locations
source of water. Some non-ocean
throughout the country. Although
oriented sites can be justified
regulated by the AEC, these plants will
(such as Rancho Seco, 25 miles south-
not be required to meet the new guide-
west of Sacramento), but, because
lines for low-dose radiation being pro-
of water supply, they might be
posed for power generating facilities.
limited.
Some concern has been expressed that
66
radiation standards and operating pro-
Geothermal -- There are presently
cedures should be more stringent,
operational geothermal systems which
particularly since increased construc-
produce electric power by steam
tion of nuclear reactors will undoubt-
from underground heat sources. The
edly require more fuel reprocessing
only such system presently producing
facilities.
electricity in California is at The
Geysers in Sonoma County, which is
Waste Storage - - Nuclear energy advo-
being counted on to supply 106 MW(e)
cates and opponents alike recognize
per year through 1979. There are
waste storage as a problem that has
other potential sites, the most signif-
not been completely resolved. Because
icant of which lies in the Imperial
of the tremendous life span of some
Valley. However, some complex tech-
of the highly radioactive wastes, per-
nical problems are as yet not re-
manent storage and long-term steward-
solved, and it may take up to ten years
ship becomes critical. Presently all
to produce just a few thousand MW(e).
such wastes are being stored at the
Certainly geothermal resources need
three reprocessing plants, and no
much more attention, but they can
permanent type storage has been
only be viewed as part of a total
developed. This problem must be re-
approach to meeting future demand
solved if present day and fast breeder
and not, as some have suggested, a
reactors are to be developed to the
way to "buy time" for ten or twenty
degree contemplated.
years.
It is difficult to make a general state-
Near-Zero Emission Electric Energy
ment about the environmental impact of
Alternatives
geothermal development, because it
varies by location. Some areas, like
There are a number of other alterna-
The Geysers, are readily developable,
tive sources of clean electric energy
while the Imperial Valley has many
which can in varying degrees, and
problems yet to be resolved. Other
in some cases subject to a great deal
potential sites are in areas of great
more research and development,
scenic beauty and should not be used
play an important part in meeting
for this purpose.
future demands and in reducing the
use of fossil fuels.
The Use of Wastes -- Combustion of
67
liquid and solid waste material in
The Alternatives in Balance
connection with electric generating
facilities (although not "near-zero
The above alternatives, unfortunately,
emission") is one approach to
have to be considered limited as
which more attention should be given.
major sources of power at least during
However, this type of integrated
the 70's and 80's. However, in the
system will probably have more
cases of solar and geothermal energy,
value for its waste disposal capabil-
concentrated effort should be made to
ities than as a future power source.
maximize their potential in the short-
est possible time.
Solar Energy -- The energy continu-
ously radiated by the sun is
The development of nuclear fission
potentially capable of supplying all
(present day and fast breeder re-
of man's energy needs. Unfortunately,
actors) over the next 10 to 20 years,
technology is many years away from
considering other alternatives, ap-
collecting and distributing this
pears to be the most feasible step
source in any significant amount.
toward meeting the state's increased
It has been demonstrated, however,
electrical demand, which at present
that it does offer more immediate
is almost totally dependent on the
potential for new residential construc-
use of fossil fuels. What is of utmost
tion for such things as space heating,
concern to the Council is that ade-
which demand a significant amount
quate steps be taken to insure that
of energy.
this source of energy is developed in
a way that minimizes the detrimen-
Hydro Power -- The storage and use
tal effects on the environment, con-
of water for the production of elec-
serves our fuel resources, and is
tricity has played an important
safe. In particular, continued devel-
role in meeting demands in the past.
opment must be conditioned on find-
However, it does not emerge as a
ing suitable solutions to the problems
significant factor in terms of future
of radioactive waste handling, pro-
growth. Hydro power possibilities
cessing, and storage.
have largely been exhausted, and
further developments would alter the
Coupled with this, the Council urges
free flowing character of the remaining
a concerted national effort to develop
rivers and streams.
nuclear fusion (a reaction which
68
involves very little waste and is ex-
implementation. Such a policy
pected to produce electricity more
should involve: (1) specific
efficiently) as the country's major
measures for reducing the per
source of power in the long-term
capita use of energy and for using
future.
energy which is available in the
most efficient manner; (2) con-
tinuing evaluation and provision of
Overall Energy Use Strategy
legitimate energy needs; (3) de-
veloping all feasible and safe
Energy use has become one of the
means for replacing, to the degree
most critical environmental issues
possible, the use of fossil fuels
facing the State. Present attitudes and
with near-zero emission electric
public policy have led to the unre-
energy; and (4) a program for
strained use of natural resources and
massive research and development
excessive pollution. A clear cut
and new technology regarding
energy use and power plant siting
alternative sources of power, the
policy, with emphasis on conservation
siting of power plants, the trans-
of energy, the appropriate govern-
mission of electric power, and
mental mechanism for implementing
the handling, processing, and
such a policy, and a coordinated
storage of wastes.
state and federal research and develop-
ment program on all aspects of the
The Commission would also de-
problem is required.
velop a statewide power plant
siting plan, after appropriate pub-
The Council recommends that an
lic hearings, which would be
Energy Conservation and Power
subject to the approval of the State
Plant Siting Commission be
Legislature and the Environmental
established to develop, in cooper-
Quality Board, and which would
ation with the federal government,
constitute a master plan of pre-
the proposed Environmental
ferred sites and become a part of
Quality Board, and all other ap-
the California Conservation and
propriate agencies, organizations,
Development Plan. The Commis-
and individual citizens, an over-
sion would test each proposal for
all energy use and power plant
power plant development and
siting policy and measures for its
transmission line routing against
69
the approved master plan, as well
Exclusive of what the federal govern-
as various demand, environ-
ment must do in the way of research
mental, scenic, and safety stan-
and development, the state's re-
dards and criteria, and, after
sponsibilities for planning, develop-
holding public hearings, have the
ment, conservation, and research will
authority to approve or reject
require a substantial amount of
the proposal.
funding.
The Commission might also be
The Council recommends that a
given the authority to purchase
use tax (as well as an increase in
sites in advance of need and lease
the basic rates) be applied to
them back to utility companies.
the higher usage portion of the
utility rate structure to finance
the statewide energy conservation
Research and Development
and power plant siting program.
Present rate structures for
Massive new efforts in research and
electric power begin at a few
development will be required if we
cents per kilowatt-hour (kwh) and
are to meet future energy needs in an
drop to several tenths of a cent
environmentally responsible way.
per kwh as usage increases. A
tax of one mill per kwh in the
The Council recommends that the
high-use brackets could raise as
federal government be urged
much as $50-million. High
to embark on massive research
volume energy users such as
and development programs in
rapid transit agencies and those
connection with new sources of
engaged in other environmentally
energy, power plant siting, energy
beneficial activities should be
conservation, and other matters
exempt from such taxes or rate
related to energy policy
modifications.
administration.
A Parting Shot
Funding of a Statewide Energy Use and
The president of the board of directors
Power Plant Siting Program
of a large utility district recently
70
commented in response to a suggestion
that air pollution is a serious menace
from a fellow board member that the
to the health of man and constitutes
district should encourage ways to con-
a state of chronic and increasing emer-
serve energy through home insula-
gency. Little more need be said by
tion, "Our job is to sell electricity.
this Council to justify the necessity
That's what makes the cash register
for strong and imaginative measures
ring."
to control air pollution than the fact
that oxidant levels, in our more con-
Hopefully we have moved beyond this
gested areas, exceed by as much as
point and a sound statewide program
six times the air quality standards
of energy use will be forthcoming.
based on preservation of health set by
the State Air Resources Board.
D/ AIR QUALITY
Causes
Introduction
The air pollution problem in California
varies widely in terms of both char-
The condition of the air we breathe
acter and extent. In the South Coast
continues to be the number one pollu-
Basin and the San Francisco Bay Area,
tion problem in the State. It is
the major problem is photochemical
certainly the most obvious index of
air pollution, or smog, measured in
environmental degradation and the
terms of ambient oxidant concentrations.
most difficult and complex to deal with.
The primary ingredients of photo-
It inflicts widespread and costly
chemical air pollution (or photochem-
damage on plant life and buildings and
ical oxidants) are oxides of nitrogen
materials. It dims visibility and
and hydrocarbons, both of which are
obscures city skylines and scenic
principally of vehicular origin. The
beauty. It produces undesirable odors,
problem in these areas is compounded
alters climate, and may even pro-
by high atmospheric levels of carbon
duce global changes in temperature.
monoxide and particulate matter.
However, most important is its
threat to human health. Medical tes-
In many of the state's more rural areas
timony presented to the Council as
air pollution is largely the result of
well as to other public bodies indicates
particulate matter emitted directly
71
from such sources as agricultural
for coordinating and overseeing local
operations, lumber production, min-
control efforts. Local air pollution
eral processing, and, to a lesser
control districts have primary control
degree, from motor vehicles.
of emissions from nonvehicular
sources.
The problem of sulphur dioxide and
soot that is typically associated with
coal burning economies is generally
Local Districts
not present in California.
In 1947 legislation was enacted en-
The motor vehicle constitutes the
abling each county to form an air
major source of hydrocarbons (HC),
pollution control district (APCD) as
carbon monoxide (CO), and oxides of
well as permitting the districts in
nitrogen (NOX) emissions in
two or more adjacent counties to
California. In 1970 there were nearly
unify.
13 million gasoline powered vehicles
in the State using nearly 9 billion
In 1955, the State Legislature adopted
gallons of fuel annually. It is pro-
legislation creating the Bay Area
jected that there will be 14 million
Air Pollution Control District, for
such vehicles in 1975 and more than
the purpose of controlling air pollution
16 million in 1980. Approximately
on a regional basis. Six counties
one half of the total vehicle population
bordering the Bay (San Francisco,
is located in the South Coast Basin,
San Mateo, Santa Clara, Alameda,
where it is said to be the source of
Marin, and Contra Costa) became
more than 70 percent of the photo-
mandatory members. The counties
chemical "smog", and contributes as
of Napa, Sonoma, and Solano could
much as 88 percent of the total tons
join at their own option by the affirma-
of emissions per day.
tive vote of their respective boards
of supervisors. They never chose to
The responsibility for air pollution
exercise this option; so, the law was
control in California is currently
amended in 1970, making it mandatory
shared by the state and local agencies.
that Napa County and portions of
The State Air Resources Board (ARB)
Sonoma and Solano Counties become
is responsible for control of the
active parts of the District. By 1969,
emissions from motor vehicles and
twenty-six of the state's fifty-eight
72
counties were in districts, covering
enforcement have varied widely from
about 50 percent of the state's land
one district to the next. However,
area and 90 percent of its population.
the state implementation plan required
by the Federal Clean Air Amendments
Legislation in 1970 made it mandatory
of 1970 mandates uniform programs
that all counties be within an Air
for each basin.
Pollution Control District. This same
legislation required the creation of
Basin Coordinating Councils where
State Program
two or more APCD's exist within the
same basin. These councils are re-
In 1955, a state air pollution program
quired to coordinate the activities
was established within the Department
of the local districts and to develop
of Public Health (DPH). It included
plans for meeting state air quality
technical assistance to local agencies,
standards.
air quality monitoring in various
areas of the State, establishment of
Local districts must enforce certain
motor vehicle emission standards, and
minimum emission standards estab-
promulgation of ambient air quality
lished by state law. These include:
standards.
(1) a smoke limitation of Ringelmann
No. 2, or 40 percent opacity; (2)
In 1960, the Motor Vehicle Pollution
certain public nuisances; (3) in county
Control Act created the Motor Vehicle
districts, all provisions of the State
Pollution Control Board (MVPCB)
Vehicle Code dealing with the emission
and directed the board to implement
of air contaminants; and (4)
motor vehicle emission standards.
agricultural burning regulations.
This included the certification and
testing of vehicle emission control
The local districts may also adopt
systems.
rules and regulations to require the
installation of smog control devices on
1955-65 model cars provided the
Mulford-Carrell Act
need to do SO is justified and the ARB
has certified such a device.
In 1967 the Mulford-Carrell Air
Resources Act created a 14-member
Until now, standards and levels of
Air Resources Board (ARB) which
73
replaced the MVPCB and assumed
Legislation enacted in 1970 strength-
most of the air pollution related func-
ened the ARB's authority to implement
tions previously assigned to the DPH.
statewide air quality programs and
Among other things, this Act directed
to insure that adequate emission stan-
the ARB to divide the State into
dards were being set and enforcement
basins, adopt and implement air qual-
practices adhered to at the local
ity standards for each basin, adopt
level. Legislation in 1970 also directed
motor vehicle emission inventory
the ARB to administer a $9. 25-million,
sources and kinds of pollutants in each
three-year, air pollution research
basin, and monitor for air pollutants.
program; adopt test procedures appli-
The ARB was required to determine
cable to new motor vehicles manu-
the factors responsible for air pollution,
factured for sale in California (this has
to determine the effects of air pollu-
since led to the establishment of a
tion on vegetation and human and animal
100-percent assembly line testing pro-
life, and to coordinate the efforts in
gram by 1973); accredit used motor
the State, including assistance to local
vehicle pollution control devices for
agencies.
mandatory installation; establish agri-
cultural burning guidelines and review
One of the provisions empowered the
and revise local district implemen-
ARB to regulate emissions from motor
tation plans developed in accordance
vehicles statewide. This power was
with these guidelines; study a state
further delineated in the Pure Air Act
periodic inspection program for all
of 1968, which set minimum standards
motor vehicles (this has been completed
for emissions from motor vehicles
and referred by the Legislature to
beginning with 1970 models. Standards
interim study); and set emission stan-
have since been set by the Board
dards for vehicles not previously
which through 1974 are more stringent
covered.
than federal standards. Federal stan-
dards, however, are more stringent
Legislation enacted in 1971 expanded
than those of the State for 1975-76
the ARB's authority to approve and re-
models.
quire devices for used cars and to
deal more effectively with this major
uncontrolled source. Legislation was
also enacted reducing the ARB's
Additional Board Responsibilities
membership from 14 to 5 and providing
74
for more specific expertise among its
in the South Coast Basin by 140 tons,
members. 1971 legislation also
or approximately what is being produced
authorized the ARB to revoke variances
by fossil-fueled power plants in
issued by local districts.
Los Angeles County.
New Motor Vehicles
Used Cars
The most significant activities of the
The last major unregulated source of
Board have been with respect to the
vehicle air pollution is the 1955-65
control of motor vehicles. The first
used car. Emissions from these vehi-
controls were for hydrocarbons (HC)
cles are virtually uncontrolled except
from the crankcase. In 1963 approved
for crankcase devices which were
crankcase emissions control devices
required beginning in 1964 on 1955-62
were required on new automobiles reg-
model cars in fourteen counties,
istered in California. Control of HC
upon transfer of ownership.
and carbon monoxide (CO) from the
exhaust started with 1966 models. In
Prior to this time, the ARB was not
1970 the control of HC from fuel
empowered to certify a control device
systems began. The control of oxides
for 1955-65 automobiles that would
of nitrogen (NOX) from exhausts
reduce only one of the three (CO, HC,
appeared on the 1971 models.
and NOX) pollutants. To be approved,
a device had to reduce two of the
However, as HC was being controlled
three. This has inhibited development
between 1966 and 1970, NOX (major
of controls that could significantly
precursor of photochemical oxidant)
reduce the smog problem, particularly
was rising substantially. Therefore
the visible irritants produced by NOX
legislation was adopted during the 1971
emissions. Therefore, legislation was
session to require every 1966 through
enacted during the 1971 session to
1970 model vehicle to be equipped
give the ARB more freedom to decide
by 1973 with an accredited exhaust
if the benefits to be gained by one-
emission control device to reduce NOX
pollutant control devices is sufficient
to approximately pre-1966 levels.
to require installation on 1955-65
It is estimated that this will reduce
models. Pursuant to this new authority,
total daily emissions from all sources
the ARB in December of 1971 certified
75
an NOX device for 1955-65 model cars
gasoline sold in the South Coast Basin,
to be installed upon transfer of owner-
during certain time periods, and the
ship, pending approval by the ARB
volatility of gasoline sold throughout
of distribution and marketing plans of
the State. During the periods that vapor
the applicant. If the experience is
pressure is limited in the South Coast
good, all such cars will be required to
Air Basin, evaporative gasoline losses
have the device by 1975.
associated with gasoline marketing
will be reduced by more than 50 tons
per day, and losses from vehicles not
Standards, Inspections
equipped with evaporative emission
control systems are expected to be re-
With proper enforcement and testing
duced by another 50 tons per day.
provisions and with increasingly
stringent standards, an overall reduc-
tion in hydrocarbon fumes - - from
Voluntary Use of Gaseous Fuels
all cars, new and old -- of 80 percent
by the end of this decade can be
To provide an incentive for the use of
achieved. However, there remains a
low emission fuels, California has
major unresolved problem. The 100-
removed the 7-cent-per-equivalent-
percent assembly line testing of new
gallon state fuel tax on liquid petroleum
cars by 1973 will be instituted. But
and natural gas when such fuels are
not yet approved is a mandatory pro-
burned in vehicles equipped with conver-
gram for periodic inspection of
sion systems certified by the ARB.
vehicles to insure that the cars and
Also, the cost of installing an approved
devices are working properly from an
conversion system is excluded from
air quality standpoint.
the market value of the vehicle for pur-
poses of determining the vehicle's
license fee. These tax exemption pro-
Fuel Composition
visions will remain in force through
1975.
Related to the problem of automobile
pollution is fuel composition and
Programs which are not moving as well
handling. The ARB has adopted regu-
are attempts to "get the lead out" of
lations to reduce evaporation by
gasoline. Not only will such a move
limiting the degree of unsaturation of
eliminate undesirable contaminants
76
from the air but it will facilitate the
improvement can be realized by direc-
efficient operation of the more advanced
ting the vapor-laden air displaced as
smog control devices needed to meet
each tank is filled into the tank which
future standards. Although the Legis-
is filling, through the use of some
lature has been unable during the
type of vaporized gas recirculation
last two sessions to enact legislation
system. The vapors would be trans-
to curtail the use of lead, such a move
ported sequentially from the vehicle
has been taken by individual counties
tank, to the service station storage
and should continue to be pursued. The
tank, to the tank truck, and then to the
Federal Environmental Protection
bulk plant. The vapor received at
Agency is also expected to take action
the bulk plant would then be reconsti-
to limit quantities of lead in gasoline
tuted back to gasoline for subsequent
nationally. However, it must be
remarketing.
handled in such a manner as to obviate
undesirable side effects.
The foregoing scheme is presently
required by local districts in the South
Coast Air Basin for the filling of tank
Gasoline Marketing
trucks. These rules and regulations
could be extended to the service station
The emissions of HC which result
storage tanks and to the vehicle tanks.
from gasoline tank filling losses (tank
Such requirements are estimated to
trucks, service station storage tanks,
be capable of reducing emission of re-
and vehicle tanks) have been reduced
active hydrocarbons in the South
somewhat during the critical smog
Coast Air Basin by over 50 tons per
periods by the state's regulation of gas-
day.
oline volatility. Even further reduc-
tions will be realized as a result of
recent state legislation requiring the
Large-Scale Conversion to Gaseous
use of submerged filler pipes or other
Fuels
approved means for the control of
filling losses for gasoline storage tanks
The tax incentives currently available
installed subsequent to December 31,
to encourage the conversion of motor
1970, although this requirement has
vehicles to low emission gaseous
been in effect in Los Angeles County
fuels has already been mentioned.
for some time. However, further
However, it will have to be greatly
77
accelerated if the full potential of this
improvement in air quality is not
option is to be realized. Although
generally apparent except where year-
certain drawbacks to the use of such
to-year weather changes have a bearing.
fuels (having to do with costs, scarcity
While readings for certain elements
of supply, limited range of gaseous
in one location have gone down, concen-
fueled vehicles, the large space re-
tration of those same and other ele-
quirements of fuel tanks, and the
ments might be showing an increase in
drastic changes required for marketing
other areas. Even assuming that air
facilities) have been argued, they are
pollution may be on the decrease over-
not insurmountable. This is particu-
all, measures contemplated to bring
larly true in the case of fleet vehicles,
about this decrease between now and
which consume 30 percent of the
the mid-1980's will soon give way
gasoline in the South Coast Basin.
to growth, and overall emissions will
The mandating of the conversion of
begin to rise.
fleet vehicles over a certain time
period could have a significant impact,
What has been of even more sobering
and should be pursued. It is in fact
concern is the relationship between
being advocated in the State Implemen-
emissions and the basin ambient air
tation Plan. The state plan also
quality standards adopted by the Air
recommends conversion of 1970-73
Resources Board, based on health
vehicles upon transfer of ownership
preservation. The Board's Technical
and provides car owners a choice of
Advisory Committee reported in
conversion or installation of retrofit
November of 1970 that in some in-
devices for pre-1966 vehicles.
stances the standards designed to as-
sure freedom from injury to health
cannot be attained by the application of
Overriding Problem
technical methods available now or in
the foreseeable future. Yet our control
The discussion of control efforts to
effort has been devoted almost entirely
this point has centered on measures
to technical methods, even though
that have been taken with respect
ambient air standards based on health
to emissions, fuels composition, and
can, according to the same report,
testing for compliance. The over-
"be resolved only by drastic changes
riding problem is that with measures
in life patterns in the most heavily
that have been instituted to date,
populated areas.'
78
On the theory that each air basin has
Federal Law
a limited amount of air in which to
dilute its pollutant emissions, when
Prior to 1970, federal air quality stan-
this limit is reached, the Committee
dards were not a significant factor in
reported, "further production of pol-
California's battle to clean its air,
lutants must be stopped by whatever
except where waivers had to be obtained
means are available not excluding
by the State in order to move ahead
limitations of population and economic
with its own more stringent program.
growth within the State. It was for
All this changed with the enactment of
this reason that the Council's 1971 re-
the Clean Air Act of 1970, as amended.
port contained recommendations for
This Act, referred to also as the
the adoption of two concurrent resolu-
1970 Clean Air Amendments, is an
tions which the Council classified as
exacting federal statute which required
"necessary immediate action". One
every state to develop an adequate
(SCR 78, introduced by Senator
air pollution abatement plan by January
Peter Behr) would have directed the
30, 1972. The plan must provide for
Department of Public Health to conduct
the implementation, enforcement, and
a study to determine, from a health
maintenance of national ambient air
standpoint, the natural carrying capac-
quality standards as promulgated by
ity of the South Coast Basin and the
the Administrator of the Environmental
San Francisco Bay Area. The other
Protection Agency (EPA). These air
(SCR 86, introduced by Senator
quality standards must be attained
Arlen Gregorio) would have directed
within three years of the date of approv-
the Air Resources Board to conduct
al of such a plan, although the
intensive studies to determine means
Administrator of EPA may, in his
of bringing the earliest possible re-
discretion, grant an extension of up to
lief to the most critical air basins and
two years in the time allowed for
to determine what long-range con-
attainment.
tinuing measures are necessary to cope
with existing and future air pollution
Under final EPA requirements for
levels imperiling health. Neither of
preparation, adoption, and submittal
these resolutions was adopted by the
of implementation plans, states must
Legislature because of concerns
develop a far-reaching control strate-
raised by those entities responsible
gy for attaining the national primary
for carrying out the assignments.
air quality standards. "Control
79
strategy" means a combination of
endangerment to health.
measures designated to achieve the
aggregate reduction of emissions
The Act provides also that any person
necessary for attainment and mainte-
may bring a civil action against any
nance of a national standard, including,
person alleged to be in violation of an
but not limited to, land use and trans-
emission standard or limitation under
portation control measures deemed
the Act, or an order of the Adminis-
necessary.
trator or a state with respect to such a
standard or limitation. A person may
Regions such as the South Coast Basin
also bring suit against the Administra-
where existing ambient levels of
tor for failure to perform an act which
pollutants exceed the levels specified
is not discretionary, or to intervene
by applicable national standards, must
as a matter of right in an action brought
develop a plan that will bring about a
by the Administrator or a state.
real improvement in air quality. Such
a plan "
shall set forth a control
Thus the Clean Air Act of 1970 (as
strategy which shall provide for the
amended) requires prompt and effective
degree of emission reduction necessary
action to develop a viable air pollution
for attainment and maintenance of
abatement plan for the various basins
such national standard, including the
within the State. If the state and local
degree of emission reduction necessary
districts do not develop comprehensive
to offset emission increases that can
plans, the federal government is
reasonably be expected to result from
empowered to develop such plans. If
projected growth of population, in-
the Administrator does not act, pri-
dustrial activity, motor vehicle traffic,
vate citizens and groups can sue to
or other factors that may cause or
force compliance.
contribute to increased emissions. "
The Administrator, EPA, may order
State Implementation Plan
any state to enforce the plan if he finds
that the state has failed to act, and
Pursuant to the new federal Act, the
the Administrator has been given emer-
State prepared a proposed Implementa-
gency powers to restrain immediately
tion Plan for Achieving and Maintaining
any person causing or contributing to
the National Ambient Air Quality
pollution which constitutes a substantial
Standards in the State of California --
80
November 7, 1971. Included with this
-- Basin-wide implementation of the
package were implementation plans
most stringent standards for station-
for each of the state's eleven basins,
ary sources now in effect in any
on which hearings were held throughout
district in the State or proposed in
the State. Based on these hearings,
any given county as part of the basin
the ARB issued a State Implementation
implementation plans. (In effect,
Plan, Revised Control Strategy -
this means that, with only two or
January 10, 1972. This plan was sub-
three exceptions, standards now on
mitted to the EPA February 21, 1972.
the books or being proposed in Los
Angeles County will be the basin-wide
In the January 10 revised plan, the ARB
standard by a certain prescribed
indicates that the national ambient air
date. In one case a new standard
quality standards for oxidants, 08
was imposed which is not yet appli-
parts per million (ppm), can be met in
cable anywhere in the State. In an-
all of the state's air basin except the
other case, a standard now in effect
South Coast Basin by 1977. In the
in San Diego County will be imposed
South Coast Basin, a 18 ppm reading
throughout the South Coast Basin.)
can, according to the plan, be
-- The continued implementation and
achieved by 1975, a. 15 ppm reading
enforcement of all new motor vehicle
by 1977, and a 13 ppm reading by
control measures previously men-
1980. However, reaching these levels
tioned, including the meeting of the
in the South Coast Basin, as well as
stringent federal standards for 1975-
the national standards in the Bay Area
76 models and 100-percent assembly
and San Diego Basins, is based on the
line testing.
following rather ambitious control
The control of used cars in the
strategy, for which the ARB must be
manner described previously, in-
commended:
cluding retrofitting all 1955-62 cars
with crankcase devices, 1955-65
Basin-wide enforcement of all state-
cars with exhaust devices, 1966-70
wide regulations concerning station-
cars with exhaust devices for NOX,
ary sources. (These include smoke
and pre-1970 cars with evaporation
regulations, abatement of contin-
devices.
ued nuisance, and regulation of or-
The control of fuel composition as
chard heaters, open waste disposal
previously discussed, including
fires, and agricultural burning.)
the use of low lead fuel.
81
-- The control of aircraft recently pre-
Necessary Action
empted by the federal government.
- Mandatory periodic vehicle inspec-
Essential long range solutions to air
tion and maintenance.
quality depend on the comprehensive
-- Conversion to gaseous fuels in the
land use, transportation, and energy
manner previously described,
use programs and policies mentioned
designed to replace one-third of the
in other sections of the report. The
gasoline now used in the South
recommendations cited below are
Coast Basin.
necessary in order to bring relief as
- Reduction of traffic by 20 percent
soon as possible to the state's more
through increased use of public
critical air basins.
transit, car pooling, staggered
working hours, reduced work week,
and parking limitations in certain
Implementation of State Control
areas.
Strategy
Pursuant to the Federal Clean Air
Amendments of 1970, the ARB has de-
Engines Not Yet Controlled
veloped a control strategy aimed at
meeting national ambient air quality
An additional program still under
standards. The measures cited in the
development and not yet included as
control strategy are ambitious and,
part of the state's control strategy
if accomplished, will significantly im-
is the control of emissions from
prove air quality. Some, however,
engines of less than 50 cubic inch
cannot be implemented without addi-
displacement, motorcycles, power
tional legislation. The Council
and construction equipment,
endorses the proposed control strategy
recreation vehicles, and stationary
and urges the Legislature to act in
engines, which together are estimated
those areas which are necessary to
to use 10 percent of the gasoline
the plan but which are not now within
consumed statewide. The ARB is
the purview of the ARB.
presently funding a study to determine
the amount of pollution emitted
The Council recommends immedi-
by these sources and the feasibility
ate legislative action on the
of controlling them.
following measures which are
82
essential to the state's control
the use of vapor recirculation
strategy:
systems.
A program of mandatory periodic
That some form of emissions tax
vehicle inspection, maintenance,
as well as other incentives to
and repair to insure that required
operate low emission automobiles,
smog devices are in proper
use cleaner fuels, and maintain
working order.
vehicles at a low emission level be
instituted. Such a tax could be
A program to expedite the de-
administered in conjunction with
velopment of evaporative control
the proposed mandatory inspection
devices for retrofitting 1966-69
program which would be necessary
vehicles, and to require the instal-
to determine an automobile's
lation of such devices at the ear-
level of emission. Proceeds from
liest date after their approval by
the tax would go to finance rapid
the ARB.
transit and clean air research and
to assist lower income individuals
A program to phase the lead out of
to properly maintain their cars.
gasoline to "traces only" by 1977
in a manner that will not raise
That the best available means
other undesirable emissions.
be used to substantially reduce
oxides of nitrogen emissions
from fossil-fueled power
The Council recommends the
plants and large industrial
following additional measures
furnaces using natural gas. De-
which will strengthen the state's
vices are in use now which
control strategy and help speed
reduce these emissions by as
the reduction in air pollution:
much as 50 percent.
That steps be taken to control
That district hearing boards make
vapors emitted in connection with
an affirmative finding that the
the transferring of gasoline from
applicant is making the maximum
the tank truck to the service
effort to comply with air pollu-
station and from the service sta-
tion regulations before granting
tion to the automobile through
renewals of variances.
83
That increased supplies of gas and
E/ NOISE
low sulphur fuel for the state's
critical air basins be obtained and
that the proper federal authorities
Introduction
be made aware of the extreme
and critical need for such fuel in
The State Department of Public Health,
these areas.
in "A Report to the 1971 Legislature
on the Subject of Noise, Pursuant to
That the present tax incentives now
Assembly Concurrent Resolution 195,
applicable to the purchase of gas-
1970, " indicates that noise can cause
eous fuels and the installation of
hearing loss, induce physiological
conversion kits for the use of gas-
stress, interrupt sleep, interfere with
eous fuels, which expire in 1975,
speech, and generally degrade the
be extended to 1980.
quality of life. Yet, Dr. Alvin F.
Meyer, Jr., Director of the Office of
Noise Abatement and Control, Federal
Environmental Protection Agency,
A Long-Range Strategy
states:
The above measures, unfortunately,
"Noise differs from most other en-
can only be viewed as temporary
vironmental pollutants in one very
solutions in combatting air pollution.
important aspect - - the knowl-
No combination of remedies will be
edge and technology exists now to
successful that does not include a
control almost every indoor or
strong land use program for properly
outdoor noise problem. As a
guiding, and where necessary,
matter of fact, this is one instance
limiting growth; a comprehensive
where the knowledge of control
policy of energy use and conservation
techniques exceeds the knowledge
aimed at reducing our rate of fuel
about effects on human life as
and energy consumption; and a
well as the environment. "
program of balanced transportation
aimed at reducing our reliance on
Following is a discussion of past and
the automobile. It is to this
proposed necessary future legislation
long-range strategy that a total com-
relating to four particular types of
mitment must be made.
noise problems: air transport (at
84
airports and overflights); motor vehi-
program was delayed until December
cles; occupational noise; and com-
1, 1972.
munity noise.
The objective of the statute is to reduce
noise exposure at airports and make
Air Transport
surrounding development compatible
with the noise levels specified. This
With the advent of the jet age, air
statute requires airport operators,
transport noise has been added to the
under the supervision of the particular
long list of environmental woes.
county, to define, by actual monitor-
As jets have become larger and faster,
ing, noise impact boundaries which
aircraft noise has become a major
delineate the point at which the actual
nuisance and a hazard to health. The
noise level is equal to the noise level
problem is most acute and perhaps
allowed for that particular type of
paramount in those communities bor-
aircraft, for residential areas. The
dering major urban airports and
community equivalent 10* (integrated)
located under flight corridors.
noise levels are: 65 decibels (dB),
A-weighted (A) for new airports and
vacated military airports being con-
Airport and Aircraft Noise Regulations
verted to civilian use; 70 dB(A) for
existing civilian airports until
In 1969, AB 645 (Public Utilities Code,
December 31, 1985, after which it
Article 3, Chapter 4, Part 1, Divi-
sion 9) became law and directed the
State Department of Aeronautics to
adopt noise standards by which the
operation of aircraft and aircraft en-
gines at California airports could be
regulated. These regulations were
drawn up and adopted by the Department
in final form on November 28, 1970,
10* Community Noise Equivalent
and were to go into effect December 1,
Level (CNEL) -- Composite scale de-
1971; however, as provided by AB 1608
signed to account for the noise of in-
(Chapter 1734, Statutes of 1971) the
dividual flights as well as the number
effective date of portions of the
and percentage that occur at night.
85
would drop to 65 dB(A); 80 dB(A) for
the proceeds to be used for air-
commercial airports with at least
craft noise abatement and neces-
25, 000 annual air carrier operations,
sary land acquisition, preferably
dropping to 75 dB(A) on January 1,
in the area where the tax is
1976, 70 dB(A) on January 1, 1981,
collected.
and 65 dB(A) on January 1, 1986.
Airport Land Use Commissions
The Funding of Corrective Action
Land use planning, perhaps the most
It will be the responsibility of the
effective tool for controlling the impact
operators of the airport to take what-
of aircraft noise, was further enunci-
ever corrective action is necessary
ated in AB 2357 (Chapter 1085, Statutes
to diminish the noise impact on people
of 1971). This legislation provides
residing within the noise impact
that all land in the vicinity of new air-
boundary, or remove from within the
ports, and existing airports where
boundary any existing residential
incompatible uses have not already
uses, including single-family and
been established, be zoned for compat-
multi-family dwellings, trailer parks,
ible uses, based on the above men-
and schools of standard construction.
tioned noise regulations. Such action
Those uses that may be permitted
has been made the function of county-
within the noise impact boundary have
wide airport land use commissions.
been determined to be agricultural,
These commissions, consisting of
open space, industrial, commercial,
elected city and county officials, air-
and high-rise apartments meeting
port managers, and representatives of
certain standards for exterior noise.
the public at large, in effect have
Taking the necessary corrective
been given the responsibility for con-
action, particularly in the area of land
trolling land use on vacant land in the
acquisition, in some cases will be a
vicinity of airports, superseding the
very costly venture and one that should
authority of other local governmental
be borne primarily by the "skyway"
entities.
user.
The Council recommends the im-
Other Airport Development
position of an aviation fuel tax,
Considerations
86
Another significant step in the control
1971) prohibits landing and take-off
of airport development was SB 1108
within the State (except in emergency
(Chapter 1293, Statutes of 1970 --
situations) of any new private or
Public Utilities Code, Sections 21664-
commercial aircraft which produces
21666), sponsored by the Council.
noise in excess of designated federal
This legislation requires the Depart-
certification limits for subsonic jet
ment of Aeronautics to take into
transport aircraft.
account such environmental factors as
noise, air pollution, and the traffic
The State Department of Education and
burden on the surrounding area, in
the State College Trustees were di-
evaluating applications for permits for
rected by 1961 legislation (Education
new airports or vacated military
Code, Sections 15005-15005. 6) to
airports being converted to civilian
investigate all proposed acquisition of
use. Before approving such permits,
lands for school and state college use
the Department must find that the
within two miles of an airport. It
advantages to the public outweigh the
is the opinion of the Council's scien-
disadvantages to the environment.
tific Advisory Group on Noise that this
Still needing further attention, however,
distance should be increased to eight
is the question of airport expansions.
miles.
The Council recommends that
The Council recommends that the
regulations or legislation be adopt-
Department of Education and the
ed which would apply the same
State College Trustees be directed
permit requirements and proce-
to investigate all proposed ac-
dures to airport expansions as
quisition of lands for school and
now exist for the construction of
state college use within eight
new airports. Such procedures
miles in each direction along the
include provisions for holding
flight corridor of an existing or
of hearings and require that all
proposed airport, and report their
environmental considerations be
findings to the Legislature on
taken into account.
February 1, 1973.
Further steps were taken by the 1971
Legislature to curb aircraft noise.
AB 1054 (Chapter 1770, Statutes of
Motor Vehicles
87
Two major revisions of the California
-- AB 2342, Chapter 1816, requires
Vehicle Code, adopted in 1970, pro-
identification plate to be issued by
vide for the lowering of vehicle noise
Department of Motor Vehicles
level limits. The first specified noise
for all off-highway vehicles not sub-
level limits for motor vehicles under
ject to registration, with fees de-
any condition of grade, load, acceler-
rived therefrom to be divided
ation, and deceleration (Section 23130).
between the State Department of
The second made it unlawful to offer
Parks and Recreation and local
for sale a motor vehicle which pro-
governments for funding of recre-
duces noice exceeding the specified
ational areas for use of such vehi-
maximum level limits (Section 27160).
cles, and prohibits such vehicles
In 1971 the following additional mea-
from highways.
sures were enacted, designed to
- - AB 1043, Chapter 1197, requires
reduce noise emissions from this
Department of California Highway
source:
Patrol to adopt regulations setting
noise standards for pneumatic
-- AB 1044, Chapter 1444, lowers
tires.
vehicle noise limits (new vehicles)
-- AB 1003, Chapter 503, makes it
to maximum of 70 dB(A) after 1987.
illegal to operate a vehicle with ex-
-- AB 1045, Chapter 1256, and AB
haust system modified to amplify
1865, Chapter 1261, revise limits
noise.
for on-the-road vehicles; extend
test procedures to residential areas
Even with the progressive legislation
of urban cities.
cited above, there are still and will
-- AB 1046, Chapter 1769, requires
continue to be many unusually noisy
study by the Department of Califor-
vehicles on California's highways,
nia Highway Patrol and adoption
particularly heavy duty diesel trucks,
of regulations setting standards for
which could be significantly quieted
certification of vehicular exhaust
simply by installing better mufflers.
systems.
Additional effort is needed in this area
-- AB 519, Chapter 714; AB 2365,
to bring some of these noisier vehi-
Chapter 735; and SB 1012, Chapter
cles down to acceptable noise levels.
952, extend control of vehicular
exhaust systems to off-highway
vehicles.
Additional Enforcement
88
There is a great deal of noise created
thereof, such that the average A-
by passenger cars and motocycles
weighted noise level contour does
with obviously modified or defective
not exceed 60 dB(A) and maximum
exhaust systems which are in violation
levels do not exceed 70 db(A) at
of existing laws. As a general rule,
the boundary of any residential
these vehicles are easily identified
zoning.
without expensive noise measurement
devices, and increased enforcement
against such violators by local author-
Occupational Noise
ities could not help but improve the
situation.
In 1964 the U. S. Department of Labor
held public hearings on the proposed
revision of the Walsh-Healey Public
Freeways and Highways
Contracts Act. At that time an overall
limit of noise level of 85 dB(A) was
Every effort must be made to reduce
recommended. Since persons most
noise levels at the source. However,
likely to suffer hearing loss are those
the aggregate of noise produced by
subjected to extreme noise intensities
many individual sources creates a
over prolonged periods, the revised
major noise problem on our heavily
noise level limits adopted in 1970
travelled roadways. Whenever possi-
were graded in accordance with the
ble, freeways and highways should
duration of exposure to noise from 90
be isolated from residences and
dB(A) for eight hours to 115 dB(A)
schools by noise attenuation barriers,
for one-fourth hour. California has
right-of-way design, or by a distance
adopted the same limits, which are
sufficient for the lowering of the
written into the General Industrial
noise level to acceptable limits.
Safety Orders (Article 55), with a pro-
vision requiring that personal pro-
The Council recommends that
tection equipment be worn when levels
alternatives for the determination
exceed those stipulated.
of allowable residence proximity
to freeways be established. These
In reviewing these regulations, con-
should be: (1) a 500-foot buffer
sideration must be given to a number
zone; or (2) a depressed freeway
of important factors to obtain a better
or barrier, or combination
understanding of the actual
89
physiological response to noise. One
it is felt that this level is a necessary
major fact was expressed in the 1970
compromise and will have a much
report of the State Department of
better chance of passage in the 1972
Public Health to the Legislature, which
Legislative Session. It should be noted
stated that
the standards pro-
that this level (85 dB(A) for an eight-
vide only incidental and limited protec-
hour day) was originally recommended
tion for hearing frequencies above
in 1957 by the Subcommittee on Noise
2, 000 cycles per second, which is
of the Committee on Hearing, American
essential to some attributes of life
Academy of Ophthalmology and Otolar-
other than understanding speech. 11 The
yngology, in reference to the national
Department therefore recommended
occupational noise standards.
that the Legislature "set the basic cri-
terion for occupational noise exposure
at 75 dB(A), and make this level
Community Noise
mandatory for all industry by January
1, 1980. " AB 2356, to implement
In its first progress report (1970) the
this recommendation, failed passage
Council noted the problem of "com-
in the 1971 session.
munity noise" and the need for a state-
wide building code that would insure
The Council recommends that
a measure of privacy and quiet in multi-
legislation be introduced to reduce
family dwellings. Steps that have been
the values in the General Industrial
taken since have unfortunately not
Safety Orders to a maximum
obviated the need for further action at
occupational noise level of 85
the state level.
dB(A) for an eight-hour day, by
1977, using a table of increased
AB 2300 (Chapter 1436, Statutes of
noise levels for less than eight
1970) requires that all building code
hours of exposure, similar to the
changes made by California code
present Federal Occupational
authorities conform to the Uniform
Safety and Health Act of 1970 Noise
Building Code (UBC). Regrettably, the
Exposure Limit Table.
UBC is mute not only on standards
for sound and impact noise transmis-
Although the recommendation of the
sion between dwelling units in Group H
State Department of Public Health's
and I occupancies, 11* but also on
Advisory Committee on Noise is sound,
standards for interior noise levels
90
arising principally from heating, ven-
has published a Model Noise Ordi-
tilating, and air conditioning equipment.
nance for dealing with community noise.
Although the International Conference
However, judging by the number of
of Building Officials (ICBO) recently
cities that have moved in this direction,
developed such regulations, since they
it may be some time before very many
will be in the appendix and not the
people will be living in communitites
body of the UBC, their application is
covered by this type of legislation.
not mandatory. In addition, the pro-
There is also some concern that the
posed sound control regulations are
League Model, in its present form,
inadequate in that the degree of sound
will more nearly have the effect of in-
isolation is too low, and the reference
creasing rather than reducing com-
standard is based on laboratory test
munity noise. Since the Legislature has
results rather than on actual field
now scheduled the decrease of motor
performance.
vehicle noise, presently in most places
the pervading source of community
The Council recommends that the
noise, it is necessary that local juris-
Health and Safety Code be amended
dictions be required to institute meaning-
to require that all code jurisdic-
ful noise control legislation as well.
tions in California add a section on
airborne noise and impact sound
isolation in Group H and I occupan-
11* Group H - Hotels, apartments,
cies, based on a field performance
convents, and monasteries; Group I -
standard which shall be no less
Dwelling and lodging houses.
than the Federal Housing Adminis-
tration's recommended criteria,
12* Grade III in Tables 10-2 and 10-3
12* as well as a section to the
of the HUD publication, "Guide to
mechanical code setting a maximum
Airborne, Impact, and Structure Borne
noise level limit for interior noise
Noise Control in Multi-Family Dwell-
in any dwelling unit, arising from
ings", FT/TS-24, January 1968.
heating, ventilating, or air con-
13* Not to be greater than that corre-
ditioning equipment, or re-radiated
sponding to the octave band levels of
noise from fluid flowing in piping.
a preferred noise criterion curve of 31,
13*
or, for enforcement purposes, its
equivalent A-weighted sound level of
The League of California Cities
40 dB(A).
91
The Council recommends that each
to identify the types of buildings
city and county be required to
which come under the bill's juris-
enact an ordinance setting fixed
diction as "single and multi-
noise level limits, 14* establish-
family dwelling units, motels,
ing criteria for considering noise
hotels, and other residential build-
in connection with zoning changes,
ings.
"
and establishing quiet zones
within certain park areas.
Equipment, Machinery, and Appliances
Two bills were introduced during 1971
which dealt with community noise.
Legislation (SB 689) was passed during
SB 691 (Chapter 775, Statutes of 1971)
the last session, aimed at controlling
requires city and county general plans
noise from various types of equipment,
to contain noise elements associated
machinery, and appliances. Since
with transportation elements. This Act
this measure was vetoed, it remains a
will allow for better understanding
significant category of yet uncontrolled
of community noise problems at a state
noise sources.
level and could lead to improved plan-
ning of air and motor vehicle transpor-
tation systems. The second bill,
SB 692, which would have required the
adoption of rules and regulations re-
lating to minimum standards of noise
insulation of new buildings designed
or intended for human habitation, was
vetoed by the Governor on December
1, 1971.
14* Based on a community noise
The Council recommends that the
survey conducted in accordance with
basic provisions of SB 692, re-
the standards established by the
quiring the adoption of rules and
American National Standards Institute
regulations relating to noise
(ANSI). Such limits shall not exceed
insulation for buildings intended
the 50th percentile A-weighted sound
for human occupancy, be reintro-
level for each time of day in each
duced in 1972, and be changed
appropriate zone or area.
92
The Council recommends that
results are critically dependent on
noise standards be set for con-
many small details of construction.
struction equipment, office ma-
This makes the building mechanic the
chinery, and appliances con-
key man in building processes, along
sistent with technological and
with the foreman, inspector, and
economic feasibility and product
plan checker. The latter must be able
utility, and that the appropriate
to recognize adequate, or inadequate,
state agency be given the authority
design, and the others must be able to
to certify, or refuse certification
execute adequate design properly.
of, those products for sale in
the State.
The Council recommends that
sufficient funds be made available
to the University and State Colleges
Education
to establish and maintain a curric-
ulum in environmentally-related
To a large degree our environment is
acoustics and noise control engi-
shaped by architects and planners -
neering; and further, that the State
SO much so that we have established
encourage and promote the up-
"Schools of Environmental Design".
grading of skill and knowledge
Yet it is a regrettable fact that gradu-
among architects, engineers, and
ates of curricula can and do complete
the appropriate segments of the
their studies without the slightest
building trades through increasing
exposure to one course in acoustics --
professional standards and by
even at the several campuses of the
supporting on-the-job programs.
University of California.
In the quest for quiet and privacy in
One immediate step in this direction
multi-family dwellings, there is a
could be to complete the acoustical
great need to train working level
laboratory at the University of Califor-
people in the building industry in the
nia at Los Angeles and make it a
fundamentals of building noise control.
joint facility between the Department
While building code requirements are
or Physics and the School of Engineer-
necessary to establish minimum
ing and Applied Science, with the pro-
performance standards, it is unfortu-
vision for sufficient funds to properly
nate that in noise control, the
equip the laboratory.
93
The cost of noise abatement is nominal
State to bear on the problem in the
when compared to the effects noise
magnitude and to the degree that it
has on human life. Noise may adverse-
deserves.
ly affect or interfere with the normal
speech range, the physiology of hearing,
the ability to sleep comfortably, and
F/ OTHER ENVIRONMENTAL ISSUES
the psychological stability of a person
subjected to intense noise. Further-
Specific recommendations on water
more, disease other than loss of hear-
resources, solid waste, pesticides, and
ing may be linked to noise, including
assessment practices, and other un-
heart attack and duodenal ulcers.
resolved environmental issues are
pending further Council hearings and
Noise is as deadly and pervading a
study and will be the subject of in-
threat to the health of the citizens of
dividual reports to be submitted prior
this State as sulphur in the air or
to June 30, 1972.
untreated sewage in our waters. Be-
cause it is invisible, of relatively
While the Council decided that the
short, albeit continuous duration, and
question of campaign financing is not
moves swiftly across governmental
within the scope of its legislative
boundaries (indeed, with the speed of
charge, some members felt that it is
sound), noise has not received the
at the heart of many environmental
attention given other more apparent
problems and represents one of the
forms of pollution. It may, however,
most significant obstacles to the enact-
prove to be a bigger menace to the
ment of effective measures in this
environmental well-being of our citizens
field.
than any of these other forms.
We must look forward not only in the
preventive areas as set forth in this
report, but also in the area of further
research to more clearly ascertain
the effects of noise. Only when its full
impact as a health deterrent is known
will it be possible to bring the full
political and financial support of this
94
OSÒA
IV/ COUNCIL ACTIVITIES
IV COUNCIL ACTIVITIES
In its attempt to respond to the charge
hearings, numerous committee meet-
given it by the 1968 Legislature, the
ings and work and study sessions.
State Environmental Quality Study
Whenever and wherever the need was
Council has conducted a rather ambi-
demonstrated, the Council has held
tious program of meetings, public
on-site hearings on specific problems
hearings, study sessions, and com-
with statewide implications.
mittee meetings throughout the State.
Because of the limited time and staff
One of the most important efforts dur-
available, the Council has attempted to
ing the year was the active support
utilize the expertise SO generously
of legislation introduced to implement
provided by governmental agencies,
the Council's February 1971 recom-
the private sector, and citizens
mendation to create a State Environ-
organizations. All of these sources
mental Quality Board. Much time and
aided immeasurably in the Council's
energy on the part of both the Council
efforts to develop a comprehensive
members and the staff was expended in
plan to deal with the state's environ-
working with legislators and others
mental problems.
in attempting to bring about passage of
this important legislation.
The Council's 1970 and 1971 progress
reports describe in detail the activities
and actions which took place during
Council Hearings
its first two years of operation. This
section relates those activities which
Nuclear Energy The Council's first
occurred during the past year and
1971 public hearing was held in
how they have contributed to the find-
Sacramento on January 21, on nuclear
ings and recommendations of this
energy. At this hearing testimony
report.
dealt with such matters as: the federal
role in nuclear energy; California's
power requirements; alternative power
The Council's Third Year
sources; plant siting; radiation;
thermal effects; and the state's regula-
During 1971 the Council continued its
tory role. From this testimony it
studies of California's environmental
was apparent that the basic power prob-
problems, holding six regular public
lem facing California is one of supplying
hearings, two combination meetings and
the ever-increasing power demand in
95
a manner compatible with the preserva-
on April 16. Testimony was heard on
tion of the state's environment.
the impact of transportation facilities,
water conservation and development,
Coastline Management -- On February
forest management, recreational
18 the Council held a hearing at
subdivisions, and economic develop-
Santa Cruz, on coastline management
ment in this part of the State. The
and power plant siting. The purpose
Council felt that if some of the basic
of this hearing was to explore current
development problems could be re-
policies, standards, and criteria
solved now, while the area is compara-
and those that should be instituted to
tively undeveloped and sparsely popu-
guide both public and private actions
lated, perhaps many of the environ-
in these areas of regional and state-
mental consequences which have re-
wide interest.
sulted from poorly planned development
elsewhere could be avoided.
In addition to exploring the general
problems related to the California
Airport Expansion - - On April 29, the
coastline, the Council considered cri-
Council held a hearing in San Jose
teria utilized in determining the lo-
to consider the impact of the proposed
cations of such specialized facilities
expansion of the San Jose airport on
as nuclear power plants. The Council
adjacent areas. Testimony was heard
heard testimony from experts in the
from expert witnesses on land use,
fields of land use, power development,
noise abatement, and air quality; and
coastline management, geology, and
recommendations received on legisla-
seismic safety. This hearing brought
tive and administrative actions neces-
into clear focus the present problems
sary to protect, manage, and improve
associated with coastline protection
environmental quality in such a
and development and the need for a
situation.
better coastline management system
at the state and regional levels.
Following the hearing the Council
adopted Resolution 71-1, urging the
Environmental and Economic Problems
City of San Jose to curtail all planning,
of the North Coast -- Because of the
acquisition, or construction activi-
unique nature and the special problems
ties connected with the proposed ex-
of California's north coastal region,
pansion until such time as an adequate
the Council held a hearing in Eureka
environmental impact statement is
96
submitted and studies presently being
the top. It was feared that the pro-
conducted by the Association of Bay
posed routing would obliterate a road
Area Governments relative to air
of scenic value, threaten a grove of
transportation needs for the entire
unique Bishop Pine, and have other un-
San Francisco Bay Area are completed.
desirable environmental effects.
Environmental Problems of the South
Another problem brought before the
Central Coastal Area - - The Council
Council in this meeting concerned a
held its monthly meeting in Santa
proposal to mine rock phosphate in the
Barbara on July 22, devoting the
Los Padres National Forest. Oppo-
morning session to regular agenda
nents of the proposal contended that the
items, and the afternoon to discussion
massive earth-moving effort, which
with interested citizens and public
would require the mine and plant to
officials of several environmental
operate 24 hours per day, 7 days a
issues of the South Central Coastal
week, would increase runoff, result in
Area. The first was a proposed urban
erosion and silting, destroy plant
development in the Las Posas Valley,
life, and create excessive noise. They
in Ventura County, which is the
were further concerned the California
second largest producer of leaf veg-
Condor flyway would be adversely
etable specialty crops in Southern
affected; and that three existing camp-
California. Witnesses indicated that
sites, a trail, the springs, and the
the proposed development will not only
water supply would be destroyed.
take much prime agricultural land
out of production, but also the in-
Following the Santa Barbara session,
creased vehicular traffic with its re-
the Council adopted three resolutions.
sultant air pollution will seriously
Resolution 71-2 dealt with the pro-
threaten the remaining leaf vegetable
posed mining operation within the Los
crops and citrus groves in the valley.
Padres National Forest. Because
of the possible adverse environmental
The second problem concerned the en-
impact, the Council urged the De-
vironmental impact of a proposed
partment of Interior to postpone issu-
freeway near the City of Lompoc,
ance of a lease until such time as
which would require a cut at the sum-
the applicant could demonstrate a need
mit, 187 feet deep, 134 feet wide at
for production of phosphate and until
road level, and 600 to 700 feet wide at
the Department could determine the
97
magnitude of environmental costs
reports, could make a specific finding
associated with the proposed mining
that the benefit to the general public
activity.
would outweigh the apparent environ-
mental and aesthetic disadvantages.
Resolution 71-3 requested the County
of Ventura to delay the development
of prime agricultural lands in the
Geothermal Development -- On August
Las Posas Valley until: (1) all other
19, in conjunction with its regular
appropriate areas have been urbanized;
monthly meeting, the Council held a
and (2) the Ventura County Air Pollu-
hearing in Lakeport, on the environ-
tion Control District plan for achiev-
mental implications of geothermal
ing air quality has been approved. The
development proposed for Lake County.
Council also urged the State College
Testimony was heard on the types of
Board of Trustees to abandon plans
geothermal reservoirs, the geothermal
for a state college on prime agricul-
energy potential, associated environ-
tural lands in western Las Posas
mental problems, types of pollutants,
Valley.
and means of control. While geother-
mal energy is considered to be rela-
Resolution 71-4 requested the Board
tively clean, without proper controls
of Supervisors of Santa Barbara County
there can be problems of air, water,
and the State Highway Commission
and noise pollution, as well as un-
to delay any final decision on approval
pleasant odors and unsightly scars on
of the proposed Harris Grade Freeway
the landscape. Although the geother-
until: (1) the Division of High ways
mal resource is being developed by
could present an environmental impact
the private sector, the State does have
report that included quantitative data
an interest and has regulatory powers
regarding the environmental effect on
through the Division of Oil and Gas,
the Lompoc area; (2) a report on the
Department of Conservation.
effect of the freeway on the environ-
mental element of the Lompoc area by
This and other hearings have demon-
Hancock Junior College was com-
strated the need to expand the defini-
pleted and reviewed; and (3) the Board
tion of the term "project" for purposes
of Supervisors and the Highway
of environmental impact statements
Commission had carefully evaluated
under Section 21000 of the Public
the above reports and, based on said
Resources Code.
98
Sonoma-Marin Aqueduct - On October
of the state's Implementation Plan
27, the Council held a hearing in San
recently submitted to the Federal En-
Rafael on the proposed Sonoma-Marin
vironmental Protection Agency.
Aqueduct. Citizens in the area,
particularly in Marin County, had been
Energy Use -- The Council's last hear-
questioning many environmental as-
ing in 1971 was held in Los Angeles
pects of the project. Foremost seemed
on December 17, and dealt with the
to be whether the project was based
vital matter of energy use. This hear-
on a comprehensive land use plan or
ing was broadly based to cover the
rather would it predetermine thekind
subjects of electric power consumption,
of development that would occur and
what factors contribute to the present
thereby influence the final plan.
eight percent annual increase in energy
Since then, voters in Marin County
use, and what measures, such as
have voted decisively against the ex-
building design, life style, rate struc-
tension of the aqueduct into that
ture, etc., might reduce energy
County.
demand. Witnesses included experts
from the academic field, conservation
Air Quality in Riverside - The
groups, the power industry, and
Council's Air Quality Committee held
others concerned with the total energy
a study session in Riverside on Novem-
situation.
ber 9, to again consider the serious
air pollution problems in that area.
Following this hearing the Council
Testimony presented by many in atten-
adopted Resolution 71-5, requesting
dance suggested that the situation has
public officials in the South Coastal
grown worse since the committee's
Basin to adopt policies that will curtail
meeting of the year before. Following
importing power if it is to mean ex-
this session, the Air Quality Committee
porting pollution to other areas.
recommended to the Governor and to
each Mayor, City Council, and County
Board of Supervisors in the South
Proposed Remaining Activities
Coastal Basin that all motor vehicles
in the basin be converted, over the
During 1972, the Council will continue
next five years, to run on either natu-
to explore environmental issues
ral gas or propane. Such an approach
throughout the State and to search for
has since been incorporated as part
solutions. Another concerted effort
99
will be made to develop legislation to
means for generating information.
create a State Environmental Quality
Both theory and study of a 'study'
Board. The Council recognizes that
council suggest that ombudsman
governmental organization alone is not
and advocate could serve as
a panacea for all our environmental
valuable environmental watchdogs.
ills, but believes that the proper kind
More important, these institu-
of organization is essential to the
tions could help make citizens the
more comprehensive approach so badly
most effective watchdogs of all. "
needed.
15*
The Council plans hearings in 1972 on:
The Council is not funded beyond the
assessment and other tax policies
current fiscal year. It is our earnest
and practices affecting land use; water
hope that the concept of citizen par-
resources: and solid waste manage-
ticipation in the effort to better our
ment. Supplementary reports of find-
environment will not be abandoned, but
ings and recommendations will be
perpetuated in the Environmental
submitted to the Governor and the
Quality Citizens Council proposed
Legislature on these subjects.
herein.
The Council's Role
In the course of its activities, the
Council has served as both an environ-
mental ombudsman and an environ-
mental advocate. Eschewing self-
evaluation, the Council quotes James
E. Krier, Professor of Law,
University of California at Los Angeles.
"EQSC served as a catalyst, an
agent that helped interests to
15* "Environmental Watchdogs: Some
coalesce. It was a focal point, a
Lessons from a 'Study' Council,
lever, a source of advice, en-
Stanford Law Review, Volume 23,
couragement, and support, and a
No. 4, April 1971, pg 675.
100
V/ APPENDICES
****
i
APPENDIX A / SCHEDULE OF COUNCIL AND COMMITTEE ACTIVITIES, 1971
Date
Activity
Location
January 7
Twentieth Regular EQSC Meeting
Sacramento
January 21
Public Hearing -- Nuclear Energy
Sacramento
February 18
Public Hearing -- Coastline Manage-
ment; Power Plant Siting Problems
Santa Cruz
February 25
Twenty-first Regular EQSC Meeting;
San Francisco
Session with Community and
Conservation Leaders re EQSC
Legislative Proposals
March 18
Twenty-second Regular EQSC Meeting
Sacramento
April 16
Public Hearing -- Problems and
Eureka
Issues of North Coastal Region
April 29
Public Hearing -- Airport Expansion
San Jose
May 27
Twenty-third Regular EQSC Meeting
Sacramento
June 24
Twenty-fourth Regular EQSC Meeting
Sacramento
July 22
Twenty-fifth Regular EQSC Meeting;
Santa Barbara
Session re Environmental Problems
of the South Coastal Area
August 18
Tour of the Geysers, Sonoma County
Lakeport and
August 19
Twenty-sixth Regular EQSC Meeting;
vicinity
Session re Geothermal Development
September 8
Meeting, Scientific Advisory Group
Los Angeles
on Noise
September 22
Meeting, Scientific Advisory Group
Berkeley
on Noise
October 7
Twenty-seventh Regular EQSC Meeting
Sacramento
October 27
Public Hearing -- Sonoma - Marin
San Rafael
Aqueduct
November 9
Meeting, Air Quality Committee
Riverside
November 10
Meeting, Scientific Advisory Group
Los Angeles
on Noise
December 9
Twenty-eighth Regular EQSC Meeting
Sacramento
December 17
Public Hearing -- Energy Use
Los Angeles
December 28
Meeting, Water Resources Committee
Sacramento
A-1
APPENDIX B / PUBLIC HEARINGS
NUCLEAR ENERGY
Date: January 21, 1971
Place: Sacramento
Participants
Honorable James T. Ramey, Commissioner, U.S. Atomic Energy Commission
Dr. Robert Rex, Director of Geothermal Resources Project,
University of California, Riverside
Mr. David E. Pesonen, Executive Secretary, Northern California
Association to Preserve Bodega Head and Harbor
Mr. Walter L. Cavagnaro, Chief Electrical Engineer, Utilities Division,
State Public Utilities Commission
Mr. W.B. Murray, Vice President, Business Development, Atomics
International Division of North American Rockwell
Mr. B.W. Shackelford, Chief Civil Engineer, Pacific Gas and Electric Company
Dr. Charles A. Washburn, Professor of Mechanical Engineering,
Sacramento State College
Dr. Arthur F. Tamplin, Lawrence Radiation Laboratory, Livermore
Dr. Harvey Amster, Nuclear Engineering Department, University
of California, Berkeley
Mr. Alexander Grendon, Biophysicist; Consultant
Dr. Don Erman, Professor of Wildlife Fisheries, University of California,
Berkeley
Dr. Wheeler North, Marine Biologist, California Institute of Technology
Dr. Everett D. Howe, Professor Emeritus
Dr. Simon Kinsman, Chief, Bureau of Radiological Health,
State Department of Public Health
Donald E. Watson, M.D., Chairman, Clean Air Coordinating Committee
COASTLINE MANAGEMENT
Date: February 18, 1971
Place: Santa Cruz
Participants
Mr. Harold D. Bissell, Program Manager, Comprehensive Ocean Area Plan,
State Department of Navigation and Ocean Development
Dr. Charles Washburn, Professor of Mechanical Engineering,
Sacramento State College
Mrs. Celia Von der Muhll, California Coastal Alliance
Mr. Louis B. Muhly, Planning Consultant, University of California, Santa Cruz
Mr. B.W. Shackelford, Chief Civil Engineer, Pacific Gas and Electric Company
Mr. Ryland E. Kelly, President, Hare, Brewer and Kelly, Inc.
Mr. Sidney Liebes, Professor of Physics, Stanford University
Mr. Carl M. Wentworth, Jr., Research Geologist, U.S. Geological Survey
Mr. Gary Griggs, Assistant Professor of Earth Sciences, University
of California, Santa Cruz
B-1
PROBLEMS AND ISSUES OF
Date: April 16, 1971
NORTH COASTAL REGION
Place: Eureka
Participants
Honorable Gilbert S. Trood, Mayor of Eureka
Mr. Jack Civil, Director of Planning, City of Eureka
Honorable Raymond Peart, Supervisor, County of Humboldt
Mr. H.G. Larsen, District Engineer, District 1, State Division of Highways
Mr. C. Raymond Hudson, Environmental Quality Coalition, Redwood Valley
Mr. David Van de Mark, Consultant to Sierra Club, Trinidad
Mrs. Virginia Hechtman, California Coastal Alliance
Mr. Dwight O'Dell, Executive Board, Humboldt County; Eel River Water Council
Mr. John H. Grobey, Department of Economics, Humboldt State College
Mr. Michael W. Johnston, Publisher, Eureka-Times Standard
Dr. W.F. Murison, Dean of Public Services, Humboldt State College
Mr. John Yarnell, Humboldt Bay Ecological Society
Mrs. Nancy Hilfiker, President, League of Women Voters, Eureka
Mr. Glenn E. Delisle, State Department of Fish and Game
Mr. William Van Fleet, Architect, Eureka
Mr. Albert Rasmussen, Humboldt Bay Ecological Society
Mrs. Jacqueline Casson, Economist, Humboldt State College
Mr. Gary Smith, Humboldt State College
AIRPORT EXPANSION
Date: April 29, 1971
Place: San Jose
Participants
Honorable Norman Y. Mineta, Mayor-elect, City of San Jose
Mr. James Nissen, Manager, San Jose Municipal Airport
Mr. Walter Gifillan, Study Director, Bay Area Study of Aviation Requirements
Mr. Don Woodside, Manager for Economic Development, Association
of Metropolitan San Jose
Dr. Kenneth Hayes, Save Our Valley Action Committee
Mr. Carl Hand, Federal Aviation Administration
Mr. Eberhard Thiele, San Jose State College; Executive Director,
United New Conservationists
Mr. Jerome Smith, Vice Chairman, Planning Policy Committee of
Santa Clara County
Mr. Daniel Kane, Attorney at Law, San Francisco
Mr. C.E. Schmale, Assistant Superintendent of Schools, San Jose
Unified School District
Mr. Victor Calvo, Chairman, Bay Area Air Pollution Control District
Mr. Richard Dyer, State Department of Aeronautics
Captain Herbert Sherman, Airline Pilots Association
Mrs. Janet Grey Hayes, Councilman-elect, City of San Jose
Mrs. Edith Braley, League of Women Voters
Mr. Godfrey Baumgartner, United Taxpayers
Mr. Robert L. Gray
B-2
SONOMA-MARIN AQUEDUCT
Date: October 27, 1971
Place: San Rafael
Participants
Mr. Gordon Miller, Chief Engineer, Sonoma County Flood Control
and Water Conservation District
Mr. William R. Seeger, General Manager and Chief Engineer,
Marin Municipal Water District
Mr. Robert Nicholson, Assistant Planning Director, Sonoma County
Mr. Sol Silver, Acting Chief, Advance Planning, Marin County
Mr. Tom Thorner, Marin Alternative
Mr. Rex Silvernail, Chairman, Citizens Committee for Measure "B"
Mr. Harold Gregg, President, Marin Conservation League
Mr. Eugene Huggins, U.S. Army Corps of Engineers, San Francisco District
Mr. Patrick Hefferman, Marin Alternative
Honorable Skip Stewart, Coucilman, City of San Anselmo
Dr. John Lee, Marin County (Environmental Health Committee of
County Medical Society)
Mesdames Iva Warner, Helen Libeu, and Virginia Hechtman, and
Dr. Brad Lundborg, Sonoma County Coalition
Messrs. Fred Smith, William Kortum, Richard Lee, and Trent,
unscheduled participants from the audience
ENERGY USE
Date: December 17, 1971
Place: Los Angeles
Participants
Drs. Lester Lees, E.J. List, and Jerome Weingart, Environmental Quality
Laboratory, California Institute of Technology
Mr. David J. Fogarty, Vice President in Charge of Electric Systems and
Environmental Planning, Southern California Edison Company
Mr. James Hopper, Black Mesa Fund, Santa Fe, New Mexico
Mrs. Miriam Crawford, Navajo Tribe, "Four Corners" Area
Dr. Michael Williams, New Mexico State Environmental Council
Mr. Larry Moss, Southern California Representative, Sierra Club
Honorable Thomas Bradley, Councilman, City of Los Angeles
Dr. James N. Pitts, Jr., Statewide Air Research Center, University
of California, Riverside
Mr. Ralph Knowles, School of Architecture, University of Southern California
Dr. Ronald Doctor and Mr. Deane N. Morris, The Rand Corporation
Mr. William Cole, Vice President, Gas Supply Department, Pacific Lighting
Service Company
Mr. William Sells, Assistant Chief, Electrical Engineering,
Los Angeles Department of Water and Power
B-3
APPENDIX C / SPECIAL MEETINGS AND STUDY SESSIONS
EQSC LEGISLATIVE PROPOSAL
Date:
February 25, 1971
Place: San Francisco
Participants
Mr. Larry Bryan
Mrs. Ruth Church Gupta
Zero Population Growth
California Federation of
Mr. James D. Somers
Business and Professional
Stamp Out Smog, Orange County
Women's Club
Dr. Donald E. Watson, and
Mr. William Roberts
Mr. C. William Moore
Tuberculosis and Respiratory
Clean Air Coordinating
Diseases Association
Committee, Livermore
Dr. Robert Girard
Mr. Daniel Jones
Santa Clara County Committee on
Clean Air Now, Riverside
Open Space and the Environment
Mr. Wayne M. Swan
Mrs. Janet K. Adams, and
American Institute of Planners
Mr. William W. Schultz
Mrs. Grant B. Mursch
California Coastal Alliance
League of Women Voters,
Mrs. Leona Egeland
Bay Area
Environmental Task Force
Mrs. Ann Cotman
Mrs. Suzanne Kuehl
Friends of Newport Bay
American Association of
Mrs. Claire Dedrick
University Women
Peninsula Conservation Center
Mr. Roger Sperling
Mrs. Dorothy W. Erskine
University of California, Berkeley
Open Space Action
Mr. Jon Livingston
Mr. Gerald W. Gleason
Mr. Dan Rosenberg,
Planning and Conservation
Mr. Lowell Smith, and
League
Mr. John H. Zierold
Mr. Anthony Anderson
Sierra Club
Group Against Smog Pollution
Mr. Ralph McGill
(GASP)
California Refuse Removal Council
ENVIRONMENTAL PROBLEMS OF THE
Date: July 22, 1971
SOUTH CENTRAL COASTAL AREA
Place: Santa Barbara
Participants
Mr. Richard Bozung (re Las
Mrs. Patricia D. Weinberger,
Posas Valley Development)
Environmental Coalition
Mrs. Arnetta Crossman, PLUS
Mrs. Ann Van Tyne,
(re Harris Grade Freeway)
Mr. Fred Eissler, Sierra Club; and
Miss Eileen Kadesh, Ecology
Mr. Robert Easton, Santa Barbara
Action, UC, Santa Barbara
Trails Advisory Committee
(re recycling of solid waste)
(re phosphate mining in
Mr. E.D. Marshall (re proposal
Los Padres National Forest)
to build oil tanker unloading
Mr. Thomas R. Mitchell (re environ-
facility off Ormand Beach)
mental problems, Goleta airport)
C-1
ENVIRONMENTAL IMPLICATIONS OF
Date: August 19, 1971
GEOTHERMAL DEVELOPMENT
Place: Lakeport
Participants
Honorable Junior C. Wilds
Mrs. Carol White
Chairman, Lake County Board
Chairman,
of Supervisors
Lakeport County Geothermal
Mr. David N. Anderson,
Control Council
Supervisor of Geothermal
Dr. John A. Brookes, Biology
Operations, Division of Oil
Department, San Diego State
and Gas, State Department
College
of Conservation
Dr. Carel Otte
Dr. Robert W. Rex, Director,
Manager,
Geothermal Resources Project
Geothermal Division
University of California,
Union Oil Company
Riverside
Mr. Harry W. Falk, Jr.,
Dr. John T. O'Rourke,
Vice President
Engineering Geologist
Magma Power Company
AIR QUALITY COMMITTEE MEETING
Date: November 9, 1971
Place: Riverside
Participants
Mr. Donald Bauer, Clean Air
Dr. Ward Elliott, Coalition for
Now (CAN)
Clean Air
Colonel Art Krause, Assistant
Gerschen L. Schaefer, M.D.
to the Mayor, Riverside
Riverside County Medical
Mr. Arthur L. Littleworth,
Association
President, Riverside Unified
Dr. W.A. Schuck, Assistant
School District
Director, Air Pollution
Mr. James F. McCarty, Project
Research Center, University
Engineer, TRW Systems
of California, Riverside
Mr. Donald F. Zimmer, Ad Hoc
Mr. Terry Winckler,
Environmental Protection
Tuberculosis and Respiratory
Committee
Diseases Association
Mrs. Marian Carpelan, Citizens
Mr. William Spindler,
Committee on Freeways and
Comprehensive Health Planning
Transportation
Association
Mr. James Somers, Stamp Out
Mr. Lyle Gaston, San Gorgonio
Smog, Orange County
Chapter, Sierra Club
C-2
Report Design Consultant: George Louie, Designer
1 &