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HomeMy WebLinkAbout1979-05-29; City Council; 5855; San Diego Blue Ribbon Panel on Regional Planning - Issues Report on Governmental Structure May 1979CITY OF CAF.LSBAD AGENDA BILL NO. DATE: May 29 1929 DEPARTMENT: CITY MANAGER Xnitial: Dept.Hd. C. Atty.— C. Mgr. Subject: SAN DIEGO BLUE RIBBON PANEL ON REGIONAL PLANNING Issues Report on Governmental Structure, May, 1979 Statement of the Matter The Blue Ribbon Panel on Regional Planning was established by Assemblyman Lawrence Kapiloff in the Fall of 1978 to review the roles and operations of governmental agencies in San Diego County and to develop a series of recommendations for reform. In the spring of 1978, two major bills were introduced in the California Legislature that would have reorganized San Diego's areawide planning structure. The first, Senate Bill 1746 (Mills) would have transferred the duties of the Comprehensive Planning Organisation to the County. The second, Assembly Bill 3698 (Kapiloff) would have consolidated several agencies into a single organization, responsible for all areawide planning, policymaking, and implementation. Both measures were designed to reduce fragmentation and duplication in the areawide planning structure. •Exhibit San Diego Blue Ribbon Panel Report dated May, 1918 Recommendation Staff has not made an in-depth analysis of this report. Since the public hearing is scheduled for Thursday, May 31, 1979, Council should make a determination as to whether they wish someone to attend on behalf of the City and, if they feel it is appropriate, to request a continuance for further review by the cities with the possibility of developing a unified response. Council Action 5-29-79 Council appointed Councilman Skotnicki their official representative at the public hearing on May 31, 1979 to report back to Council. See Minutes. SAN DIEGO BLUE RIBBON PANEL ON REGIONAL PLANNING ISSUES REPORT ON,64RNMENTAL STRUCTURE f� MAY, 1979 PANEL EXECUTIVE COMMITTEE HERVEY SWEETWOOD, CHAIRPERSON DR. ANTHONY CORSO PATRICK CROWLEY BUD PORTER DANA QUITTNER MARYANN ZOUNES PANEL STAFF COREY BROWN INTERNS KASEY CHRISTENSON RICHARD LEBERT DAN NORE JAN ZAMOJC SAN DIEGU ME RIBBON PANEL ON REGIG,..,L PLANNING COMMITTEE Ai .REGIONAL GOALS AND PLANS CHAIRPERSON; Patrick Crowley* American Institute of Architects American Planning Association i MEMBERS; Honorable Wadie Deddeh Member, California State Assembly Shari Lawson Public Member Dr. Don Leiffer 3 for Senator Jim Mills Dr. I. Lynn Rinehart Coalition of Coalitions Helen Smith for Assemblyman Jim Ellis CHAIRPERSON: Dana Quittner * { San Diego County League of Women Voters t MEMBERS; i Honorable George Bailey j Vice -Mayor, City of La Mesa Vice -Chairperson, Comprehensive Planning Organization James Estrada Public Member ' F Dr. John Hobbs Professor of Political Science t San Diego State University Honorable'Lucille Moore Member, San Diego County Board of Supervisors Honorable Pete Wilson Mayor, City of San Diego COMMITTEE C: CITIZEN PARTICIPATION, INTERGOVERNMENTAL RELATIONS AND TRANSPORTATION CO -CHAIRPERSONS: Bud Porter* San Diego Board of Realtors Maryann Zounes* Public Member MEMBERS: Honorable William Craven Member, California State Senate Thomas Paden California Manufactured Housing Association Skip Schmidt President, Madison -Marcus Gary Weber City of San Diego Community Planners Committee Honorable Bob Wilson Member, California State Senate COMMITTEE D: IMPLEMENTATION CHAIRPERSON: Dr. Anthony Corso* Professor of Public Administration and Urban studies, San Diego State University MEMBERS: Robert Cozens Construction Industry Federation Nancy Flick Sierra Club Honorable Robert Frazee Member, California State Assembly John McEvoy Public Member R.R. Richardson San Diego -Imperial Counties Labor Council Honorable Hervey Sweetwood* Mayor, City of Del Mar Chairperson, San Diego Blue Ribbon Panel on Regional Planning * Designates Member of the Executive Committee TABLE OF CONTENTS SUBJECT PAGE INTRODUCTION 5 PART ONE: THE COUNCIL OF GOVERNMENTS A. Membership 7 Issue # 1 B. Retention of the Weighted Voting System 8 Issue # 2 C. Responsibilities 8 Issues # 3-19 PART TWO: THE IMPLEMENTATION STRUCTURE A. Reconciliation of Plans and Activities 17 Issues # 20-25 B. Transportation 20 Issues # 26-28 C. San Diego Unified Port District 22 Issues # 29-32 D. Regional Regulatory Agencies 23 Issue # 33 E. Planning and Decision Making 23 Issue # 34 F. The Permit Process 24 Issues # 35-37 G. Environmental Impact Reports 25 Issue # 38 H. Project Bonuses 26 Issue # 39 PART THREE: CITIZEN PARTICIPATION PROCESS 27 Issues # 40-45 PART FOUR: GOVERNMENT REVIEW PROCESS 30 Issues # 46 SAN DIEGO BLUE RIBBON PANEL ON REGIONAL PLANNING NOTICE OF PUBLIC HEARING TO REVIEW THE ISSUES REPORT ON GOVERNMENTAL STRUCTURE THURSDAY, MAY 31, 1979, 5:00 PM COUNTY ADMINISTRATION CENTER, Room 302 3 IF YOU WOULD LIKE TO HAVE A POSITION RESERVED FOR i YOU ON,THE PUBLIC HEARING AGENDA, OR IF YOU HAVE ANY -QUES- TIONS, PLEASE CONTACT COREY BROWN IN ASSEMBLYMAN KAPILOFFIS DISTRICT OFFICE (714 - 270-5500). ►LEA{[ Rt►W TO, SACRAM[NTO AODAC.{ O STATZ CAPITOL USSR ..!.rice 01{}RIOT OIIIC[ O SS7 NORNELENO tAN DIE00. CALIFORNIA 02100 ITEP 27N J. sTlPHEN PEACE PEA Y (faltf x t � t � xE V� T AOMINI{TRATIVE ASSISTANT LAWRENCE KAPILOFF ASUMSLYA.AN. SEVENtY•t10HTH DIST111CT CHAIRMAN ASSEMBLY COMMITTEE ON WATER, PARKS, AND WILDLIFE INTRODUCTION {TANDINO COMMITTEES, R96OURC18. LANO USE. AND ENERGY REVENUE AND TAXATION The San Diego Blue Ribbon Panel on Regional Planning was established by Assemblyman Lawrence Kapiloff in the Fall of 1978. The panel was appointed to review £he roles and operations of sub -area and areawide governmental agencies in San Diego County and to develop a series of recommendations for reform. In selecting the panel, every effort was made to ensure that the membership contained a balance of viewpoints and represented a diverse cross-section of philosophies and interesta within the county. The establishment of the Blue Ribbon Panel followed sig- nificant legislative attention that focused on areawide plan- ning, transportation and resources management in San Diego County. In the Spring of 1978, two major bills were intro- duced in the California Legislature that would have greatly reorganized San Diego's areawide planning structure. Senate Bill 1746 by Senator Jim Mills would have trans- ferred the duties of the Comprehensive Planning Organization to the County of San Diego. This bill would also have estab- lished a municipal advisory council comprised of one represen- tative from each city within the region. The second measure; Assembly Bill 3698, was introduced by Assemblyman Lawrence Kapiloff. This legislation would have consolidated several agencies into a single organization that would be responsible for all areawide planning, policy - making and implementation. This measure would also have stream- lined the permit process and developed a more effective citizen participation process. .4w 13 Both measures were designed to reduce fragmentation and duplication in the areawide planning structure and provide a better handle on growth. Following passage from their res- pective houses of origin, these measures were sent to interim hearings by their authors to solicit additional local input. During the Fall of 1978, Assemblyman Kapiloff's Assembly Subcommittee on Land Use conducted extensive hearings in San Diego on the subject of areawide planning. Following these hearings, the twenty-eight member San Diego Blue Ribbon Panel on Regional Planning was established. After several months of deliberations, the Blue Ribbon Panel has identified the forty-six issues contained in this report as potential areas for reform. Effectiveness and ef- ficiency were cornerstones in the discussions in which these issues were identified. Each of these issues originated in at least one of the panel's subcommittees and are now being submitted to the public for review and comment. These issues, however, do not neces- sarily reflect a consensus of views among panel members and are being submitted for public review before the adoption of the panel's final series of recommendations. hearing has been scheduled for (1600 Pacific Hi nwa , San Diego). Tne panel requests tnat individuals and organizations review these issues and advise the panel membership of their concerns by testifying at this hearing. The panel also encourages the public to submit written comments before or at the hearing. Comments submitted prior to the hearing should be sent to: San Diego Blue Ribbon Panel on Regional Planning c/o Assemblyman. Lawrence Kapiloff 967 Hornblend Avenue San Diego, California 92109 if you would like to have a position reserved for you on the public hearing agenda, or if you have any questions, please contact Corey Brown in Assemblyman Kapiloff's District office (714/270-5500). we look forward to seeing you on May 31, 1979. Sincerely, st-T Hervey Sweetwood Chairperson PART ONE : THE COUNCIL OF GOVERNMENTS A. MEMBERSHIP ISSUE # I : THE GOVERNING BODY OF THE.' COUNCIL OF GOVERNMENTS SHOULD BE COMPRISED OF THE FOLLOWING REPRESENTATIVES: A. ONE MEMBER OF THE SAN DIEGO COUNTY BOARD OF SUPERVISORS; B. ONE MEMBER OF EACH CITY COUNCIL WITHIN THE REGION; Co ONE MEMBER OF THE SAN DIEGO PORT DISTRI9T BOARD OF COMMISSIONERS SERVING IN AN EX-OFFICIO NONVOTING) CAPACITY; D. ONE MEMBER REPRESENTING THE SCHOOL DISTRICTS WITHIN THE REGION AND SERVING IN AN EX-OFFICIO (NON -VOTING) CAPACITY; E. TWO OR MORE MEMBERS REPRESENTING THE SPECIAL DISTRICTS WITHIN THE REGION AND SERVING IN AN EX-OFFICIO NON- VOTING) CAPACITY; F. ONE MEMBER REPRESENTING TyE STATE OF CALIFORNIA AND SERVING IN AN EX-OFFICIO (NON -VOTING) CAPACITY; AND G. THE MAYOR OF TIJUANA, B. CFA SERVING AS AN HONORARY (NON -VOTING) MEMBER, RATIONALE: 1. The principal responsibility of the council of.gov- ernments is to ensure better coordination between local general purpose governments. This responsi- bility is carried out more effectively when each local general purpose government is represented on the governing body of the council of governments. 2. There is a need to impraoe communication and coor- dination between local general purpose governments and the San Diego Unified Port District, school districts ai:d special districts. Expanding the' ivembership of the council of governments would facilitate the improvement of communications among these agencies. 3. The San Diego Unified Port District plays an impor- tant role in the growth and development of the region. Effective regional planning must take into consider- 7 ation the needs and responsibilities of the Port District and the impacts the Port District has throughout the: region. 4. Special districts and school districts play a very important role in the growth and management of the region. national planning, therefore, should con- sider the educational and service needs of the re- gion's residents. B. RETENTION OF THE WEIGHTED VOTING SYSTEM ISSUE t Z : IF A NEW COUNCIL OF GOVERNMENTS IS ESTABLISHED, THE AGENCY SHOULD USE A WEIGHTED VOTING PROCESS SIMILAR TO THE ONE PRESENTLY USED BY THE COMPREHENSIVE PLANNING ORGANIZATION, RATIONALE: 1. CPO's weighted voting system provides an equitable means of representation for each local general pur- pose government. 2. This process has prover_ to be very workable and has been supported by each of the member agencies. C. RESPONSIBILITIES ISSUE # 3 : IF A NEW COUNCIL OF GOVERNMENTS IS ESTABLISHED, THE NEW AGENCY SHOULD ASSUME ALL OF THE RESPONSIBILITIES AND AUTHORITIES PRESENTLY VESTED IN THE COMPREHENSIVE PLANNING ORGANIZATION. RATIONALE: 1. CPO's currsnt :responsibilities are necessary func- tions which should be carried out are, the council of aovernments. ISSUE # 4 : THE COUNCIL OF GOVERNMENTS SHOULD ASSUME ALL OF 8 Iff THE RESPONSIBILITIES AND AUTHORITIES OF THE LOCAL AGENCY FOR- MATION COMMISSION (LAFCO), A COMMITTEE SHOULD BE ESTABLISHED WITHIN THE COUNCIL OF GOVERNMENTS STRUCTURE TO CARRY OUT THIS RESPONSIBILITY, THE MEMBERSHIP OF THIS COMMITTEE SHOULD REFLECT THE CURRENT BALANCE OF THE MEMBERSHIP OF THE LAFCO, THIS COM- MITTEE SHOULD MAKE THE REGULATORY DECISIONS SUBJECT TO APPEAL TO THE COUNCIL OF GOVERNMENTS, THRESHOLDS SHOULD BE ESTABLISHED TO GOVERN THE TYPE OF DECISIONS WHICH COULD BE APPEALED, THE REPRESENTATIVES OF THE SPECIAL DISTRICTS SHOULD HAVE FULL VOTING PRIVILEDGES ON THIS COMMITTEE, r RATIONALE: 1. T-Tiis consolidation will provide economies which I result from increased staff coordination, reduction in overlapping functions and reduced overhead. 2. Consolidation of the COG and LAFCo functions will improve growth management programs by insuring con- sistency and coordination of various activities in- cluding the regional growth forecasts and spheres of influence studies. N ISSUE # S : THE COUNCIL OF GOVERNMENTS SHOULD BE ABLE TO ASSURE THAT LOCAL AND SUB -REGIONAL AGENCIES COMPLY WITH THE FOLLOWING ELEMENTS OF THE REGIONAL PLAN: A, WATER QUALITY B. AIR QUALITY C. TRANSPORTATION D. OPEN SPACE E. HOUSING WHERE APPROPRIATE, THE PLAN ELEMENTS SHOULD BE A COMPILATION 01 OF THE PLANS OF THE LOCAL GENERAL PURPOSE GOVERNMENTS AND SUB -REGIONAL AGENCIES, THE COUNCIL OF GOVERNMENTS` RESPON- SIBILITY SHOULD SUPPLEMENT AND NEITHER DUPLICATE NOR REPLACE THE RESPONSIBILITIES OF THE REGIONAL WATER QUALITY CONTROL BOARDS, THE STATE WATER RESOURCES CONTROL BOARD, THE SAN DIEGO COUNTY AIR POLLUTION CONTROL DISTRICT AND THE STATE DEPARTMENT OF TRANSPORTATION RATIONALE: 1. These issues transcend the boundaries of local gen- eral purpose governments. Therefore, it is neces- sary for the council of governments to work with these agencies in the development and implementa- tion of areawide strategies in these functional areas. 2. The decisions of local governments and sub -regional agencies have important impacts on open space, air and water quality systems. To ensure the proper management of these valuable resources, each rele- vant local and sub -regional agency should have the responsibility to assist in the implementation of i the areawide strategies. 3. An effective regional circulation system will only be achieved if each agency carries out its fair share of responsibility in the provision of regional transportation facilities. 4. Implementation is necessary to ensure the provision of an adequate supply of housing including low and moderate income units. Each city and the county should be required to adopt housing goals and develop programs tailored to meet the needs of their community. Local general purpose governments should be expected to make a good faith effort to provide their fair share of needed housing. ISSUE # 6 : THE COUNCIL OF GOVERNMENTS SHOULD PREPARE A COMPREHENSIVE ENERGY ELEMENT FOR THE REGION, THE COUNCIL OF GOVERNMENTS SHOULD BE ABLE TO ASSURE COMPLIANCE WITH THE COMPREHENSIVE ENERGY ELEMENT 10 V RATIONALE: 1. Energy is an essential resource for present and future residents of the region. Energy, therefore, is a necessary consideration in the comprehensive planning process. 2. The use, conservation and development of energy will have significant impacts on other important resources within the region. ISSUE # % : THE COUNCIL OF GOVERNMENTS SHOULD BE ABLE TO ASSURE COMPLIANCE WITH THE REGIONAL DEVELOPMENT POLICY ELEMENT OF THE REGIONAL PLAN. RATIONALE: 1.TTie formulation of policies for the development of the region is a fundamental responsibility of the council of governments. Compliance is necessary to ensure that patterns of urbanization reflect the approved urban policies. ISSUE # 8 : THE COUNCIL OF GOVERNMENTS SHOULD PREPARE AN ECONOMIC ELEMENT FOR THE REGION. THE PURPOSE OF THIS ELEMENT WOULD BE TO ENSURE BETTER COORDINATION AND CONSISTENCY BETWEEN THE ECONOMIC DEVELOPMENT PROGRAMS OF DIFFERENT LEVELS OF GOV- ERNMENT RATIONALE: 1. There is a need to ensure better coordination and consistency between the economic development pro- grams of various agencies including the Economic Development Corporation, the Southwest Border Regional Commission and local general purpose governments. 2. An economic element would provide the public and pri- vate sectors with a common data base that identifies desirable locations for industrial and commercial development, discusses future service needs and reviews the adequacy of other economically related programs. 11 ISSUE # 9 : THE COUNCIL OF GOVERNMENTS SHOULD PREPARE A REGIONAL POPULATION HOLDING CAPACITY ELEMENT. RATIONALE: 1. This element would provide data on the optimal and maximum population for the region. This data would be valuable for understanding t'..e potential impacts of given populations on the natural and social en- vironments and on the ability of the private and public sectors to provide necessary services. ISSUE # 10 : THE COUNCIL OF GOVERNMENTS SHOULD HAVE THE RESPONSIBILITY TO REVIEW AND APPROVE THE COUNTY SOLID -WASTE MANAGEMENT PLAN. THIS APPROVAL PROCESS SHOULD REPLACE THE PROCEDURES ESTABLISHED PURSUANT TO SECTION 66780 OF THE CALIFORNIA GOVERNMENT CODE FOR SAN DIEGO COUNTY, RATIONALE: 1. Solid -waste is a county -wide issue that should be considered in the comprehensive planning process. COG review of these plans will ensure that solid - waste elements are consistent with other regional comprehensive plan elements. 2. The council of governments would provide a more standardized, efficient and equitable mechanism for the review and approval of the county solid - waste management plan and plan amendments. ISSUE # 11 : THE COUNCIL OF 40VERNMENTS SHOULD HAVE THE RESPONSIBILITY TO DETERMINE THE LOCATION OF THE AIRPORT, RATIONALE: 1. Port District reports have predicted that Lind- bergh Field will be beyond its operating capacity by 1992. There is a definite need to begin plan- ning alternative airport locations. 2. The movement of the airport will have tremendous regional impacts. The council of governments will provide a forum that is responsible to each of the affected local general purpose governments. 12 ISSUE # 12 : THE COUNCIL OF GOVERNMENTS SHOULD DEVELOP CREATIVE APPROACHES TO ESTABLISH CLOSER TIES WITH MEXICOs RATIONALE: 1. The importance of San Diego's proximity to the border will greatly increase during the next several years. The council of governments should examine methods to improve ties with Mexico that are beneficial to both regions, 2. The growth of the San Diego and Northwestern Mexi- can regions will continue to greatly affect each other. The council of governments should consider the impacts and interrelationships of these regions in the comprehensive planning process. ISSUE # 13 : THE COUNCIL OF GOVERNMENTS SHOULD PERIODICALLY PREPARE A REPORT DISCUSSING THE IMPACTS OF REGIONAL CHANGES] INCLUDING GROWTH, ON THE VARIOUS SOCIO-ECONOMIC GROUPS WITHIN THE REGION, RATIONALE: 1'An equitable planning process should consider the impacts from changes in the region on various socio- economic groups. This report will provide valuable information to policymakers and to the public regard- ing policy impacts on different constituent groups. ISSUE # 14 : CONFLICTS BETWEEN GOVERNMENTAL AGENCIES SHOULD BE RESOLVED AMONG THE AFFECTED AGENCIES, IN MATTERS AFFECTING MORE THAN ONE LOCAL GOVERNMENT, THE COUNCIL OF GOVERNMENTS SHOULD HAVE THE AUTHORITY TO HEAR AND RESOLVE APPEALS IF THE CONFLICTS ARE NOT RESOLVED TO THE SATISFACTION OF EACH AFFECTED AGENCY, THE REGIONAL PLAN SHOULD SERVE AS THE GUIDELINE FOR THE RESOLUTION OF CONFLICTS, i 13 ± RATIONALE: Agencies should work together to solve problems and meet the needs of their constituents. Con- flicts create inefficiencies and should be resolved to ensure that agencies do not work at cross-pur- poses. 2. Conflicts between local governments can arise when one agency's actions adversely affect other agencies. Although it is desirable for the affected agencies to work out their differences, an appeals process is necessary when equitable agreements are not reached. This will help ensure that one agency does not uni- laterally place burdens on other agencies. ISSUE # 15 : THE COUNCIL OF GOVERNMENTS SHOULD BE ABLE TO INITIATE GOVERNMENTAL REORGANIZATIONS, RATIONALE: 1. The historic development of governmental entities in the region has provided an abundance of special districts. Unfortunately, this process has not en- sured that government is organized in a manner ,which provides for the maximization of efficiency in the delivery of services. 2. To ensure that efficiency is one of the cornerstones in the evolution of our governmental structure, the council of governments should have the authority to initiate reorganizations. ISSUE # 16 : WHERE SUB -REGIONAL AND LOCAL AGENCIES ARE IN NON- CONFORMANCE WITH THE REGIONAL PLAN, THE COUNCIL OF GOVERNMENTS SHOULD HAVE THE AUTHORITY TO: A. REVIEW APPEALS OF DECISIONS MADE BY THE AGENCIES; B, WITHHOLD FUNDS FROM THE AGENCIES, UNTIL CONFORMANCE WITH THE REGIONAL PLAN; AND C. ENJOIN THE IMPLEMENTATION OF PROJECTS WHICH ARE IN- CONSISTENT WITH THE REGIONAL PLAN. RATIONALE: 1. If the regional planning process is to improve co- ordination among governmental agencies, reduce 14 unnecessary costs and duplication of activities, and provide an effective mechanism for meeting regional and local needs, then each governmental agency must work to implement the plan. Actions which are not consistent with the regional plan should not be permitted. 2. The appeals process is a workable means of oversight to ensure compliance with the regional plan. 3. Withholding funds is an approach which has often been used by state and federal agencies. Exper- ience has shown this to be a workable implementation technique. Furthermore, funds should not be spent for projects that are inconsistent with the regional plan. 4. To ensure implementation, the council of governments should be able to prevent the initiation and contin- uation of projects which are not consistent with the regional plan. ISSUE # 11 : THE COUNCIL OF GOVERNMENTS SHOULD ESTABLISH A REPOSITORY FOR APPROPRIATE DATA WHICH IS NECESSARY FOR PLANNING ACTIVITIES OF BOTH THE PUBLIC AND PRIVATE SECTORS. THIS INFOR- MATION SHOULD BE COLLATED AND CATEGORIZED IN A MANNER WHICH ALLOWS FOR EFFICIENT RETRIEVAL AND DISSEMINATION. THIS DATA COLLECTING FUNCTION, INCLUDING THE PREPARATION OF A MASTER ENVIRONMENTAL ASSESSMENT, SHOULD SERVE TO SIMPLIPY AND MAKE MORE EFFECTIVE THE CURRENT PROCESSES REQUIRED BY STATE AND FEDERAL LAW FOR PRIVATE AND PUBLIC PROJECTS, RATIONALE: 1. CPO is developing computerized data systems on a variety of planning information. The expansion and formalization of this service will have signi- ficant benefits for government and the private sector, if made available to the latter. 2. costly storing of planning data by local and sub - regional agencies could be reduced if the data was kept by one central agency. This would also make the planning data more readily available. 1s E 3. The environmental impact reporting process consti- tutes a considerable burden on public agencies and the private sector in terms of time and cost. While many in government and the private sector call for coordinating and streamlining information gathering processes and standardizing data, this has not been effectively accomplished. Because of its need for similar data, the council of governments is the logical agency to assume this responsibility. ISSUE # 18 : THE COUNCIL OF GOVERNMENTS SHOULD BE ABLE TO ALLOCATE AMONG ITS MEMBER JURISDICTIONS RESOURCES, SUCH AS FUNDS FROM THE STATE AND FEDERAL GOVERNMENTS, IN CARRYING OUT PLANNING RESPONSIBILITIES IN CONNECTION WITH GOVERNMENTAL PRO- GRAMS INCLUDING, AIR AND WATER QUALITY, PUBLIC TRANSPORTATION, AIRPORT LAND USE AND POPULATION FORECASTING, RATIONALE: 1. The council of governments is an equitable forum for the distribution of regional resources including state and federal funds. 2. Regional needs will be most effectively and equit- ably met if each community accepts its fair share of the responsibility to provide needed services and opportunities. ISSUE # 1-9 : THE COUNCIL OF GOVERNMENTS SHOULD BE ABLE TO PLACE REGIONAL REFERENDUMS ON THE BALLOT, THE COUNCIL OF GOVERNMENTS SHOULD REIMBURSE THE COUNTY OF SAN DIEGO FOR THE COSTS OF THESE REFERENDUMS, RATIONALE: 1. Matters of major public concern may be more appro- priately resolved by a vote of the public. 16 PART TWO: THE IMPLEMENTATION STRUCTURE A. RECONCILIATION OF PLANS AND ACTIVITIES ISSUE # 20 : THE SAN DIEGO UNIFIED PORT DISTRICT SHOULD BE REQUIRED TO CONFORM ITS PLANS AND ACTIVITIES TO THE REGIONAL PLAN ADOPTED BY THE COUNCIL OF GOVERNMENTS, RATIONALE: The San Diego Unified Port District plays a signi- ficant role in the region. Because Port District activities (eg. capital improvement projects and the future of the airport) have serious regional impacts, they should be in conformance with and included in the comprehensive regional plan. 2. Port District capital improvement programs should be included in the regional capital improvement program whether or not they receive federal or state funding. ISSUE # 21 : SPECIAL DISTRICTS SHOULD BE REQUIRED TO CONFORM THEIR PLANS AND ACTIVITIES TO THE REGIONAL PLAN ADOPTED BY THE COUNCIL OF GOVERNMENTS, PROPOSALS BY SPECIAL DISTRICTS TO ADD NEW CAPITAL FACILITIES OR TO MODIFY EXISTING CAPITAL FACILITIES SHOULD BE REQUIRED TO BE CONSISTENT WITH THE GENERAL PLAN(S) OF THE RELEVANT LOCAL GENERAL PURPOSE GOVERNMENT(S), RATIONALE: 1. The proper growth and management of the region is dependent upon the provision of essential services and facilities. To provide sufficient coordination among service providers and to reduce unnecessary expenditures for duplicative capital facilities, the plans of special districts should conform to regional service and capital improvement programs. 2. Local general purpose governments have the principal responsibility of approving and managing growth 17 within their areas of jurisdiction. Because spe- cial districts play an important role in providing services and have sizeable affects on the direction of growth, their activities should be closely tied to needs as defined in local general plans. 3. Activities that are inconsistent with the management programs of local general purpose governments should not be permitted. ISSUE # 22 : SCHOOL DISTRICTS SHOULD BE REQUIRED TO CONFORM THEIR PLANS AND ACTIVITIES TO THE REGIONAL PLAN ADOPTED BY THE COUNCIL OF GOVERNMENTS. THE CAPITAL FACILITIES PROGRAMS OF SCHOOL DISTRICTS SHOULD BE REQUIRED TO CONFORM TO ,AE GENERAL PLAN(S) OF THE RELEVANT LOCAL GENERAL PURPOSE GOVEK �.NT(S), RATIONALE: 1. The provision of educational facilities is an essen- tial element in the proper growth and management of the region. Planning for educational facilities should be part of the comprehensive planning process. 2. Because educational programs are dependent upon and impart other essential services, the de' �lopment of educational facilities must be close.Ly tied to the development of other facilities. Conformance to the regional plan will help ensure additional inter. -agency coordination. 3. Educational facilities have tremendous impacts on the communities in which they are located. Because they can promote or deter growth in certain areas, they should be in conformance with the general plans of local general purpose governments. ISSUE # 23 : LOCAL GENERAL PURPOSE GOVERNMENTS SHOULD BE REQUIRED TO ENSURE THAT THEIR PLANS ARE CONSISTENT WITH THE REGIONAL PLAN ADOPTED BY THE COUNCIL OF GOVERNMENTS, RATIONALE: —`1. Regional plans wii'a not be effective unless local general purpose governments work to implement them. 2. The activities of a city (or the county) may have important impacts on neighboring jurisdictions. Regional planning provides a means to ensure the consideration of regional impacts in local decisions. 3. Consistency among plans will help ensure that local governments are working for common purposes. Plan consistency will alto provide a workable means to improve coordination of projects and policies among neighboring jurisdictions. ISSUE # 24 : SUB -REGIONAL TRANSIT AGENCIES SHOULD BE REQUIRED TO CONFORM THEIR OPERATIONAL PLANS AND ALL OF THEIR ACTIVITIES TO THE REGIONAL PLAN ADOPTED BY THE COUNCIL OF GOVERNMENTS, RATIONALE: 1. Long-range planning will be ineffective if the transit agencies make decisions which do not conform to the regional transportation plan and the transportation improvement program. Inconsistent decisions can reduce the efficiency of the transportation system. ISSUE # 25 : THE COUNCIL OF GOVERNMENTS SHOULD REVIEW THE CAPITAL IMPROVEMENT BUDGETS AND PLANS OF GENERAL PURPOSE GOVERNMENTS, SPECIAL DISTRICTS, SCHOOL DISTRICTS, AND SPECIAL PURPOSE AGENCIES FOR CONSISTENCY WITH PROPOSED ACTIONS OF OTHER BODIES AND THE REGIONAL PLAN, THE COUNCIL OF GOVERNMENTS SHOULD BE AB,_E TO PREVENT THE EXPENDITURE OF FUNDS FOR PROJECTS THAT ARE INCONSISTENT WITH THE REGIONAL PLAN, RATIONALE: 1. Because capital facilities play an important role ir. the growth and management of the region, they should be included in the regional capital improve- ment plan. 2. The council of governments should be able to ensure that unnecessary costs are not incurred by either the public or private sector as a result of unneces- sary and/or duplicative projects. N B, TRANSPORTATION ISSUE # 26 : A TWO -TIERED TRANSIT STRUCTURE SHOULD BE INSTI- TUTED IN SAN DIEGO COUNTY CONSISTING OF: A. A SINGLE AGENCY THAT WOULD BE RESPONSIBILE FOR LONG- RANGE COMPREHENSIVE PLANNING; AND B, SUB -REGIONAL TRANSIT AGENCIES THAT WOULD BE RESPONSI- BLE FOR NEAR -TERM OPERATIONAL PLANNING, OPERATING AND/ OR CONTRACTING OF TRANSIT SERVICES, RATIONALE: 1. Effective transit operations are hampered when there are several transportation planning and policymaking bodies. A single agency would pro- vide the most effective and efficient mechanism to carry out all long-range transportation plan- ning responsibilities. This will help ensure consistency and coordination among various trans- portation programs. 2. Transit operations should be vested in sub -regional agencies which have the time and expertise to en- sure efficient coordination of transit operations. ISSUE # 27 : LOCAL TRANSPORTATION FUNDS SHOULD BE POOLED IN THE NORTHERN AND SOUTHERN PORTIONS OF THE SAN DIEGO REGION, ALLOCATION OF THESE FUNDS SHOULD BE BASED ON TRANSIT DEMAND RATHER THAN ON RIGID POPULATION SCHEDULES, EACH JURISDICTION, HOWEVER, SHOULD BE GUARANTEED A MINIMUM LEVEL OF SERVICE, RATIONALE: Because transit funds have not kept pace with increasing demands for service, it is especially important that funds be used as effectively as possible. 2. The present system of apportionment provides large surpluses in some areas while leaving transit demand unfulfilled in other areas. 3. Pooling of funds will provide a mechanism to allo- cate funds where the services are needed the most. 20 be responsive to their appointing cities and to the public. 2. The four -fifths requirement for replacing Port Com- missioners makes removal an ineffective means of ensuring accountability. The result is a'Port Com- mission which is not responsive to the member cities or to the public. 3. Greater accountability will result if the city coun- ckls have a viable method of replacing unresponsive and/or ineffective appointees. ISSUE # 31 : THE OPERATING AND CONTRACTING AUTHORITIES FOR THE PORT OF 3AN DIEGO SHOULD REMAIN WITH THE SAN DIEGO UNIFIED PORT DISTRICT, THE PORT DISTRICT SHOULD ALSO RETAIN ITS RESPON- SIBILITY FOR PREPARING SUB -REGIONAL PLANS FOR ITS AREAS OF JUR- ISDICTION, RATIONALE: 1. The San Diego Unified Port District has the exper- tise to efficiently manage the state tidelands under their jurisdiction. Planning for this area is an important element in the management of these properties. ISSUE # 32 : THE REVENUES OF THE PORT DISTRICT SHOULD BE 9 MADE AVAILABLE FOR USE WITHIN SAN DIEGO COUNTY, THESE FUNDS SHOULD BE USED FOR REGIONAL PURPOSES INCLUDING TRANSIT SERVICES AND THE DEVELOPMENT OF ALTERNATIVE AIRPORT LOCATIONS, RATIONALE: 1. The Port District is the region's center of commerce. Because the Port District attracts business through- out the region, it should share in the provision of services to the region's residents. 2. The Port District's ability to produce revenues should be used to fund related services including transit, future airport expansions and relocations and recreation. ` 21 ISSUE # 28 : EACH MEMBER AGENCY SHOULD HAVE AT LEAST ONE REPRESENTATIVE ON THE GOVERNING BODY OF THE SUB -REGIONAL TRANSIT AGENCIES. RATIONALE: 1. The sub -regional transit agencies should be respon- sive to the needs of each community. This member- ship will provide the best means to ensure that the needs of each local jurisdiction are addressed. 2. Permanent representation will improve the continuity of board membership, add additional stability in decision -making, and provide more knowledgeable board members. C. SAN DIEGO UNIFIED PORT DISTRICT ISSUE # 29 : THE CURRENT COMPOSITION AND METHODS OF APPOINTING THE PORT BOARD OF COMMISSIONERS SHOULD BE RETAINED. RATIONALE: 1. The cities most directly affected by the Port Dis- trict are equitably represented on the Port District's Board of Commissioners. 2. Commissioners should be appointed by the city councils so the decision -making process will be responsive to the needs and desires of the member cities. ISSUE # 30 : THE SAN DIEGO UNIFIED PORT DISTRICT ACT SHOULD BE AMENDED TO PROVIDE MORE PUBLIC ACCOUNTABILITY BY GIVING MEMBER CITIES THE ABILITY TO REPLACE THEIR REPRESENTATIVES ON THE PORT BOARD OF COMMISSIONERS BY A MAJORITY VOTE OF THEIR CITY COUNCILS. RATIONALE: 1. Because member cities are greatly affected by Port District activities, the Port Commissioners should 22 D. REGIONAL REGULATORY AGENCIES ISSUE # 33 : THE SAN DIEGO AIR POLLUTION CONTROL DISTRICT, THE WATER RESOURCE CONTROL BOARDS, AND THE SAN DIEGO COAST REGIONAL COMMISSION SHOULD NOT BE COMBINED WITH THE COUNCIL OF GOVERNMENTS, THE STATE SHOULD RETAIN ITS OVERSIGHT RESPONSIBILITIES IN THESE FUNCTIONAL AREAS, RATIONALE: 1. Air quality planning and implementation should re- main a joint responsibility of the council of gov- ernments and the Air Pollution Control District (Couhty Board of Supervisors). The existing struc- ture provides a fairly effective method of shared responsibilities without duplication. This struc- ture will be enhanced if the council of governments receives additional responsibilities as provided in Issue # 5. 2. The existing structure recognizes the need to manage water quality on a regional level with boundaries based on watersheds. Because the Regional Water Quality Control Board boundaries are not coterminous with the county, a council of governments - RWQCB merger would weaken this important management pro- gram. 3. The San Diego Coast Regional Commission was estab- lished to carry out specific planning and regulatory responsibilities until the local coastal programs are approved. Because the Coast Regional Commission is in the process of completing its work for an even- tual phase out in 1981, the agency should not be affected by agency mergers. E. PLANNING AND DECISION MAKING ISSUE # 34 : ADDITIONAL REQUIREMENTS SHOULD BE DEVELOPED TO ENSURE THAT PERMIT DECISIONS ARE BASED ON THE ADOPTED GOALS, 23 OBJECTIVES, AND PLANS OF GOVERNMENTAL AGENCIES, RATIONALE: 1. —the permit process is to serve as a means for reaching established goals, then permit decisions should be consistent with those goals. 2. The goals, objectives and plans of agencies will play a more important role if permit decisions are required to be consistent. This will provide a more open and structured direction for agency actions. F. THE PERMIT PROCESS ISSUE # 35 PLANNING SHOULD INCLUDE A GREATER LEVEL OF SPE- CIFICITY, THIS PROVIDES FOR THE EXPEDITION OF THE PERMIT PROCESS BECAUSE MORE PERMIT DECISIONS COULD BECOME MINISTERIAL ACTIONS, STREAMLINING OF THE PROCESS SHOULD BE DONE IN A MANNER THAT DOES NOT LIMIT PUBLIC REVIEW, RATIONALE: 1. Planning that does not address specific issues leaves many questions unresolved. Because these questions must be resolved during the permit review process, additional time and costs are incurred before deci- sions are made. 2. If the critical questions are resolved during the planning process, the private sector will have bet- ter guidance as to which projects are likely to re- ceive approval. This can save private citizens time and money in seeking permit approvals. 3. Resolution of the critical issues during the planning process will place decisions in a forum in which issues are reviewed in a more comprehensive manner. ISSUE # 36 : THE COUNCIL OF GOVERNMENTS SHOULD PREPARE A PERMIT HANDBOOK THAT DISCUSSES THE VARIOUS PROJECT APPROVAL 24 REQUIREMENTS OF STATE, FEDERAL, REGIONAL AND LOCAL AGENCIES, RATIONALE: �1. An understandable permit handbook would provide citizens with an explanation of all of the require- ments and processes relevant to the approval of their projects. This would assist the public in understanding requirements and would help reduce time delays and costs that result from unfamiliar- ity with the processes. ISSUE # 37 : THE COUNCIL OF GOVERNMENTS SHOULD NOT BE ABLE TO REQUIRE ADDITIONAL PERMITS, RATIONALE: . T e principal implementation strategy should be based on conformance of plans and activities to the regional plan. 2. This strategy avoids the need to adopt additional permit requirements. i 3. Adding another permit requirement for projects is not desirable. Existing permit requirements are numerous and provide sufficient levels of review. G. ENVIRONMENTAL IMPACT REPORTS ISSUE # 38 : ADDITIONAL POLICIES SHOULD BE DEVELOPED TO MAKE THE ENVIRONMENTAL IMPACT REPORTING PROCESS MORE STANDARDIZED, THESE POLICIES SHOULD INCLUDE REQUIREMENTS THAT LEAD AGENCIES EITHER PREPARE OR DIRECTLY CONTRACT FOR THE PREPARATION OF ! ENVIRONMENTAL IMPACT REPORTS* PROJECT PROPONENTS SHOULD CON- TINUE TO REIMBURSE LEAD AGENCIES FOR THE COSTS OF PREPARING I THE EIRS, 25 RATIONALE: iese policies should reduce costs of preparing EIRs. This will result from the data bases the agencies could establish as well as the increased ability to borrow information when standardized formats are used. 2. Standardized formats will save the reviewer time in finding the information he/she needs most. 3. Reports prepared by independent sources will be more credible, less subject to judicial review, and more useful to policymakers and the public. H, PROJECT BONUSES ISSUE # 39 : ADDITIONAL BONUSES SHOULD BE USED TO ENCOURAGE THE DEVELOPMENT OF DESIRABLE PROJECTS, RATIONALE: 1. Government should be more active in encouraging the private sector to develop desirable projects. - Alternative methods should be developed to encour- age greater participation by the private sector in meeting the region's needs. This will lead to better cooperation between the public and private sectors. 26 PART THREE: CITIZEN PARTICIPATION ISSUE # 40 : EACH GOVERNMENTAL AGENCY SHOULD HAVE AN ON- GOING CITIZEN PARTICIPATION PROCESS, FUNDING SHOULD BE AL- LOCATED TO ENSURE THAT ADEQUATE PARTICIPATION IS FACILITATED, RATIONALE: 1. Government needs effective citizen participation to ensure that responsive and acceptable decisions are made. Funding is essential for the development of an effective citizen participation process. 2. An effective citizen participation process will fos- ter cooperation among citizens and governmental officials. 3. Participation processes should involve citizens in the initiation and development of projects as well as in the review of proposed activities. This will allow agencies to utilize the resources, expertise and creativity of their constituents. 4. Governmental officials must encourage participation and assure citizens that their input is wanted and is considered. ISSUE # 41 : GOVERNMENT SHOULD WIDELY DISTRIBUTE UNDERSTAND- ABLE INFORMATION PERTAINING TO ITS AFFAIRS AND UTILIZE A VARIETY OF COMMUNICATION TECHNIQUES, RATIONALE: 1. Responsible governmental officials should maximize communication with and the participation'of citizens in their activities. 2. Citizens need information that is comprehensible and understandable. This requires careful preparation and translation by staff into layman's terms. 3. The use of a variety of communication techniques will improve the ability of agencies to communicate with diverse constituencies. Techniques may include mail- ing notices, distributing flyers with school children or through utility bills, using announcements on radio and television, preparing articles for news- 27 papers, and holding press conferences and town meetings. Surveys and public hearings are good tools for soliciting feedback from the public. ISSUE # 42 : THE COUNCIL OF GOVERNMENTS SHOULD ASSIST LOCAL GOVERNMENTS IN DEVELOPING GREATER PUBLIC AWARENESS OF THE ABIL- ITY OF CITIZENS TO AFFECT THE PLANNING PROCESS, RATIONALE: 1. As the regional clearinghouse, the council of gov- ernments is the appropriate agency for sharing in- formation regarding effective methods for involving citizens in the decision making process. The coun- cil of governments should also inform citizens of ways to affect the planning process at each level of government. 2. The council of governments should also serve as a source of information that citizens can use to fol- low the activities of governmental agencies. ISSUE # 43 : LOCAL GOVERNMENTS SHOULD ENCOURAGE CITIZENS TO ESTABLISH COMMUNITY PLANNING GROUPS THROUGHOUT THE REGION, THESE PLANNING GROUPS SHOULD PROVIDE A STRUCTURED PROCESS FOR SEEKING CITIZEN INPUT ON PLANNING MATTERS, RATIONALE: 1. The most effective way to institutionalize citizen participation in planning is to create community organizations. These groups can consistently re- spond to issues within their community and identify matters that need governmental attention. 2. Representatives from each community planning group could meet to coordinate activities, share informa- tion, and develop positions on sub -regional and regionwide matters. 3. These groups can also provide continuity and greater expertise in the citizen participation process. 28 ISSUE # 44 : A TRIAL PROGRAM SHOULD BE ESTABLISHED IN WHICH COMMUNITY PLANNING GROUPS ARE VESTED WITH THE RESPONSIBILITY TO RESOLVE COMMUNITY PLANNING ISSUES, RATIONALE: 1. Community planning groups should be responsible for providing input into the preparation of community plans, local general plans, and the comprehensive regional plan. Limited models for this process exist within the City and County of San. Diego. 2. Implementation is as important as planning. The citizen participation process could be extended by providing community planning groups with the ability to resolve certain community issues (eg. fence dis- putes and some zoning matters). This could reduce some of the burden that presently exists with local governments. ISSUE # 45 : PROVISIONS SHOULD BE ESTABLISHED TO PROVIDE AN ORDERLY FRAMEWORK FOR CITIZEN LAW SUITS THAT APPEAL DECISIONS OF AGENCIES THAT ARE INCONSISTENT WITH THE REGIONAL PLAN, RATIONALE: 1. Citizen initiated law suits provide an important method of review of agency decisions. 2. Clearer procedures would provide citizens with a better understanding of their rights and would help reduce avoidable project delays. 29 0 PART FOUR: GOVERNMENT REVIEW PROCESS ISSUE # 46.: AS OUR REGION GROWS, IT IS ESPECIALLY IMPORTANT THAT OUR PLANNING AND IMPLEMENTATION INSTITUTIONS CONTINUE TO EVOLVE TO MEET THE NEEDS FOR COORDINATION AND MANAGEMENT OF GOVERNMENTAL ACTIVITIES, AN INTERNAL AND EXTERNAL EVALUATIVE PROCESS SHOULD BE ESTABLISHED TO IDENTIFY CHANGES THAT WILL IMPROVE THE EFFECTIVENESS AND EFFICIENCY OF OUR GOVERNMENTAL STRUCTURE, THE INTERNAL EVALUATION PROCESS SHOULD INCLUDE REQUIREMENTS THAT THE COUNCIL OF GOVERNMENTS FILE A REPORT WITH THE LEGIS- LATURE EVERY TWO YEARS, THIS REPORT SHOULD EVALUATE THE SUC- CESSES AND FAILURES OF THE COUNCIL OF GOVERNMENTS' ACTIVITIES AND PROPOSE SUGGESTIONS FOR IMPROVING THE PLANNING AND IMPLE- MENTATION PROCESS, THE EXTERNAL EVALUATION PROCESS SHOULD INCLUDE THE ESTABLISH- MENT OF A CITIZENS COMMITTEE TO REVIEW THE ACTIVITIES OF THE COUNCIL OF GOVERNMENTS, LOCAL GOVERNMENTS, AND SPECIAL PURPOSE AGENCIES (EG, THE SAN DIEGO UNIFIED PORT DISTRICTS), THIS COMMITTEE, WHICH WOULD FILE A REPORT WITH THE LEGISLATURE EVERY TWO YEARS, SHOULD INCLUDE CITIZENS DESIGNATED BY EACH MEMBER OF THE SAN DIEGO LEGISLATIVE DELEGATION, A REPRESENTA- TIVE OF THE COMMUNITY PLANNING ORGANIZATIONS, AND DELEGATES FROM PUBLIC AND PRIVATE INTEREST GROUPS REPRESENTING A BROAD SPECTRUM OF VIEWPOINTS FROM THROUGHOUT THE REGION, 30