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).
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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