BILL ANALYSIS
SB 2
Page 1
Date of Hearing: April 20, 1998
ASSEMBLY COMMITTEE ON NATURAL RESOURCES
Debra Bowen, Chair
SB 2 (Thompson) - As Amended: April 13, 1998
SUMMARY : Upon passage by the voters in the November 1998
election, authorizes the sale of $849,500,000 in general
obligation bonds to finance a program for the acquisition,
development, improvement, rehabilitation, restoration,
enhancement, and protection of park, recreational, cultural,
historical, fish and wildlife, and coastal resources.
EXISTING LAW : Authorizes the Legislature to approve and place
measures on the ballot at a statewide election so that the voters
may determine whether to authorize the issuance of general
obligation bonds for specified purposes.
THIS BILL:
1) Creates the Watershed, Wildlife, and Parks Improvement Bond Act
of 1998, which would place a measure on the November 1998
ballot authorizing the sale of $849,500,000 in general
obligation bonds, the money to be allocated as follows as
appropriated by the Legislature:
a) $150,000,000 to the Department of Parks and Recreation
(department) for the rehabilitation, development, and
stewardship of existing state park units;
b) $8,000,000 to the department for stewardship projects;
c) $4,000,000 to the department for facilities and
improvements to enhance volunteer participation in the
state park system;
d) $20,000,000 to the department for grants to local agencies
administering units of the state park system;
e) $10,000,000 to the California Heritage Fund;
f) $180,000,000 to the department for grants, on the basis of
population, for local park and recreational lands and
facilities;
g) $67,500,000 to the department for grants to cities,
counties, and districts for park and recreation facilities
pursuant to the Roberti-Z'berg-Harris Urban Open-Space and
Recreational Program Act;
h) $10,000,000 to the department for grants for the
development, improvement, rehabilitation, restoration, and
enhancement of public access to lakes, rivers, and
reservoirs;
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i) $10,000,000 to the department for grants to cities,
counties, districts, and local park agencies for trails;
j) $2,500,000 to the California Conservation Corps for
capital outlay and resource conservation projects and
administrative costs allocable to projects funded by this
bill;
k) $20,000,000 to the department for grants for urban
recreational and cultural centers, including but not
limited to zoos and aquariums;
l) $7,500,000 to the department for regional youth soccer
facilities;
m) $140,000,000 in a continuous appropriation to the Wildlife
Conservation Board;
n) $50,000,000 to the California Tahoe Conservancy;
o) $100,000,000 to the California Coastal Conservancy;
p) $35,000,000 to the Santa Monica Mountains Conservancy;
q) $2,500,000 to the Coachella Valley Mountains Conservancy;
r) $5,000,000 to the San Joaquin River Conservancy;
s) $2,500,000 to the California Conservation Corps for grants
to certified local community conservation corps programs;
t) $5,000,000 to the Department of Conservation for grants
for agricultural land stewardship;
u) $10,000,000 to the Department of Forestry and Fire
Protection for grants for urban forestry projects;
v) $10,000,000 to the Department of Fish and Game, $5,000,000
of which is to be dedicated to development, enhancement,
restoration, and preservation of land, and the other
$5,000,000 to be dedicated to the State Duck Stamp Account
for the acquisition of habitat preservation and enhancement
agreements on private wetlands.
2) Creates the Watershed, Wildlife, and Parks Improvement Program
Finance Committee, consisting of the Governor, the Controller,
the Director of Finance, the Treasurer, and the Secretary of
the Resources Agency, to oversee the issuance and sale of
bonds;
3) Requires that all acquisitions of real property funded by these
bonds be from willing sellers;
4) Is an urgency measure.
FISCAL EFFECT : Unknown; potential increase of $849,500,000 in the
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state's general obligation bond indebtedness.
COMMENTS :
Questions the Committee May Wish to Consider:
1) Have the state's parks, watersheds, and wildlife resources
deteriorated to such an extent that the electorate should
invest nearly $850 million in their restoration, protection,
and expansion?
2) Would the program created by this bill provide a balanced
distribution of funds between the multiple interests in the
state (urban/rural, coastal/inland, state/local, etc.)?
3) Will the state be using bond revenues to pay for deferred
maintenance of parks and infrastructure?
4) Should the state undertake an additional $849.5 million in
bonded indebtedness?
Background
Bond acts have been the primary means by which the state has
funded protection of its natural resources. Since 1964, the
people of California have passed nine bond acts totaling
$2,356,000,000 for the protection and enhancement of parks,
recreation, and wildlife.
The last successful bond act to allocate money to parks and
wildlife resources was the California Wildlife, Coastal, and Park
Conservation Act (Prop. 70), which generated $776 million when it
was approved in 1988. Virtually all of that money has been spent,
and what remains has been earmarked for specific projects.
Since the passage of Prop. 70, there has been a uniform,
substantial decline in appropriations to parks and wildlife. The
use of special assessment districts as an alternative to state
appropriations for parks and open space has been thrown into doubt
by the passage of Prop. 218 in November 1996. At the same time,
the population of the state has continued to grow, adding new
pressures to already overtaxed parks and resources. Not only has
the state been unable to acquire rapidly vanishing examples of
California's uniquely varied flora, fauna, and physical and
cultural geography, it hasn't been able to adequately maintain
those resources it already has.
Where the Money Goes
Of the $849.5 million in bond revenues, $514.5 million is to be
allocated for direct expenditure by a range of state departments
and agencies, for specified purposes and under specified
conditions. The remaining $335 million is to be allocated to
various agencies for grants to local agencies and non-profit
organizations. The bill divides these allocations into seven
programs.
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State Park System Program
$162 million is allocated to the department for direct
expenditure, to be spent in the rehabilitation of state parks;
development of facilities and trails at existing state parks,
including the purchase from willing sellers of inholdings and
adjacent lands; facilities and improvements that will increase the
level of volunteer participation in state parks; the development,
improvement, and expansion of interpretive facilities; the
rehabilitation and repair of winter recreation facilities; and
"stewardship" projects.
"Stewardship" is defined in this bill as "the development and
implementation of projects for the protection, preservation,
rehabilitation, restoration, and improvement of natural systems
and outstanding features of the state park system and historical
and cultural resources." These projects must be nominated by any
member of the Legislature, the State Parks and Recreation
Commission, or the Resources Secretary for study by the
department. The department is to submit annual reports to the
Legislature and the Resources Secretary that prioritize and
comparatively evaluate nominated projects. Approved projects are
to be forwarded to the Director of Finance for inclusion in the
budget.
The Grant Program
Of the $332.5 million in grants authorized by this bill, $305
million is to be administered by the department. Of the latter
sum, $20 million is for local agencies administering units of the
state park system; $180 million for local park and recreational
lands and facilities, to be allocated on the basis of population
as specified; $67.5 million to cities, counties, and districts for
park and recreation facilities, pursuant to the
Roberti-Z'berg-Harris Urban Open-Space and Recreational Program
Act; $10 million for "nonmotorized" trails; and $20 million for
urban recreational and cultural resources, including but not
limited to zoos, aquariums, and museums.
Of the $27.5 million in grants not administered by the department,
$10 million is to be administered by the California Heritage Fund
for historical resources, $10 million is to be administered by the
Department of Forestry and Fire Prevention for urban forests under
the provisions of the Urban Forests Act, and $2.5 million is to be
administered by the California Conservation Corps for certified
local conservation corps.
With the exception of the CDF and CCC grants, all the grants in
this program are to awarded primarily to local agencies for
projects that rehabilitate facilities at existing local parks that
will provide more efficient management and reduce costs; develop
facilities that promote positive alternatives for youth; promote
family-oriented recreation activities; and provide for open, safe,
and accessible local park lands and facilities.
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All grant applications are to be submitted to the department,
along with certification from the local planning agency that the
project is consistent with the applicable general plan or park and
recreation plan and satisfies a high priority need.
The Wildlife Program
$140 million is to allocated as a continuous appropriation to the
Wildlife Conservation Board for direct expenditure. $10 million
is to be spent on wetland habitat, $10 million for riparian
habitat and watershed protection; $40 million for endangered and
threatened species habitat, including the Natural Communities
Conservation Program (NCCP), subject to specified limitations; $5
million for forest lands, including redwoods and oak woodlands;
and $75 million for wildlife conservation partnerships that
provide or protect habitat for endangered, threatened, or fully
protected species, natural communities of habitat types, or
wildlife corridors.
The Lake Tahoe Program
$50 million is to be allocated to the California Tahoe Conservancy
for direct expenditure for the acquisition, restoration,
enhancement, and development of real property within the Lake
Tahoe region for the purposes of protecting the natural
environment, providing public access and public recreation, and
enhancing and restoring wildlife habitat.
The Coastal Program
$100 million is to be allocated to the Coastal Conservancy for
direct expenditure. $25 million of this amount is to be spent on
projects funded pursuant to the San Francisco Bay Area Conservancy
Program. The remaining $75 million is to be spent according to
these priorities:
1) Perfection and development of offers to dedicate for coastal
access;
2) Coastal trail completion;
3) Acquisition, development, preservation, or restoration of real
property, including but not limited to scenic lands, urban
waterfront facilities,and coastal agricultural land
preservation.
The Mountain Resource Program
$35 million is allocated to the Santa Monica Mountains Conservancy
for acquisition, development, and enhancement of lands, as well as
for grants to nonprofit organizations. $15 million is to be
specifically directed to the San Gabriel River and Los Angeles
River corridors.
$2.5 million is allocated to the Coachella Valley Mountains
Conservancy for direct expenditure for acquisition, development,
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enhancement, and protection of lands.
The San Joaquin River Program
$5 million is allocated to the San Joaquin River Conservancy for
the acquisition, development, enhancement, and protection of land,
and for administrative costs.
The Agriculture Program
$5 million is allocated to the Department of Conservation for
grants to state and local agencies and nonprofit organizations for
farmland protection and administration of the Agricultural Land
Stewardship Act of 1995.
The Fish and Game Program
$10 million is allocated to the Department of Fish and Game, $5
million of which is to be spent for the acquisition, development,
restoration, and preservation of land, and $5 million of which is
to be deposited in the Duck Stamp Account for the sole purpose of
acquiring habitat preservation and enhancement agreements on
private wetlands.
A Delicate Balance
Concerns have been raised that urban parks and recreational
resources have not received their fair share of funds in previous
park bond measures. Several provision of this bill attempt to
address that issue. The $67.5 million in Roberti-Z'berg-Harris
grants, which are meant to benefit the unmet needs in densely
populated, economically disadvantaged areas, the $20 million for
urban recreation and cultural resources, the $7.5 million for
youth soccer facilities, and the $10 million in urban forestry
grants are more or less specifically earmarked for urban areas.
Additionally, the funds for local parks, the Coastal Conservancy,
and the Santa Monica Mountains Conservancy all have clear urban
components. This results in $105 million clearly directed to
urban areas, and another $315 million that could be directed in
part to urban projects.
SOURCE :
SUPPORT :
American Federation of State, County and Municipal Employees
City of Alhambra
Alpine County Board of Supervisors
Alpine Land Preservation Action Committee
Ambrose Recreation and Park District
Anza-Borrego Foundation
Arcade Creek Recreation and Park District
Association of California Water Agencies
Back Country Land Trust
Bay Area Action
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Bay Area Open Space Council
Baylands Conservation Committee
City of Benicia
Big Bear Valley Recreation and Park District
Bodega Land Trust
Bolsa Chica Land Trust
California Association of Recreation and Park Districts
California Association of Regional Park and Open Space
Administrators
California Association of Resources Conservation Districts
California Association of Zoos and Aquariums
California Federation for Animal Legislation
California Native Plant Society
California Native Plant Society, Marin Chapter
California Native Plant Society, Monterey Bay Chapter
California Park and Recreation Society, Inc.
California Parks and Conservation Association
California Special Districts Association
California Sportsman's Lobby, Inc.
California State Park Rangers Association
California Waterfowl Association
Cayucos Greenways Committee
Chatsworth Conservation Coalition
Citizens for Urban Wilderness Areas
City of Claremont
Cleveland National Forest Foundation
Coastal Land Trust
Contra Costa Humane Society
Contra Costa Water District
Cordova Recreation and Park District
City of Coronado
City of Covina
Earth Day Resources
East Bay Municipal Utility District
Easter Hill United Methodist Church
El Dorado Audubon Society
Endangered Habitat League
Environmental Defense Center
Environmental Forum of Marin
Fresno County Economic Development Commission
Friends of Hope Valley
Friends of Santa Cruz State Parks
Friends of Stevens Creek Trail
Friends of the Morro Bay Estuary
Friends of the Ridgeline
Friends of the Sacramento River Greenway
Friends of the Santa Clara River
Friends of the Tecate Cypress
Friends of the Urban Forest
Fulton-El Camino Recreation and Park District
Fund for Animals
Glendora Community Conservancy
Golden Gate Audubon Society
Greater Vallejo Recreation District
Greenbelt Alliance
Hayward Area Recreation and Park District
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Hills for Everyone
Integrated Waste Management Board
King City
Lafayette Parks and Recreation Department
Laguna Canyon Foundation
Laguna Greenbelt, Inc.
Laguna Hills Audubon Society
Lake County Land Trust
City of Lancaster
Land Conservancy of San Luis Obispo County
Lassen Land and Trail Trust
City of LaVerne
Leisure World Residents to Save the Canyon
City of Lemon Grove
Lodi Parks and Recreation Department
City of Lompoc
Marin Agricultural Land Trust
Marin Audubon Society
Marin County Open Space District
Martinez Regional Land Trust
McKinleyville Community Services District
McKinleyville Land Trust
City of Menlo Park
Midpeninsula Regional Open Space District
Mission Oaks Recreation and Park District
City of Monterey
Monterey Peninsula Regional Park District
Mountain Lion Foundation
Napa-Solano Audubon Society
National Opossum Society, Inc.
National Resources Defense Council
North Bakersfield Recreation and Park District
North East Trees
North Tahoe Public Utility District
Ojai Valley Land Conservancy
Pacific Forest Trust
Paradise Recreation and Park District
Park Rangers Association of California
City of Pasadena
People for A Golden Gate National Recreation Area
Planning and Conservation League
Preserve Wild Santee
City of Red Bluff
Redwood Community Action Agency
Re-Leaf - Sonoma County
Regional Parks - East Bay Regional Park District
Rio Linda and Elverta Recreation and Park District
River Parkway Trust
Riverside County Regional Park & Open Space District
Roseville Urban Forest Foundation
Rural Canyons Conservation Fund
City of Salinas
Sacramento County
Sacramento Tree Foundation
City of San Bernardino
San Bernardino Mountains Land Trust
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San Bernardino Valley Audubon Society
San Diego Association of Governments
San Diego Gas and Electric
City of San Fernando
City of San Gabriel
City of San Marcos
San Mateo County Harbor District
Sanctuary Forest, Inc.
Santa Barbara County Board of Supervisors
Santa Clara County Board of Supervisors
City of Santa Cruz Parks and Recreation District
City of Santa Rosa
Santa Susana Mountain Park Association
Santiago Creek Greenway Alliance
Save Mount Diablo
Save Open Space, Santa Monica Mountains
Save our Coastline 2000
Save the Redwoods League
Sempervirens Fund
Shafter Recreation and Park District
Sierra Club
Sierra Nevada Alliance
Small Wilderness Area Preservation
Sonoma County Conservation Action
Sonoma county Regional Parks
Sonoma Land Trust
Sonoma State Historic Park Association
Soroptimists of San Jose
South Livermore Ag Trust
South Livermore Valley Agricultural Land Trust
Southgate Recreation and Park District
Stewards of Slavianka - Russian River/Mendocino District
Stone Lakes Refuge Alliance
Sunrise Recreation and Park District
Tree Society of Orange County
Trust for Public Land
Tulare County Board of Supervisors
Tule Oaks Land Trust
Urban Corps of San Diego
Valley Center Community Services District
Valley-Wide Recreation and Park District
City of Vista
Volcan Mountain Preserve Foundation
City of Westminster
Yolo County
Yolo Land Trust
OPPOSITION:
Friends of the Folsom Zoo
Analysis prepared by : J. Stacey Sullivan / anatres /
(916)445-9367