Date: October 23, 1998
| To: The Honorable Chairman and Members | From: C.H. Huckelberry |
| Pima County Board of Supervisors | County Administrator |
Re: Sonoran
Desert Conservation Plan
Introduction
The Board has instructed staff, over a number of meetings,
to develop and improve strategies to deal with rapid urban growth in Eastern
Pima County. These activities have varied from a general Study Session discussion
of growth on February 24, 1998 to specific Board initiatives on May 19,
1998, leading to the adoption of various alterations to the County Zoning
and Land Use Codes. To date the Board has been very active in addressing
matters of growth, quality of life, and the environment.
The attached draft report, entitled Sonoran Desert Conservation
Plan, results from Board direction to develop a comprehensive environmental
based response to urban growth pressures. The draft plan itself is the merger
of active citizen discussion regarding growth with the Coalition for the
Sonoran Desert Protection Plan and others, along with integration of a number
of past and present County activities that are natural resource protection
oriented.
Development of this plan has been in response to the policies
and visions stated by the Board in discussing urban growth issues in Pima
County and the need to balance economic, environmental, and human interest.
The report is being transmitted for your initial review
and comment before being finalized. In this memorandum I will have a number
of recommendations regarding further actions requiring Board direction.
Indicators of Need to Act
As identified in the attached report, Pima County's population
has increased dramatically and is expected to reach 1.2 million by the year
2020, as compared to the 800,000 people who live in Pima County today. Distributing
this population by jurisdiction, the unincorporated area is expected to
increase 65 percent over its present population. Given present housing trends
and to accommodate increased regional population, the urbanized area will
increase by approximately 160 square miles, which is roughly equal to the
present size of the City of Tucson.
Given that today only 18 percent of the land in the State
of Arizona is private, one could think that we will soon run out of land
to urbanize in Arizona. However, if you look at where rapid urban growth
is occurring, such as Eastern Pima County, 31 percent of the land is now
privately held and 33 percent is State Trust land. Therefore, 64 percent
of the land area in Eastern Pima County is or can be developed. The large
availability of land that can be developed, as well as rapid population
growth, make action on natural resource protection, preservation, and conservation
essential now.
Merging Past, Present and Future Actions
The draft Sonoran Desert Conservation Plan identifies six
elements, all integrated to comprise one single natural resource protection
plan for Pima County. While this is the first time that we have articulated
how these elements combine to form one plan, past Pima County actions have
pursued independently and often at different paces, implementation of all
plan elements. In fact, enumerated in the plan report is the fact that over
$48 million of the May 1997 bond issue is dedicated to implementing various
projects within one or more elements of the plan. In addition, successfully
completing our Federal legislative agenda will secure almost $55 million
in Federal funding. Also, the County's own land use regulatory action, through
development of the Starr Pass Environmental Enhancement Fee, has provided
an additional $18 million for Tucson Mountain Park expansion. In the near
future we may have the opportunity to secure another $40 million to $60
million of funding if Proposition 303 is approved at the November general
election.
Full implementation of the Sonoran Desert Conservation
Plan as outlined in the attached report will take significantly more funding
than is now available. It will also take time. However, it must be remembered
that when some of the very first past accomplishments of this plan were
undertaken in 1987 by helping conserve the Empire and Cienega ranches, none
of the previously discussed funding was available.
Compatibility with Comprehensive Plan Update
The Comprehensive Plan adopted by Pima County in 1992 was
scheduled for a major update in 1997. Due to issues primarily related to
the incorporation of new cities and towns, this update was postponed. Given
the ongoing litigation both in State and Federal courts, it is likely that
the issue of incorporation may not be solved for another two years. Therefore,
the Board may wish to consider advancing an update of the Comprehensive
Plan for next fiscal year. In the meantime, the Sonoran Desert Conservation
Plan as outlined herein forms the basis of a natural and cultural resources
element of the Comprehensive Plan. With the simple addition of air and water
elements, the Sonoran Desert Conservation Plan becomes the environmental
element of the Comprehensive Plan. By advancing the environmental element
of the Comprehensive Plan update, the long-term urban form of Pima County
begins to solidify, something that has not been well-defined to date.
Endangered Species Act Compliance
One of the fundamental duties of government is to protect
those who cannot protect themselves. This concept applies to our more vulnerable
human population but also applies to enforcement of the Endangered Species
Act.
In the 19 months that have passed since the United States
Fish and Wildlife Service listed the Cactus Ferruginous Pygmy Owl as endangered,
we have seen growing conflict related to land use decisions, but a shortage
of community-defined solutions. Three realities must be acknowledged in
order to move toward the formulation of meaningful solutions. First, the
problems associated with the pygmy owl listing are enormous from an environmental
perspective; second, the listing has serious economic implications; and
third, the ethical decisions before the community as it balances environmental
values with economic values and the health and safety needs of residents
will be difficult and will require a new level of commitment to demonstrating
respect for diverse interests.
Most elements of this draft plan involve preservation of
natural habitat that is important for endangered species survival. However,
the elements of biological corridors and sensitive and critical habitats
directly relate to endangered species protection.
A preliminary work plan for interim and long-term endangered
species and habitat protection has been created with the assistance of members
of the environmental community, individuals who have voiced concerns over
protection of private property rights, representatives of the business community,
and other interested parties.
The work plan will open the door to the broad formal public
process necessary to undertake regional endangered species planning and
program implementation with Federal natural resource agency partners. Perhaps
more importantly, it will enable the local community to accept responsibility
for our endangered species compliance obligations and adopt a proactive
role in defining balanced and rational solutions. To date, community options
have been defined primarily by conflict and a winner-take-all approach.
Now the Board can reverse this trend by establishing a process that will
frame the choices available to the community in terms of consensus-building
and an approach that honors multiple obligations. Through this process,
we will have greater opportunity to protect the pygmy owl, achieve lasting
conservation goals on an ecosystem and multi-species level, and foster acceptance
of, and pride in, environmental values that can be upheld across the community.
Recommendations
Recommendations are broken down into three categories:
first, recommendations that require general review and comment that could
take place over a period of time; second, recommendations on actions the
Board may wish to take in the near term providing policy direction; and
third, actions that should be taken to demonstrate the County's commitment
to compromise and to comply with the Endangered Species Act.
Review and Comment Recommendations
1. It is requested the Board review and comment on the
six elements of the draft Sonoran Desert Conservation Plan. Appropriate
direction would include Board priorities regarding the elements and specific
present and future projects identified in each element within the plan.
2. Where the elements identify specific geographic boundaries,
such as in riparian corridor protection or mountain parks, the Board should
provide direction regarding the adequacy of the boundaries identified by
staff.
3. The Board should provide direction regarding what type
of jurisdictional and/or regional review and comment is desired on the draft
plan.
Policy Recommendations
4. Given the significant amount of State Trust land identified
for conservation and preservation (103,000 acres), the Board should direct
staff to file Arizona Preserve Initiative applications on the State lands
identified within riparian protection corridors and mountain parks. State
lands within these same areas would also be priority acquisitions should
Proposition 303 be successful in the November general election.
5. The Board should review the Land Use Policy modifications
suggested on pages 31, 32 and 33 of the draft plan and provide direction
to staff on implementation.
Action Recommendations
6. Direct staff to initiate an appropriate Truth in Bonding
Ordinance amendment that would delete the Arthur Pack Regional Park location
for the Northwest YMCA and Community Center as it has been determined that
natural habitat preservation in Arthur Pack Regional Park may be essential
for the Cactus Ferruginous Pygmy Owl.
7. Authorize the County Administrator to communicate with
the Chancellor of Pima Community College to indicate that the alternative
that would locate a northwest Pima Community College campus at Arthur Pack
Regional Park should be withdrawn from further consideration.
8. In light of significant human safety issues, notify
the United States Fish and Wildlife Service of the County's intent to proceed
with transportation improvements on Thornydale Road from Ina to Linda Vista,
and seek appropriate review and comment from the United States Fish and
Wildlife Service and other interested parties regarding impacts and mitigation
measures that can be taken to reduce potential disturbance and the loss
of habitat that may be associated with roadway widening. Important human
safety issues make this project unlike the decision related to the Northwest
YMCA and Pima Community College use of Arthur Pack Regional Park.
9. Pursue a cooperative agreement to enter into a federally
recognized planning process that will establish a public process open to
stakeholders, expedite development of a scope of work, and allow work to
begin on a biological assessment for the interim and long-term multi-species
habitat conservation plan.
10. Advertise in a newspaper of general circulation within
the County that Pima County is interested in receiving letters of interest
from those who would like to participate in a steering committee related
to development of a multi-species habitat conservation plan. All Federal
and State land managers in the region will be invited to participate in
the steering committee. The letters of interest received from the public,
along with recommendations related to the structure and function of the
steering committee, will be forwarded to the Board for review and approval.
11. Invite the Native American Tribes within Pima County
and all cities and towns to join in the previously referenced cooperative
agreement and provide support and funding for developing the interim, as
well as long-term, conservation plan for threatened or endangered species.
12. Actively pursue a scientific study funding request
that had previously been made to the Department of the Interior.
CHH/jj