BILL ANALYSIS                                                                                                                                                                                                    Ó




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          |SENATE RULES COMMITTEE            |                        SB 317|
          |Office of Senate Floor Analyses   |                              |
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                                    THIRD READING


          Bill No:  SB 317
          Author:   De León (D), et al.
          Amended:  5/5/15  
          Vote:     27 - Urgency

           SENATE NATURAL RES. & WATER COMMITTEE:  7-1, 4/28/15
           AYES:  Pavley, Allen, Hertzberg, Hueso, Jackson, Monning, Wolk
           NOES:  Stone
           NO VOTE RECORDED:  Vidak

           SENATE GOVERNANCE & FIN. COMMITTEE:  5-1, 5/6/15
           AYES:  Hertzberg, Beall, Hernandez, Lara, Pavley
           NOES:  Moorlach
           NO VOTE RECORDED:  Nguyen

           SENATE APPROPRIATIONS COMMITTEE:  5-1, 5/28/15
           AYES:  Lara, Beall, Hill, Leyva, Mendoza
           NOES:  Nielsen
           NO VOTE RECORDED:  Bates

           SUBJECT:   The Safe Neighborhood Parks, Rivers, and Coastal  
                     Protection Bond Act of 2016


          SOURCE:    Author


          DIGEST:  This bill enacts the Safe Neighborhood Parks, Rivers,  
          and Coastal Protection Bond Act of 2016 which, if approved by  
          the voters at the November 8, 2016 general election, authorizes  
          the sale of general obligation bonds to benefit state and local  
          parks in the amount of $2.45 billion.


          ANALYSIS:   Existing law (Government Code §16727) provides that  








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          general obligation bonds are to be used for capital purposes.  
          This provision aims to ensure that the benefits of a project at  
          least roughly match the period during which the bond must be  
          repaid. Bonds are best used for large, discrete capital projects  
          that would ordinarily not be able to be supported by ongoing  
          funding mechanisms and that meet a need over several decades.  
          Using bond funds to pay for operations and maintenance or for  
          short-lived projects in essence dramatically increases the cost  
          of that project compared to using non-bond funds.

          This bill is divided into four areas of emphasis: 

          1)Parks ($1.45 billion)

             a)   $800 million to the Department of Parks and Recreation  
               (DPR) for the creation of neighborhood parks in park poor  
               communities; 

             b)   $200 million to DPR for local park rehabilitation,  
               allocated on a per capita basis;

             c)   $200 million to DPR for restoration, preservation and  
               protection of regional parks;

             d)   $200 million to DPR for the restoration and preservation  
               of existing state parks; and

             e)   $50 million to DPR for revenue generation activities at  
               state parks. 

          2)Rivers, Lakes, and Streams ($370 million)

             a)   $100 million to the Natural Resources Agency for the  
               protection, restoration, and development of river parkways;

             b)   $100 million for implementation of the Lake Tahoe  
               Environmental Improvement Program;

             c)   $100 million for protection, restoration, and  
               development of Los Angeles River parkway projects;

             d)   $50 million for the Salton Sea Restoration Fund; and








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             e)   $20 million for urban stream restoration.

          3)Coast and Ocean Protection ($350 million) 

             a)   $300 million to the Coastal Conservancy for protection  
               of beaches, bays and coastal watersheds, including  
               protection of coastal agricultural land and California  
               Coastal Trail projects; and

             b)   $50 million to the Santa Monica Mountains Conservancy  
               for the protection of coastal watersheds of the Santa  
               Monica Mountains.  

          4)Climate Resilience ($280 million)

             a)   $100 million to the Strategic Growth Council for the  
               development or implementation of regional or local  
               greenprints or climate adaptation plans and for the  
               protection of open space and agricultural resources;

             b)   $150 million to the Wildlife Conservation Board for the  
               protection and expansion of wildlife corridors; and

             c)   $30 million for the Department of Forestry and Fire  
               Protection for urban forestry grants.

          In its general provisions, the following criteria will apply to  
          all grants made with bond funds: 

          1)All funds will be required to promote the state's planning  
            priorities and the sustainable communities strategies. 

          2)The wildlife conservation objectives would occur on public  
            lands or through voluntary projects on private lands. 

          3)Priority would be given to wildlife and habitat projects that  
            implement natural community conservation plans or endangered  
            species recovery plans. 

          4)Restoration projects would include the planning, monitoring,  
            and reporting necessary to ensure successful implementation of  








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            the project objectives. 

          Further explanation of the four major funding categories: 

          1)Parks. The largest single funding source in the proposed bond  
            is for the creation and expansion of safe neighborhood parks  
            in park-poor neighborhoods pursuant to AB 31 (De Leon, Chapter  
            623, Statutes of 2008) that is called "The Statewide Park  
            Development and Community Revitalization Act of 2008." 

            Although it does not have a dedicated funding source, AB 31  
            was major legislation that highlighted the need for new and  
            expanded local parks in critically underserved communities.  
            This need was recently re-emphasized by the Parks Forward  
            Commission final report. These communities are defined as  
            communities with less than three acres of usable parkland per  
            1,000 residents or a disadvantaged community which is defined  
            in Section 75005(g) of the Public Resources Code as a  
            community with a median household income less than 80% of the  
            statewide average.  

            Eligible entities that could receive grants under AB 31  
            include local governments, regional parks district, local  
            recreation and parks districts, joint powers authorities,  
            community service districts, nonprofit organizations, and  
            others. 

            Grants could be used to establish places for organized team  
            sports, outdoor recreation, nonmotorized trails, permanent  
            play structures, landscaping, community gardens, and many  
            other activities including activities tailored for youth,  
            seniors, and other population groups.  

            Grants would be awarded on a competitive basis. Joint  
            partnership projects between two or more agencies (including  
            school districts, nonprofits, and local governments) would be  
            encouraged. DPR is authorized to provide technical assistance  
            to grant applicants, which is important to communities that do  
            not have professional staff savvy in the ways of grant  
            applications. 

            Projects would also be designed to provide for efficient use  








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            of water, including storm water capture and reuse, reduced  
            uses of pesticides and fertilizers, permeable surfaces, and  
            uses of recycled materials. 

            This section of the bond will also fund a $200 million per  
            capita grants program for which all local governments may  
            apply for purposes of local park rehabilitation and  
            improvements. 

            It will also fund $200 million in grants for restoration,  
            preservation, and protection of regional parks, including  
            state parks that are operated by and managed by regional or  
            local entities. 

            DPR will receive $200 million for its deferred maintenance  
            projects that will "increase public access and to protect  
            natural resources." 

            Lastly, this article of the bond provides $50 million to DPR  
            for its enterprise activities that increase revenue generation  
            in state parks. This is also a key recommendation of the  
            recent Parks Forward Commission and builds on earlier  
            legislation that created the revenue generation program at  
            DPR. 

          2)Article 5 of the proposed bond will fund categories related to  
            rivers, lakes, and streams. The Natural Resources Agency will  
            receive $100 million for grants for the river parkways  
            program. The California Tahoe Conservancy will receive $100  
            million for California's partial fulfillment of its share of  
            the Lake Tahoe Environmental Improvement Program. (Nevada  
            recently fully funded its share in its current legislative  
            session.) The protection and restoration of the LA River will  
            receive $100 million to complement the aggressive plans of the  
            affected local governments in that region. The final two  
            categories in this article are $50 million for assisting with  
            the state's statutory obligations as the Salton Sea, and $20  
            million for urban stream restoration grants pursuant to  
            Section 7048 of the Water Code. 

          3)Article 6 of the proposed bond will allocate $300 million for  
            coast and ocean protection projects at the State Coastal  








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            Conservancy, with the provisos that this funding include  
            projects to protect coastal agricultural resources as well as  
            projects to complete the California Coastal Trail. The  
            existing statute requires the Conservancy to focus its  
            conservation efforts on agricultural lands threatened by  
            development. Additionally, $50 million will be allocated to  
            the Santa Monica Mountains Conservancy for the protection of  
            coastal watersheds of the Santa Monica Mountains. 

          4)The article entitled "Climate Resilience" will allocate $100  
            million to the Strategic Growth Council for a wide variety  
            projects that will reduce vulnerability to climate change  
            across the state's water, forest, and agricultural resources.  
            These funds could also be used to develop local greenprints  
            which are defined as those plans for providing parks,  
            greenspace, and urban forestry within an urbanized area to  
            enhance climate resilience, improve public health, and protect  
            open-space lands around a developed area to support an adopted  
            sustainable communities strategy. The Wildlife Conservation  
            Board will receive $150 million for protecting and expanding  
            wildlife corridors, for climate adaptation projects, and for  
            projects to protect and improve existing open space corridors  
            and trail linkages related to utility or transportation  
            infrastructure that provides habitat connectivity and public  
            access or trails. Finally, $30 million will go to the  
            Department of Forestry and Fire Protection for urban forestry  
            projects that are not eligible for funding from the Greenhouse  
            Gas Reduction Fund. 

            The final provisions of the bond contain the procedural  
            requirements that apply to the State Treasurer who will sell  
            these general obligation bonds, establish the committee that  
            will determine whether or not it is necessary or desirable to  
            issue bonds, and other fiscal provisions.

          FISCAL EFFECT:   Appropriation:    No          Fiscal  
          Com.:YesLocal:   No

          According to the Senate Appropriations Committee, there are  
          estimated annual costs of $159 million for 30 years to the  
          General Fund for a total of $4.781 billion in current dollars.









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          SUPPORT:   (Verified5/29/15)


          Amigos de Bolsa Chica
          Amigos de los Rios
          Anahuak Youth Sports Association
          Anderson Marsh Interpretive Association
          Anza-Borrego Foundation
          Association of California Water Agencies
          Audubon California
          Bear Yuba Land Trust
          Benicia State Parks Association
          Benicia Tree Foundation
          Big Sur Land Trust
          Bolsa Chica Land Trust
          California Association of Local Conservation Corps
          California Association of Park and Recreation Commissioners and  
          Board Members
          California Association of Recreation and Park Districts
          California Climate and Agriculture Network
          California Council of Land Trusts
          California League of Conservation Voters
          California League of Parks Associations
          California Park and Recreation Society
          California ReLeaf
          California State Parks Foundation
          California State Railroad Museum Foundation
          California Tahoe Alliance
          California Trout
          California Urban Forests Council
          California Yacht Brokers Association
          Californians for Western Wilderness
          Canopy
          Carbon Cycle Institute
          Central Coast Lighthouse Keepers
          Chino Hills State Park interpretive Association
          City of Benicia
          City of Encinitas
          Clean Water Action
          Common Vision
          Community Services Employment Training








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          Conejo Recreation and Park District
          Counties of Kern
          County of Placer
          County of Santa Clara
          Crystal Cove Alliance
          Defenders of Wildlife
          Ducks Unlimited
          East Bay Regional Park District
          Eco Farm
          Empire Mine Park Association
          Environment California
          Environmental Defense Fund
          Environmental Justice Coalition for Water
          Fiesta de Reyes
          Fort Tejon Historical Association
          Friends of Balboa Park
          Friends of China Camp
          Friends of Lakes Folsom and Natoma
          Friends of Mt. Tam
          Friends of Palomar State Park
          Friends of Pico State Park
          Friends of Santa Cruz State Parks
          Friends of Sutter's Fort
          Friends of the Folsom Powerhouse Association
          Friends of the Urban Forest
          Hills for Everyone
          Hollywood Beautification Team
          Humboldt Redwoods Interpretive Association
          Huntington Beach Tree Society
          John Marsh Historic Trust
          Just one Tree
          Keep Eureka Beautiful
          Koreatown Youth and Community Center
          Land Trust of Santa Cruz County
          Latino Outdoors
          Los Angeles Conservation Corps
          Malibu Creek Docents
          Marin Agricultural Land Trust
          Marina Recreation Association
          Mendocino Woodlands Camp Association
          Midpeninsula Regional Open Space District
          Mojave River Natural History Association








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          Mono Lake Committee
          Mountains Recreation and Conservation Authority
          Napa County Regional Park and Open Space District
          National Marine Manufacturers Association
          National Parks Conservation Association
          National Trust for Historic Preservation
          Natural Resources Defense Council
          Nature Conservancy
          North East Trees
          Occidental Arts and Ecology Center
          Our City Forest
          OutDoor Afro
          Outdoor Outreach
          Pacific Forest Trust
          Palos Verdes South Bay Audubon
          Paradise Recreation and Park District
          Peninsula Open Space Trust
          Pine Ridge Association
          Placer Land Trust
          Plumas-Eureka State Park Association
          Point Cabrillo Lightkeepers Association
          Poppy Reserve/Mojave Desert Interpretive Association
          Portola and Castle Rock Foundation
          Richmond Trees
          Roseville Urban Forest Foundation
          Sacramento Tree Foundation
          San Francisco Parks Alliance
          San Francisco Recreation and Park District
          Santa Ana River Trail and Parkway Partnership
          Santa Clara Valley Open Space Authority
          Save Our Forest
          Save Our Shores
          Save the Bay
          Save the Redwoods League
          Sea and Desert Interpretive Association
          Sequoia Riverlands Trust
          Shasta historical Society
          Sierra Business Council
          Sierra Club California
          Sierra Foothill Conservancy
          Sierra State Parks Foundation
          Solano Advocates Green Environments








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          Sonoma County Regional Parks
          Sonoma County Trails Council
          Sonoma Ecology Center
          Sonoma Land Trust
          South Yuba River Citizens League
          Southern California Mountains Foundation
          Sports Leisure Vacations, LLC
          State Park Partners Coalition
          Stewards of the Coast and Redwoods
          Sustainable Tahoe
          Tahoe Resource Conservation District
          Team Sugarloaf
          The Malibu Adamson House Foundation
          The Trust for Public Land
          Topanga Canyon Docents
          Torrey Pines Association
          Tree Davis
          Tree Foundation of Kern
          Tree Fresno
          Tree Lodi
          Tree Musketeers
          Tree Partners Foundation
          Tree People
          Tree San Deigo
          Trout Unlimited
          Truckee Donner Land Trust
          Urban Conservation Corps of the Inland Empire
          Urban ReLeaf
          Urban Tree Foundation
          Valley of the Moon Observatory Association
          Victoria Avenue Forever
          Waddell Creek Association
          Watershed Conservation Authority
          West Hollywood Tree Preservation Society
          West Marine Environmental Action Committee
          Western Chapter, international Society of Aboriculture
          Western Region, Rail-to-Trails Conservancy
          Will Rogers Ranch Foundation
          Woodland Tree Foundation
          Worldwide Boaters Safety Group
          Your Children's Trees









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          OPPOSITION:   (Verified5/29/15)


          None received


          ARGUMENTS IN SUPPORT:     The very large list of supporters  
          attests to the popularity of this proposed bond. Several large  
          coalitions and many other single organizations are in support of  
          this bill. 


          There is widespread support for the focus on park-poor  
          communities that is the centerpiece of this bond. There is also  
          widespread support for the per capita program (which many wish  
          to see an increase in funding), as well as the deferred  
          maintenance projects at the DPR. Another area of the bond  
          receiving significant mention in these letters are the programs  
          to support working landscapes, the funding of the state  
          conservancies, and the restoration of the Salton Sea. 


          Environmental Defense Fund supports the use of habitat exchanges  
          through which private landowners are compensated for making  
          measurable improvements to critical habitats while preserving  
          agricultural production and viability. 


          The Nature Conservancy supports the bond and encourages the  
          author to consider additional funding for the upper watersheds  
          in the Sierra Nevada. Several other organizations share this  
          concern and are identified as such in the list of supporters. 


          Other supporters suggested more funding for DPR, although many  
          letters were received prior the amendments that provided the  
          department $200 million for deferred maintenance and $50 million  
          for its enterprise activities.
           










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          Prepared by: William Craven / N.R. & W. / (916) 651-4116
          5/31/15 9:23:32


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