HomeMy Public PortalAbout20000712 - Agendas Packet - Board of Directors (BOD) - 00-20 j —
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MIDPENINSULA REGIONAL OPEN SPACE DISTRICT
Meeting 00-20
SPECIAL MEETING
BOARD OF DIRECTORS
MIDPENINSULA REGIONAL OPEN SPACE DISTRICT
7:00 P.M.
Wednesday, July 12, 2000
Elks Lodge#1471
4249 El Camino Real
Palo Alto, California
NOTE SPECIAL LOCATION and TIME:
ELKS LODGE #1471, Palo Alto, CA at 7:00 P.M.
AGENDA
7:00* SPECIAL MEETING OF THE BOARD OF DIRECTORS OF THE MIDPENINSULA
REGIONAL OPEN SPACE DISTRICT
** ORAL COMMUNICATIONS - Public
ADOPTION OF AGENDA
7:05* BOARD BUSINESS
1. Final Adoption of an Amendment to the Use and Management Plans for Seven
Preserves: Foothills, La Honda Creek, Los Trancos, Picchetti Ranch, Pulgas Ridge,
Teague Hill, and Thornewood Open Space Preserves, Designating the Preserves as
Closed to Bicycle Use, Including Closure of 13.6 Miles of Existing Trails in Seven
Preserves to Mountain Bicycle Use; Final Adoption of an Amendment to the District's
Trail Use Policy to Add a Long Range Trail Use Designation Guideline Ratio of 60%
to 65% Multi-Use (Including Bicycles) and 35% to 40% Hiking or Hiking and
Equestrian Use Only; Final Adoption of an Amendment to the Trail Use Policies
Regarding Multi-Use Trails (Including Bicycles) to Provide Access to Regional Trails
Such as the Bay Area Ridge Trail; Confirm that the Recommended Actions Will Not
Have a Significant Effect on the Environment, and are Categorically Exempt from the
California Environmental Quality Act (CEQA) or Are Not a Project - R. Anderson
10:00* ADJOURNMENT
330 Distel Circle . Los Altos,CA 94022-1404 » Phone:650-691-1200
FAX:6.50-691-0485 * E-mail: mrosd@openspace.org * Web site:www.opensf)ace.org ,
Board of Directors:Pete Siemens,Mary C.Davey,Jed Cyr, Deane Little,Nonette Hanko, Betsy Crowder,Kenneth C. Nitz : General Manager:L..Craig Britton
Meeting 00-20 Page 2
Times are estimated and items may appear earlier or later than listed. Agenda is subject to
change of order.
TO ADDRESS THE BOARD: The Chair will invite public comment on agenda items at the
time each item is considered by the Board of Directors. You may address the Board
concerning other matters during Oral Communications. Each speaker will ordinarily be limited
to three minutes. Alternately, you may comment to the Board by a written communication,
which the Board appreciates.
Regional Open *ace
1
1
MIDPENINSULA REGIONAL OPEN SPACE DISTRICT
R-00-95
Meeting 00 AZO
July 12, 2000
AGENDA ITEM 1
AGENDA ITEM
Final Adoption of an Amendment to the Use and Management Plans for Seven Preserves: Foothills, La
Honda Creek, Los Trancos, Picchetti Ranch, Pulgas Ridge, Teague Hill, and Thornewood Open Space
Preserves, Designating the Preserves as Closed to Bicycle Use, Including Closure of 13.6 Miles of
Existing Trails in Six Preserves to Mountain Bicycle Use and Final Adoption of Revisions to the
District's Trail Use Policies to Add a Long Range Trail Use Designation Guideline Ratio of 60 to 65%
Multi-Use (Including Bicycles) and 35 to 40% Hiking or Hiking 4nd Equestrian Use Only
GENERAL MANAGER'S RECOMMENDATIONS -
1. Confirm that the recommended actions will not have a significant effect on the environment,
and are either categorically exempt from the California Environmental Quality Act or are not a
project.
2. Amend the Trail Use Policies regarding multi-use trails (including bicycles) to provide access to
regional trails such as the Bay Area Ridge Trail, as follows:
Section 2.5
The District will strive to provide multi-use trail access (including bicycles) to dedicated
sections of the Bay Area Ridge Trail by allowing exceptions to preserve bicycle closures for the
Ridge Trail. The District will also strive to provide multi-use trail access to regional trails
connecting urban areas to the Ridge Trail. Access to such regional connecting trails will be
evaluated on a case-by-case basis, including consideration of availability of suitable regional
trailhead staging, the access policies of adjoining agencies' trail systems, the availability of
other alternative multi-use trail connections in the same region, and completion of the CEQA
process. The District will encourage other agencies to provide Ridge Trail and regional trail
connections on the same basis.
3. Amend the Trail Use Policies as follows:
Section 3.1
As a planning tool to aid the Board and staff in determining future trail use designations, the
District will consider, along with the Trail Use Guidelines, and these Policies, a guideline
target trail use designation ratio of 60 to 65% multi-use trails (including bicycles) to 35 to 40%
hiking or hiking-and-equestrian trails (excluding bicycles). This will not be a quantitative
330 Distel Circle . Los Altos,CA 94022-1404 . Phone:650-691-1200
FAX:650-691-0485 . E-mail:mrosd®openspace.org . Web site:www.openspace.org
Board of Directors:Pete Siemens,Mary C.Davey,Jed Cyr,Deane Little,Nonette Hanko,Betsy Crowder,Kenneth C.Nitz • General Manager:L.Craig Britton
I
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R-00-95 Page 2
restriction, but a flexible planning tool to consider. Actual use designation of trails and
preserves will only be established after the Use and Management Planning Process and CEQA
process has been completed.
4. Amend the Use and Management Plans for seven preserves: Foothills, La Honda Creek, Los
Trancos, Picchetti Ranch, Pulgas Ridge, Teague Hill, and Thornewood Open Space Preserves,
designating the preserves as closed to bicycle use, including closure of 13.6 miles of existing
trails in six preserves to mountain bicycle use.
DISCUSSION
At your May 22, 2000 special meeting, you tentatively adopted the General Manager's
recommendations to amend the Trail Use Policies and the Use and Management Plans for the preserves
listed above. This was the third step in a three-step public process toward a final decision. The District
has solicited and considered the input of all user groups throughout this lengthy public participation
process.
The District's Use and Management Planning Process is, at minimum, a two-step process. In this case,
the Board's Trail Policy Committee heard initial public comments on the proposal at a hearing in Los
Altos on March 9, 2000, which was attended by approximately 200 people. Comments from the March
9 meeting and all subsequent related correspondence were forwarded to the full Board prior to the May
22 meeting. Public comments were summarized and discussed in prior reports. The May 22 special
Board meeting was attended by approximately 100 people, 44 of whom addressed the Board on the
issue of trail use designations. Of the 44, 35 opposed the proposed changes. The remaining 9 speakers
at the meeting supported the proposed changes. In accordance with the District's Use and Management
Planning Process, the Board's action on May 22, 2000 was a tentative action, allowing an opportunity
for additional comments to be made by the public.
Since the May 22, 2000 meeting, additional written correspondence concerning the issue has been
received and forwarded to the Board. At the time this report was prepared, 162 letters concerning this
issue had been received. One hundred fifty (150) letters (most of which were a "form" letter)
expressed opposition to the tentatively adopted changes, while 12 supported the Board's decision.
SUMMARY OF PUBLIC COMMENT AND RESPONSE
Comments made at or since the May 22 meeting are summarized below with staff responses. Comments
from opponents of the proposal expressed several common themes:
1. Public Comment: The District does not have enough evidence to conclude that there is a serious
trail use conflict; the evidence is not scientific or statistically significant.
District Response: The evidence of user conflict is based on several sets of data:
R-00-95 Page 3
■ A large number of bicycle accidents have occurred on District preserves, demonstrating the
inherent speed and control issues that lead to trail conflicts. Research for the May 22 report
yielded 166 solo bicycle accidents reported by field staff in the period 1996 through 1999 (six
of these involved a bicycle-to-bicycle accident).
■ A long-term history of verbal reports and complaints about conflicts with bicycles from visitors
and constituents have been received by staff. Some of these are documented in the form of
field staff incident reports of conflicts between bicycles and other trail users, or of actual
accidents caused by bicycles. The May 22 report noted that during 1996 through 1999, fifteen
such accidents were reported. Further research for this report counted 18 field reports that
noted incidents between bicyclists and other users, and that of the fifteen reported accidents, ten
actually involved injury.
■ Letters from visitors and constituents have been received complaining about incidents,
accidents, and general user conflicts with bicycles, and asking the District to take action.
Typically, these letters have been individual complaints resulting from a specific unpleasant
experience or which express long-term concerns. A review of files for the May 22 Board
report yielded 57 such letters through 1998. Additional research of District files was conducted
in responding to a request for document production received after the May 22 meeting. This
yielded an additional 46 such letters that were received since 1990, plus a petition signed by 45
people.
■ Long-term observations and experience of staff have confirmed trail use conflicts through
regular presence on the trail system, and through many years of intensive efforts to mitigate
conflicts and impacts through other means besides closures, as outlined in the May 22 report.
This experience has confirmed that the conflict is real and cannot be addressed by education and
enforcement alone, or further use of the Trail Use Guidelines and Mitigation Measures alone.
The data and experience described in this report, although substantial, does not constitute a
scientific study. However, other agencies have conducted exhaustive studies of the same issue, and
come to the same basic conclusion. For example, the State of Wisconsin Department of Natural
Resources conducted a detailed three-year study of conflicts between bicycles and other trail users
in the Kettle Moraine State Forest. This study, concluded in 1996, found the same issues and
possible solutions with respect to trail user conflict: displacement of hikers by bicyclists and a need
to provide some separation of users as part of conflict mitigation.
The evidence that trail use conflict is occurring on District lands is abundant and substantial, and
the District's responsibility to address it is unavoidable.
2. Public Comment: The proposed closures will cut off bicycle access to regional trails, such as the
Bay Area Ridge Trail, and possible connections to urban areas.
District Response: The District proposes to amend its Trail Use Policies regarding multi-use trails
(including bicycles) to clarify that access to regional trails such as the Bay Area Ridge Trail, and
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R-00-95 Page 4
major connections to the urban area, should be sought and that exceptions to preserve bicycle
closures may be made to accomplish this where appropriate. Such regional trail connections are
already supported by the District's Trail Use Guidelines and this will furthercorroborate
this intent.
The mountain bicycling group, Responsible Organized Mountain Pedalers (ROMP), requested in a
letter that the Board take action now to open sections of the Bay Area Ridge Trail on District lands
that are currently closed to bicycles, namely the 1.4-mile section of the Ridge Trail contained in
Russian Ridge Open Space Preserve, and the 3.2-mile section of the Ridge Trail in Windy Hill Open
Space Preserve. Though related to the implementation of proposed policy, this suggestion is a
separate issue that may be considered, at the Board's request, at a separate meeting, at such time as
the Use and Management Plans and CEQA process for the two affected preserves return to the
Board for review.
3. Public Comment: Los Trancos Open Space Preserve gets more bicycle use than District trail counts
indicate. The counts are out of date.
District Response: Los Trancos has more bicycle use than the other preserves proposed for
closure, although its bicycle use level is still low. Its bicycle use is significantly less than other
Skyline Area preserves, it has fewer interconnections with other trails, and it is the logical choice if
the District wants to provide a preserve in the South Skyline Area where people can go without
encountering bicycles. The trail counts were conducted from sunup to sundown on six separate days
in May and June of 1997. They provide a very accurate indication for that time period of the
percentage of preserve use, which averaged 76% hikers and 24% bicyclists. In contrast, Monte
Bello Open Space Preserve, immediately across Page Mill Road, during the few weeks prior to the
Los Trancos counts, experienced 58% hikers and 42% bicyclists.
ROMP's claim of regular rides in Los Trancos has not been evidenced in either recent or past
ROMP newsletters or in applications for ride permits, which are supposed to be filed with District
offices. Finally, regular recent staff observations of current use levels at Los Trancos corroborate
that, while use may have increased somewhat in the past three years, Los Trancos is still less used
by bicycles than other nearby preserves, and is not a high bicycle-use preserve.
4. Public Comment: San Mateo County Parks do not allow bicycles. Hikers who don't want to
encounter bicycles can go to those parks.
District's Response: District staff does let visitors know of these opportunities, and some hikers
take advantage of them. However, the District has the responsibility to manage trail use conflicts
within its own system, and the Board, following policy adopted at the District's formation, is
committed to preserving the opportunity for a tranquil nature experience on the District's trails.
5. Public Comment: Bicyclists comprise the majority of users, therefore the District should put their
interests first.
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R-00-95 Page 5
District Response: Bicyclists are a large portion of the trail user population, and clearly are in the
majority at some of the preserves that have become the most popular for bicycle users, such as El
Corte de Madera Open Space Preserve. Overall, it would be very difficult to create an accurate
estimate of the percentage of District trail users by type. From the range of data available, a rough
staff estimate is that bicyclists constitute about half the overall users. However, use decisions are
based on many factors, including numbers of users. Guiding policies, overall constituent input, the
recommendations of staff, CEQA review, and the judgments of the Board are also part of the
decision. No one type of recreational use is entitled to absolute priority over all others. The District
must balance the needs of all its user groups.
6. Public Comment: The proposal represents a significant reduction in mountain bicycle access.
District Response: The proposal constitutes closure of a total of only 13.6 miles of bicycle-
accessible trails, out of a current total of 165.3 miles of bicycle-accessible trails, which is an 8
reduction. Because the trail miles proposed for closure receive far less use on the average than
other bicycle trails, the net impact is less than if 8% of popular trails were closed. This does not
constitute a significant reduction given the magnitude and variety of remaining opportunities.
7. Public Comment: Many District mountain bicycle trails have already been closed.
District Response: For safety and environmental reasons, the District determined to close some
former logging, fire road or motorcycle trails inherited by the District and enjoyed by experienced
riders. In particular, several trail segments in El Corte de Madera (ECM), and the Moody Trail in
Kennedy-Limekiln Area of Sierra Azul were closed in recent years, upsetting some dedicated
bicyclists. However, the Moody Trail constituted just .3 mile and the total length of the ECM
closed segments was just over two miles. These closures were isolated, and did not constitute a net
reduction in trails. Over three miles of alternative routes have been constructed in ECM as
alternatives to the closed trails. During the same period new mountain bicycle-accessible trails
were built in Fremont Older and Long Ridge Open Space Preserves.
8. Public Comment: The proposed closures are just the beginning of further mountain bicycle trail
closures.
District Response: The Districts practice and intent is to continue to construct new trails to
accommodate the full range of users as it acquires and manages its lands. Several specific trail
projects are in the District's capital improvement plans over the next few years that will increase
opportunities for mountain bicyclists along with all other users. The District's Regional Open
Space Study provides a vision of a future trail system of 600 miles, compared to the current 219
miles (not including potential District trails on the San Mateo County Coast). Virtually all trails
constructed by the District are single track trails, and the District has applied its Trail Policies and
Guidelines flexibly in many cases to make its trails more enjoyable for mountain cyclists or to allow
bicycles on trails that exceed base physical standards set out in the Guidelines. Although any loss
of access is hard for bicyclists to accept, the long-term picture for mountain bicycling access on
District lands has been and will continue to be more and more trails.
R-00-95 Page 6
9. Public Comment: Since the District closes some trails to bicycles, the District should also designate
bicycle-only trails.
District Response: The District has tried to cooperate with bicyclists in planning and constructing
bicycle-oriented trails, such as in El Corte de Madera, and intends to continue to do so. However, a
basic principle of public trail access is that everyone can walk (except for people with disabilities,
for whom there are specific regulations, plans and standards for access). As popular as mountain
bicycling is, cyclists represent a portion of public user groups. The issue is that cyclists are
impacting hikers. The District desires to make its trails available to the widest possible cross-
section of users. Cyclists who state that they have disabilities that prevent them from hiking would
still have ample opportunities for access even with the proposed changes.
10. Public Comment: The District should use a system of alternate days or weekend-only closures.
District Response: The May 22 report provides a detailed explanation of why it would be virtually
impossible for District staff to inform or educate the public about alternate days or weekend-only
closures, or to enforce them. Primary reasons are the numerous points of entry for District
preserves, lack of any controlled entry stations, the low staffing levels per acre, and the wide
region from which District users, especially mountain bicyclists, are drawn.
11. Public Comment: Closing these preserves to bicycles will concentrate bicycles in other areas, thus
causing adverse impacts.
District Response: The preserves proposed for closure were specifically targeted as areas that
have minimal use levels for mountain bicycles, but are still desirable for hikers. Most hikers take
shorter loops, and thus can be better accommodated in small preserves than can mountain
bicyclists. Because the closures constitute only 13.6 miles, or 8%, of the current bicycle-
accessible trail system, are in low-use preserves, and are dispersed over a wide region, any
resulting shift of users will be negligible and would be onto trails already designated for bicycle
use. Any minor shifting of bicycle use may be offset by hikers shifting from the bicycle-accessible
areas to these no-bicycle areas. Again, these preserves are dispersed over a wide region and any
resulting shift in hiking use will be negligible.
12. Public Comment: The District has always been biased against mountain bicycling and toward
hiking. These closures, and the guideline ratio, indicate that the District intends to further reduce
mountain biking opportunities.
District Response: Please see the response to Item 8. In addition, the District's Basic Policy calls
for the preservation of opportunity for tranquil nature study. Yet the District has tried throughout
its history to accommodate the fullest possible range and level of recreational uses. The District
has tried to balance the needs of all its user groups. The District is the most bicycle-friendly
agency in the Bay Area in terms of the overall percentage and quality of trails open to mountain
bicycles, and will remain so even with the proposed closures and guideline. The policies proposed
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R-00-95 Page 7
here are the result of a desire to balance user group needs and to reduce conflicts, and are not the
result of bias.
13. Public Comment: Section 5541 of the Public Resources Code requires the District to plan, control
and operate its lands "for public recreation for use and enjoyment of all inhabitants." The proposed
action conflicts with these requirements.
District Response: The Resources Code authorizes the District to determine the proper balance of
the types of recreational use that occur on its trails, to promote a reasonable balance, and to address
conflicts. The District has the authority and responsibility to regulate trail uses and designate trails
for particular recreational uses.
14. Public Comment: Supporters of the current proposal have said that many hikers and equestrians
don't feel safe on the trails and have had negative, unpleasant, and sometimes confrontational
experiences with bicyclists on District trails. They avoid using them due to speeding, reckless,
and/or discourteous bicyclists (and in some cases have had actual incidents or accidents involving
cyclists). The District should do something to achieve a more reasonable balance between trail
uses. Supporters of the current proposal have expressed the concerns outlined by staff in this and
the prior staff reports.
STAFF ANALYSIS
Staff has reviewed and considered all the comments made by the public. Staff continues to believe that
the proposed modest trail closures, and the proposed target guideline ratio are reasonable and necessary
means of addressing the trail conflict situation for the reasons described above and in prior reports.
The currently proposed changes would bring the ratio to 69% - very close to the target ratio. The ratio
would not be accomplished by closing existing trails, but by designation of newly constructed or opened
trails in existing or new preserves, after a CEQA review and Use and Management Planning Process.
The ratio is not a quantitative restriction, but a flexible planning tool. It does not commit the District to
a definite decision as to any future preserve or trail designation at any location and does not determine
any particular outcome, nor rule out any decision as to any particular future trail or preserve
designation. Rather it is one of the planning tools available for the Board and staff to consider when
new lands are acquired and go through the planning and environmental review process to maintain a
fair and reasonable balance of trail access for all user groups.
Even if the ratio is fully implemented, the District will continue to provide more mountain bicycle
access opportunities on both single track and road width trails than any other similar land-managing
agency in the Bay Area (see Table 3 in report R-00-69). Of the thirteen similar land-managing agencies
surveyed during the course of this study, five agencies manage mountain bicycle use by limiting access
to roads, and two agencies prohibit all mountain bicycle use. Only six agencies allow mountain bicycle
use on some single-track trails. The District allows bicycle access to single track trails at a rate five
times the average of similar land-managing agencies in the Bay Area.
R-00-95 Page $
Timing
Staff recommends that the closures take effect this fall, at the time when seasonal closures on other
preserves are implemented. This will allow time to educate visitors of the changes in use, and enable
staff to implement the necessary signing changes at the affected preserves. Prior to the formal
implementation of the changes this fall, new brochures can be reprinted to reflect the changes. Samples
of the affected preserves' maps reflecting the use changes are attached to this report (see attachments).
Public Notification Process for This Meeting
A public meeting notification flyer containing a summary of the tentative action from the May 22, 2000
meeting was mailed to approximately 1,900 parties and/or agencies that had expressed interest in
related District trail use issues or in this specific issue. In addition, a notice was posted at all key
trailheads (trailheads containing a bulletin board), and on the District's web site. Copies of this report
were available for requesting parties on July 7.
CEQA COMPLIANCE
Project Description
The Midpeninsula Regional Open Space District currently manages a 219-mile system of designated
public trails in 23 open space preserves. This proposal consists of the closure of 13.6 miles of existing
trails on six preserves to mountain bicycle use. The six preserves are: Foothills, La Honda Creek, Los
Trancos, Picchetti Ranch Area, Pulgas Ridge, and Thornewood Open Space Preserves. The southern
two-thirds of La Honda Creek is closed to all uses. The upper portion contains 3.4 miles of trails. The
seventh preserve, Teague Hill, has no current bicycle access (see Exhibit 1, which indicates the affected
preserves). No change is proposed to other types of uses currently allowed on the seven preserves.
Based on these changes, the District-wide ratio of multi-use trails (including bicycles) to total trails will
change from 75% to 69%. The closure of 13.6 miles of bicycle-accessible trails, out of a current total
of 165.3 miles of bicycle-accessible trails, is an 8% reduction. However, the trails proposed for closure
are among the least popular in the District for bicycle use, and thus the net impact on users will be less
than if 8% of the typical trail system was closed.
The proposal also consists of the adoption of two amendments to the District's Trail Use Policies: 1)
approval of a guideline target ratio of 60%-65% multi-use (including bicycles) and 35%-40% hiking or
hiking-equestrian use; and 2) approval of a policy endeavoring to provide multi-use trail access
(including bicycles) to the Bay Area Ridge Trail and other regional trails.
CEQA Findings
The District has concluded that adoption of the Use and Management Plan amendments and the
amended Trail Use Policies described in this report will not have a significant effect on the
environment. Adoption of these policies is categorically exempt under Sections 15301 (Class 1), and
15061 (b) (3) of the California Environmental Quality Act (CEQA) Guidelines and does not constitute a
project under CEQA. Guidelines Section 15378 and 15352.
Class 1 categorical exemptions consist of the operation, repair, maintenance, permitting, leasing,
licensing, or minor alteration of existing public or private structures, facilities, mechanical equipment,
R-00-95 Page 9
or topographical features, involving negligible or no expansion of use beyond that existing at the time
of the lead agency's determination. Class 1 facilities include bicycle and pedestrian trails.
The proposed actions affect bicycle use on a small percentage (8%) of the District's trail system. The
trails proposed for closure are among the least popular in the District for bicycle use, and thus the net
impact on users will be less than if 8% of the typical trail system was closed. The project does not
involve any expansion of overall use or the construction of any new facilities. It is possible that a very
small percentage of bicycle use will shift to other preserves. However, this would be a negligible
expansion of the current use of the existing trails. The preserves designated for closure have low,
bicycle use currently. Any minor shifting of bicycle use may be offset by hikers shifting from bicycle-
accessible areas to the no-bicycle trails. Again, since these preserves are dispersed over a wide region,
any resulting shift would be negligible and onto trails already designated for hiking. Thus, the closures
will involve no or negligible expansion of use on the overall District trail system nor on the trails to be
closed to bicycle use.
The proposed policy changes to create a trail use designation guideline ratio of 60% to 65% multi-use
(including bicycles) and 35% to 40% hiking or hiking-and-equestrian use only does not commit the
District to any course of action, nor does it require any construction. This is not a quantitative
restriction, but rather a flexible planning tool for the Board and staff to consider when designating
future trails. Actual trail use designation will only be established after completion of CEQA review and
the Use and Management Planning Process. The proposed policy also endeavors to provide multi-use
trail access to the Bay Area Ridge Trail and other regional trails. Any trail designation or construction
project to implement these policies would be subject to CEQA review at the time of project approval by
the Board of Directors. No alterations of existing physical conditions of the land are proposed. As
new preserves or trails are built, the policy guidelines would be used as a planning tool for the Board to
consider in designating uses of such trails on a case-by-case basis subject to the CEQA review process.
The policies do not commit the District to a definite course of action as to any future preserve or trail
designation at any location. They do not determine any particular outcome nor rule out any decision as
to any particular future trail or preserve. Thus, the proposed policies do not fall within the definition of
a project under CEQA.
Further, it can be seen with great certainty that there will be no significant effect on the environment
from this action, consistent with Section 15061 (b) (3). Section 15061 (b) (3) states that "CEQA
applies only to projects which have the potential for causing a significant effect of the environment.
Where it can be seen with certainty that there is no possibility that the activity in question may have a
significant effect on the environment, the activity is not subject to CEQA." (Section 15378 and 15352.)
The purpose of the proposed action is to reduce user conflicts and thereby offer more opportunities for
the general public to experience nature without the disruption and intrusion and potential physical risk
of mountain bicycle use on the same trails, and to promote the quiet enjoyment of all user groups on
current and future trails. The action will not change the physical environment. The action will not
commit the District to construct open, any close an reserves or trails now or in the future with the
exception of the trail closures identified as part of this action. Rather it will better allocate the current
use of District trails by current user groups to provide a more positive visitor experience for all user
R-00-95 Page 10
groups, and will be a planning tool to guide allocation of user groups on new trails as they may be
constructed in the future. Based upon a consideration of the record, there is no possibility that the
action will have a significant effect on the environment.
Prepared by:
Mary de Beauvieres, Planning Consultant
Ana Ruiz, Planning Technician
Randy Anderson, Planning Manager
Contact person:
Randy Anderson, Planning Manager
Attachments:
Exhibit 1: Preserve map
Resolution
Proposed Trail Use EXHIBIT 1
Designations
PRESERVES ACRES*
1. Coal Creek 493 l,
r Raven
2. El Corte de Madera Creek 2,821 92 I Igas &"
islge
3. El Sereno 1,152
4. Fremont Older 739 F 6 0
5. Long Ridge 1,946 • • 84 Stevens Creek
Sind A )
6. Monte Bello 2,867 \ r Nature
Page Mill Area T '
7. Purisima Creek Redwoods 3,117 ' 101 237
8. Rancho San Antonio 3,635 280
9. Ravenswood 373 r r "r 16 newood 880
10. Russian Ridge 1,629 t
11. Saratoga Gap 1,090 Hill
n Y ,
12. Sierra Azul 2,918 • Footlls
(Kennedy-Urnekiln) \� C4at
j re k A
13. Sierra Azul 8,540 • 1
(Mt.Umunhum Area) O,
i,
14. Skyline Ridge 1,661 Ir
15. St.Joseph's Hill 268 g ,_, �1 Rrdg
�- (coh Are
t16. Stevens Creek 55pRi
Shoreline Nature Study Area Lprl`g �a7 85
Rrdge Saratoga
17. Windy Hill 1,307 -aa�W,
18- Foothills 211 `
19- La Honda Creek 2,056
St
20. Los Trancos 274 Opt,h's
1.21. Monte Bello 308 ql ° P
Picchetti Ranch Area Bear
22• Pulgas Ridge 293 Cr. S
23. ra A
Teague Hill 624 � � � O � `
9 lamee.,r o.
I�
24. Thornewood 154
u
25. Bear Creek Redwoods 1,065
26. Rancho de Guadalupe 1,867 17 ,
27. Sierra Azul 2,113
(Cathedral Oaks Areas)
Total 45,445 8 4 0 8 16 Miles
'Total includes 1.869 acres in miscellaneous easements.
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RESOLUTION NO. 00-45
RESOLUTION OF THE BOARD OF DIRECTORS OF THE
MIDPENINSULA REGIONAL OPEN SPACE DISTRICT ADOPTING
AMENDMENTS TO THE USE AND MANAGEMENT PLANS FOR
THE FOLLOWING PRESERVES: FOOTHILLS, LA HONDA
CREEK, LOS TRANCOS, PICCHETTI RANCH, PULGAS RIDGE,
TEAGUE HILL, AND THORNEWOOD OPEN SPACE PRESERVES;
AND ADOPTING AMENDMENTS TO THE TRAIL USE POLICIES
WHEREAS, the Board of Directors of the Midpeninsula Regional Open Space District has conducted
an extensive public notification and public participation process in order to solicit the views of all user
groups concerning District trail use issues concerning mountain bicycling; and
WHEREAS, the Board of Directors of the Midpeninsula Regional Open Space District has fully
considered the comments and observations submitted by all those who participated in the public
process, the positions and views of its various user groups, the observations and recommendations of
its staff, the staff reports, and all of the materials in the record; and
WHEREAS, the Board of Directors desires to manage, plan and operate its preserves for the enjoyment
of the public for public recreation, and, to that end, desires to manage the use of its preserve and trails
so as to promote a positive and enjoyable experience for its users, to reduce user conflicts, and to
provide for a reasonable and balanced allocation of its trail resources among its user groups; and
WHEREAS, the Board of Directors has determined that the adoption of the policies and amendments
described herein are a fair, reasonable and balanced means of achieving its statutory purposes of
promoting the recreational use and enjoyment of its land, and are necessary and convenient to the
accomplishment of these purposes; and
WHEREAS, the Board of Directors has determined that these amendments will close only 13.6 miles of j
the approximately 165.3 miles of existing District bicycle trails, will result in a modest reduction of low
bicycle use trails and preserve an abundant and wide variety of trails and trail use experiences for
bicyclists which opportunities will continue to grow in the future, while offering a modest increase in
opportunity for those users seeking a hiking experience free from bicycle intrusion; and
WHEREAS, the Board of Directors has determined that the adoption of a target guideline ratio for use
as a planning tool in designating bicycle trails as part of any future planning and CEQA review process
will help Preserve a wide van et and abundance of bic cie tr it experiences and assist in managing u ser
conflicts.
NOW, THEREFORE, IT IS HEREBY RESOLVED AS FOLLOWS:
THAT the Use and Management Plans for the following Open Space Preserves are hereby amended to
designate said preserves as closed to use by bicycles: Foothills, La Honda Creek, Los Trancos,
Picchetti Ranch, Pulgas Ridge, Teague Hill, and Thornewood Open Space Preserves. This
constitutes the closure of approximately 13.6 miles of existing trails out of the current approximately
165.3 miles of bicycle trails;
THAT the District's Trail Use Policies are hereby amended as shown on Exhibit A which is attached
hereto and incorporated herein by reference;
THAT the above described actions are categorically exempt from the California Environmental Quality
Act (CEQA) pursuant to Sections 15301 and 15061 (b) (3) of the CEQA Guidelines as set out in the
District's staff reports, and that the above described actions are not a project within the meaning of
CEQA pursuant to Sections 15378 and 15352 of the CEQA Guidelines; and
THAT prior to any future action to select a preserve or trail to designate for use by bicycles or other
user group, such action shall be subject to the District's Use and Management Planning Process and to
CEQA review.
TRAIL USE POLICIES
Adopted by Board of Directors
November 14, 1990
(Proposed changes are in italics)
PREAMBLE
One of the District's basic policy statements is that it will "follow a land management policy that
provides proper care of open space land, allowing access appropriate to the nature of the land
and consistent with ecological values." As a result of the rapidly increasing level of trail use and
the increased types of trail use, it is necessary to adopt more specific policies on trail use in order
to effectively implement this basic policy statement.
The District is concerned both with the safety of all trail users and the enjoyment of their open
space experience. The purpose for which people use open space trails varies depending on
individual or group needs. Visitors may come to observe nature in a protected environment,
experience tranquility, exercise in a non-urban setting, or any combination of these. The means
by which visitors use trails also varies—be it hiking, running, on bicycle, on horseback, or in a
wheelchair. Motorized vehicles, except electric wheelchairs are prohibited.
The combination of trail conditions, level of use, and the mix of uses may lead to conflicts.
Conflicts result in negative environment impacts, unpleasant user experiences or unsafe
situations. Conflicts are related to several factors, including:
• The relative speeds of different users.
• Existing trail conditions, such as poor line-of-sight, narrowness, steep slopes and
wide-open stretches of trail that might encourage excessive speed.
• A lack of knowledge of, or disregard for, trail use etiquette and regulations by all
types of users.
• A high concentration of use in certain areas.
This set of policies is intended as a guide in establishing trail use designations throughout the
District which will promote safe and enjoyable experiences for all who use the District lands.
These policies are not intended to restrict who may use the District trails, but they may restrict
how or under what conditions the trails are to be used.
POLICIES
1.0 The District will endeavor to provide a variety of satisfying trail use opportunities on
open space preserves throughout the District. More specifically, the District will
endeavorto:
1.1 Provide multiple use on individual trails where such use is consistent with the
balance of these policies.
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1.2 Protect the opportunity for tranquil nature study and observation, especially in
those areas identified as providing a unique wilderness experience.
2.0 The District will designate appropriate use(s) for each trail. Uses will be allowed that are
consistent with District's objectives for sound resource management and safe and
compatible use. More specifically, the District will:
2.1 Allow trail use appropriate to the nature of the land and consistent with the
protection of the natural, scenic and aesthetic values of open space.
2.2 Within budgetary and staffing constraints, make reasonable efforts to provide safe
conditions for trail users.
2.3 Evaluate trail user needs, concerns, quality of experience, impacts, and the
compatibility of various uses. Those uses creating the least conflict among trail
users and the least environmental impact will be given greatest preference in trail
use planning.
2.4 Ensure that all District trails will be accessible to hiking. When consistent with
this policy, if a non-hiking use adversely impacts user safety, the use may be
restricted or redirected. The intention is not to restrict access by any individual,
but rather to limit incompatible uses and means of travel.
2.5 The District will strive to provide multi-use trail access (including bicycles) to
dedicated sections of the Bay Area Ridge Trail by allowing exceptions to preserve
bicycle closures far the Ridge Trail. The District will also strive to provide multi-
use trail access to regional trails connecting urban areas to the Ridge Trail.
Access to such regional connecting trails will be evaluated on a case-by-case
basis, including consideration of availability of suitable regional trailhead
staging, the access policies of adjoining agencies'trail systems, the availability of
other alternative multi-use trail connections in the same region, and the
completion of the CEQA process. The District will encourage other agencies to
provide Ridge Trail and regional trail connections on the same basis.
3.0 The Board of Directors will adopt qualitative and quantitative trail use guidelines to aid
the Board and staff in determining trail use designations in the implementation of these
policies.
3.1 As a planning tool to aid the Board and staff in determining future trail use
designations, the District will consider, along with the Trial Use Guidelines, and
these Policies, a guideline target trail use designation ration of 60%to 65%
multi-use trails (including bicycles) to 35%to 40%hiking or hiking-and
equestrian trails (excluding bicycles). This will not be a quantitative restriction,
4 ( g
but a flexible planning tool to consider. Actual use designation of trails and
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preserves will only be established after the Use and Management Planning
Process and CEQA process has been completed.
4.0 Specific trail use designations will be established and reviewed periodically through the
Use and Management Planning Process, and will be subject to adopted Public
Notification Procedures. Trail use designations may change if use patterns develop that
are in conflict with these policies.
4.1 In extreme cases where there is not sufficient time to comply with the Use and
Management Planning Process,the Board of Directors or General Manager may
make an interim decision to limit use while providing an evaluation process and
timeline for final determination of the designated use.
5.0 The District will endeavor to provide trail access for a variety of physical capabilities and
user needs (including persons with physical limitations) in a manner consistent with
resource protection goals,budgetary constraints, and state and federal regulations.
6.0 The District will carry out management programs necessary for the implementation of
these trail use policies. The designation of appropriate trail use as a method of
minimizing trail use conflicts and environmental impacts will require a significant
increase in trail use measures such as education,physical improvements to trails and
enforcement of trail use regulations. More specifically the District will:
6.1 Support trail use actions with a strong educational program. The District
recognizes that education in proper trail etiquette and low impact use is a key
measure towards the reduction of negative trail use impacts.
6.2 Monitor trail use conditions on a regular basis. The purpose of a monitoring
program will be to evaluate current conditions and to determine whether or not
trail management programs, including maintenance, reconstruction, education and
use regulations are effective in addressing user conflicts and environmental
impacts, and to recommend changes if necessary.
6.3 Include implementation costs in determining the feasibility of trail use
designations and regulations.
7.0 The District will work with other agencies, interest groups and private landowners in an
effort to promote an interconnecting trail system throughout the region. The District
recognizes that connections should be compatible with other jurisdiction designations
and land owner objectives as well as these policies and trail use guidelines.
8.0 The District recognizes that existing trail use characteristics such as the types of use,
conflicts, and impacts may change over time so that certain policies may no longer be
appropriate or a new policy may be required. Hence, these policies will be subject to
review and revision as deemed necessary by the Board of Directors, following adopted
Public Notification Procedures.
EXHIBIT A
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