00 Introduction April 2021 Clean

INTRODUCTION

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This Butte County General Plan Setting and Trends document, encompassed by the 19 chapters following this introduction, provides an overview of existing physical, environmental, economic, and other conditions in the unincorporated parts of Butte County, as of early 2021. This document is intended to serve as a comprehensive reference and resource for community members, policymakers, staff, and the consultant team throughout the update to the Butte County General Plan. The General Plan update is a two-year process aimed at addressing the latest legislative requirements and significant changes to the needs and opportunities present in Butte County following the Oroville Dam Crisis, Camp Fire, North Complex Fire, and the passing of 10 years since the 2030 General Plan was adopted. The update will extend the horizon year of the General Plan to 2040 and will guide local development over the next two decades. This Setting and Trends document provides information about existing conditions in the county and provides information to support the existing setting for the Environmental Impact Report, which will investigate the potential impacts from implementing the General Plan policy changes on the physical environment. This chapter serves to:

Introduce Butte County, including its regional setting and boundaries;

Explain why the County is pursuing this update to the General Plan;

Provide an overview of this Setting and Trends document, including its structure and contents, as well as the process by which it was developed; and

Provide an introduction to the General Plan, including its basis in State of California planning law and its required contents and structure.

A. Butte County This section provides a brief overview of Butte County’s regional location, political boundaries, and principal characteristics in terms of topography and land use. More detailed information on these aspects is provided in the various chapters that follow.

B U T T E C O U N T Y G E N E R A L P L A N

S E T T I N G A N D T R E N D S

I N T R O D U C T I O N

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1. Regional Setting Figure i-1 shows Butte County’s regional setting. Butte County lies in north central California at the northern end of the Sacramento Valley, approximately 150 miles northeast of San Francisco and 70 miles north of Sacramento. Highways 70 and 99, which extend in a north to south direction through the county, define the principal transportation corridors connecting the county to the region. Highways 32 and 162 provide sub-regional connections to areas to the west of the county and to Interstate 5. 2. County Boundaries, Communities and Land Use Butte County is in the northeastern part of the Sacramento Valley and extends into the Northern Sierra Nevada foothills and mountains that rise to the east of the Sacramento Valley floor. Its boundaries were first established in 1850 as part of the original partition of California into 27 counties. In 1856, the county’s boundaries were redrawn to their current configuration. Elevations range from approximately 60 feet in the southwest corner of the County, adjacent to the Sacramento River, to 8,100 feet in the northeast corner, near Butte Meadows. The total land area of Butte County is approximately 1,680 square miles (1,073,000 acres)1 and can be divided into three general topographical areas: a valley area, a foothill region east of the valley area, and a mountain region east of the foothills. These topographic areas comprise approximately 45 percent, 23 percent, and 31 percent, respectively, of the county’s land.

1 Butte County Geographic Information Systems, November 21, 2006.

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Source: PlaceWorks, Butte County General Plan 2030 Setting & Trends Report, 2007.

Figure I-1Regional Location

B U T T E C O U N T Y G E N E R A L P L A N U P D A T ES E T T I N G A N D T R E N D S





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Butte County is bounded on the west by Glenn and Colusa Counties, with the Sacramento River and Butte Creek forming portions of the westerly boundary. To the north and northwest, the county adjoins Tehama County; to the east, Plumas County; and on the south and southeast, Sutter and Yuba Counties. The South Fork of Honcut Creek forms the southeast boundary with Yuba County. Aside from the lines of demarcation created by the Sacramento River, Butte Creek, and Honcut Creek, the county’s boundaries do not reflect natural features or changes in landscape character. From major entries in the south and north, the Butte County line is strictly a legal boundary and does not reflect any change in physical character from the adjoining county. Figure i-2 displays the Planning Area for the Butte County General Plan. The county includes five incorporated municipalities (Chico, Oroville, Paradise, Gridley, and Biggs) and numerous small unincorporated rural communities. The U.S. Forest Service is a major landowner in Butte County with holdings in Plumas National Forest and Lassen National Forest totaling 134,840 acres of federally owned National Forest Land.2 The U.S. Bureau of Land Management owns 15,590 acres, mostly consisting of scattered foothill lands.3 Combined, these two federal agencies own and control 14 percent of the land area in Butte County.

2 Butte County GIS, 2021; PlaceWorks, 2021. 3 Butte County GIS, 2021; PlaceWorks, 2021.

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Gridley

Paradise

Oroville

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FIGURE I-2

PLANNING AREA

Source: Butte County, 2012; PlaceWorks, 2021.

INTRODUCTION

SETTING AND TRENDSBUTTE COUNTY GENERAL PLAN UPDATE

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Urban land constitutes a proportionally small share of total land area in Butte County. In 2016, the most recent year that the Statewide Farmland Mapping and Monitoring Program has data for Butte County, urban land uses occupied 72.9 square miles or 4.3 percent of all county land.4 In 2021, incorporated areas of the county accounted for 3.7 percent of all county land.5 B. Why Update the General Plan Now? General Plan 2030, adopted in 2010, was designed to serve as a guiding document for the county’s development through the year 2030. However, since the General Plan was prepared, Butte County has endured major events that have substantially changed and affected its communities, most notably the Oroville Dam Crisis in 2017, the 2018 Camp Fire, and the 2020 North Complex Fire. The Oroville Dam Crisis in February 2017 involved the emergency evacuation of more than 180,000 people. It resulted from damage to the main and emergency spillways of the Oroville Dam, which created the potential for uncontrolled and life-threatening water flows to the low-lying areas downstream in Butte, Yuba, and Sutter Counties.6 Less than two years later, in November 2018, Butte County suffered the deadliest and most destructive wildfire in California’s history, when faulty transmission lines above Poe Dam, near Pulga in unincorporated Butte County, sparked from high winds, igniting a fire that quickly spread down into the developed unincorporated communities of Butte Creek Canyon, Concow, Magalia, Upper Ridge, and the Town of Paradise. The Camp Fire resulted in the death of 87 people, 3 CAL FIRE firefighters, and 84 residents; the destruction of 14,500 structures, including 13,696 single-family homes and 276 multifamily structures; and damage to another 589 structures.7 Before communities could fully recover and rebuild, in August 2020,

4 Butte County, 2021; PlaceWorks, 2021; Statewide Farmland Mapping and

Monitoring Program, 2016. 5 Butte County GIS, 2021; PlaceWorks, 2021 6 Association of State Dam Safety Officials, Case Study: Oroville Dam (California

2017), accessed February 20, 2021, https://damfailures.org/case-study/oroville-dam-california-2017/.

7 Butte County District Attorney, The Camp Fire Public Report: A Summary of the Camp Fire Investigation, June 16, 2020, https://www.buttecounty.net/Portals/30/CFReport/PGE-THE-CAMP-FIRE-PUBLIC-REPORT.pdf?ver=2020-06-15-190515-977.




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the North Complex Fire was sparked during a lightning storm. The North Complex Fire ravaged the southeast portion of the county and caused the death of 16 people and destroyed 2,445 additional structures, primarily in the Berry Creek and Feather Falls communities.8 All three of these events were caused, in part, by environmental conditions—heavy rainfalls and wildfire conditions (including prolonged drought, extreme heat, and high winds)—which are anticipated to increase in frequency and intensity because of climate change. In addition, these events painfully illustrated the importance of advance planning to minimize the threat of hazards and impacts when such events do occur. Climate adaptation and resilience will be a key focus of General Plan 2040, which will include a comprehensive update to the Health and Safety Element. The impact of the fires on the region’s housing supply comes at a time when the entire state is facing a housing crisis. The update to the County’s Housing Element will address new challenges to accommodate Butte County’s projected housing need while considering what locations are appropriate for housing and at what density to ensure adequate supply and affordability. These major events are driving the update to the General Plan, but the update will not be limited to hazards, climate adaptation, and housing. It will also take the opportunity to promote environmental justice and address other new State of California requirements, described in more detail in Section D, The General Plan. This update is a proactive and calculated action of Butte County staff and elected leadership to ensure that Butte County continues to make progress toward the community’s vision for its future, as described in the General Plan: The General Plan envisions and supports a Butte County where:

Urban development will be primarily centralized within and adjacent to the existing municipal limits and larger unincorporated communities. Urban development will have efficient, reliable public facilities and infrastructure. Employment centers and a range of services will be located near residential areas so that people spend less time in their cars. Residential communities will be walkable, bicycle facilities will be provided, and there will be access to public transit.

8 U.S. Forest Service, Plumas National Forest, North Complex Fire Update,

December 4, 2020, https://inciweb.nwcg.gov/incident/6997/.




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Small unincorporated areas will be well-planned through community-driven planning processes so that community character is preserved and adequate public services and facilities are provided. Rural residential development will be limited and will strive to be compatible with agricultural and environmental uses and will address wildfire risks and public service needs.

Agriculture and open space will continue to dominate Butte County’s landscape and be an important part of the County’s culture and economy. Existing agricultural areas will be maintained and an array of agricultural services will support agriculture while providing new jobs to Butte County residents.

At the same time, new and innovative high-technology businesses will be located in Butte County, including green business and industry, attracted in part to the natural and urban environment of the county and in part to the opportunities for partnerships with Butte County’s educational institutions. Butte County’s residents will have a choice of housing types to best suit their individual lifestyles.

County youth will have safe places to socialize, job and volunteer opportunities, and access to higher education and support services. They will be able to safely walk, bike, or take transit to school, and recreational programs will fulfill their after-school needs.

Butte County will have safe, clean water for agriculture, residents, and businesses. Water resources will be protected through proper planning and regulation, as well as continued research and monitoring by Butte County and its partners in watershed planning.

Wildlife and native plants will survive and thrive in healthy ecosystems. Sensitive natural resources, including deer herd migration areas, will be protected, and Butte County will continue to coordinate with the Butte Regional Habitat Conservation Plan and Natural Community Conservation Plan. Residents of and visitors to Butte County will be able to enjoy the area’s wealth of natural beauty, recreational opportunities, and amenities.

And, finally, as the cumulative result of the efforts, Butte County’s residents will have access to healthy living and lifestyle options. Through implementation of this General Plan, Butte County in 2040 will be an economically and environmentally sustainable community, the residents of which will enjoy a high quality of life, as did their forebears.




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C. Setting and Trends Structure and Contents This General Plan Setting and Trends document consists of this introduction, followed by 19 chapters that describe the regulatory setting and existing conditions within the county for the following subject areas:

1. Land Use 2. Population 3. Economics 4. Environmental Justice 5. Transportation and Circulation 6. Wastewater and Solid Waste 7. Public Services 8. Recreation 9. Cultural Resources 10. Scenic Resources 11. Mineral Resources 12. Water Resources 13. Biological Resources 14. Energy 15. Air Quality 16. Noise 17. Hazards and Safety 18. Agriculture 19. Greenhouse Gas Emissions

This document is based on a number of sources, and reflects, to the extent possible, current information as of early 2021. It is an update of the Setting and Trends document prepared in 2007 to inform the development of General Plan 2030. The original document incorporated and built upon previous reports, including the Butte County General Plan Draft Background Report, written in March 1993; the Master Environmental Assessment of 1996; the Unpublished Butte County General Plan Technical Background Report, written in 1998-1999; and the Background Report, written in 2005. D. The General Plan Butte County’s General Plan is the legal document that serves as the county’s “blueprint” or “constitution” for land use and development. State law requires every city and county in California to adopt and maintain a General Plan that is




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comprehensive and long-term. The plans must outline proposals for the physical development of the county or city and any land outside its boundaries which in the planning agency’s judgment bears relation to its planning.9 General Plans must be comprehensive both in their geographic coverage and in the range of subjects they cover. General Plans must also be long-term in perspective. General Plan time horizons vary but typically range anywhere from 15 to 25 years into the future; this General Plan update will extend the horizon year of the Butte County General Plan to 2040. Every General Plan in California must address at least eight topics or “elements.” The importance of each of the required topics will, of course, vary from community to county. Following are brief descriptions of what California law requires be addressed in each of the eight elements:

1. The Land Use Element designates the general distribution and intensity of all uses of the land in the county. This includes residential uses, commercial uses, industrial uses, public facilities, and open space, among others.

2. The Circulation Element identifies the general location and extent of existing and proposed major transportation facilities, including major roadways, rail and transit, and airports.

3. The Housing Element assesses current and projected housing needs and sets out policies and proposals for the improvement of housing and the provision of adequate sites for housing to meet the needs of all economic segments of the community.

4. The Conservation Element addresses the conservation, development and use of natural resources including water, forests, soils, rivers, and mineral deposits.

5. Overlapping the Conservation and Safety Elements, the Open Space Element details plans and measures for preserving open space for the enhancement, promotion, and protection of natural resources, such as wildlife habitat; the managed production of resources, such as agricultural and timber land; outdoor recreation, such as parks, trails, and scenic vistas; and public health and safety, such as areas subject to geologic hazards, flooding, and fires.

6. The Noise Element identifies and appraises noise problems and includes policies to protect the community from excessive noise.

9 California Government Code Section 65300 et seq.




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7. The Safety Element establishes policies and programs to protect the community from risks associated with seismic, geologic, flood, and wildfire hazards and must also address climate adaptation and resiliency strategies.

8. The Environmental Justice Element addresses the topics of pollution exposure and equitable access to resources and opportunities to advance environmental justice. The requirement for an environmental justice element is relatively new, stemming from Senate Bill (SB) 1000, which was enacted in 2016. Environmental justice means the fair treatment of people of all races, cultures, and incomes in decisions about land use and other environmental regulations so that no communities are disproportionately burdened by pollution.

While the General Plan is required to include these elements, State law allows communities to determine the most appropriate structure and format for their General Plan. For example, many communities choose to combine the Open Space and Conservation Elements into a single element, due to the many commonalities between the topics addressed in them—this is what Butte County had done in General Plan 2030. The General Plan may also address additional topics that the county feels are relevant to its development, such as agriculture, economic development, historic preservation, and urban design. General Plan 2030 contains 10 elements: Land Use, Housing, Economic Development, Agriculture, Water Resources, Circulation, Conservation and Open Space, Health and Safety (which includes noise), Public Facilities and Services, and Area and Neighborhood Plans. General Plan 2040 will retain these elements and add an Environmental Justice Element. In addition to adding the new Environmental Justice Element, the updates will focus primarily on the following elements, although all elements will be reviewed for internal consistency: Land Use, Housing, Circulation, Health and Safety, and Water Resources. For each mandated or optional issue addressed, the General Plan must do the following:

Describe the nature and significance of the issue in the county (Background Information).

Set out policy in text and maps for how the jurisdiction will respond to the issue (Policies).

Outline specific programs for implementing policies (Actions).




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No General Plan element is deemed more important than another; all carry equal weight. While, as noted above, the format and structure of the General Plan is left to local discretion, all substantive parts of the plan must be consistent with one another (i.e., internally or “horizontally consistent”). For instance, the policies in the land use element must be consistent with those of the housing element and vice versa. State law also requires subsequent documents drafted to implement the General’s Plan’s objectives to be consistent with the plan. This “vertical consistency” extends to community and specific planning efforts and General Plan implementation through County ordinances.

00 Introduction April 2021 Clean

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