Exhibit A

CEQA FINDINGS OF FACT

And

STATEMENT OF OVERRIDING CONSIDERATIONS

OF THE BOARD OF SUPERVISORS

OF RIVERSIDE COUNTY

For the

2003 RIVERSIDE COUNTY GENERAL PLAN

October 7, 2003

I.
INTRODUCTION

In 2020, Riverside County will be home to approximately 2.8 million people, who will occupy approximately 918,000 dwelling units. This represents a doubling of the present population and housing stock of Riverside County. It is projected that Riverside County will continue to grow to 3.5 million people by 2030, and to 4.5 million people by 2040. These residents will be located within 24 incorporated cities, as well as within numerous unincorporated areas. (Draft Environmental Impact Report ("DEIR"), pp. 1-1, 3-1.) The challenge of balancing the housing, transportation, and economic needs of existing and future populations with limited natural resources and the sensitivity of the natural environment required Riverside County to develop the Riverside County Integrated Plan (RCIP), which consists of three coordinated plans to determine future planning, transportation, and conservation needs for Riverside County. These plans include the 2003 Riverside County General Plan, the Western Riverside County Multiple Species Habitat Conservation Plan (MSHCP), and the Community Environmental and Transportation Acceptability Program (CETAP). (DEIR, p. 3-1.)

The MSHCP involves the assembly and management of a reserve system for the conservation of natural habitats and their constituent wildlife populations. The MSHCP establishes a framework for complying with State and federal endangered species regulations, while accommodating future growth within the cities and unincorporated portions of western Riverside County. Thus, unlike the proposed General Plan, the MSHCP covers only the western portion of the County, and covers not only unincorporated areas, but cities as well. (DEIR, p. 3-6.) The CETAP component of RCIP identifies transportation corridors to meet the future transportation needs of Riverside County. CETAP is a multi-modal planning effort that considers highway options, and also looks at transit and other forms of travel demand management and goods movement. (DEIR, p. 3-7.)

The proposed 2003 Riverside County General Plan (Comprehensive General Plan Amendment No. GPA00618) (the "General Plan" or the "Project") is an attempt to promote a more focused and balanced pattern of growth that accommodates the demand for housing, employment opportunities, and public facilities and services while minimizing the potential adverse impacts that may result from increased urban development. The Riverside County General Plan Final Program EIR (EIR No. 441, State Clearinghouse No. 2002051143) ("Final EIR" or "FEIR") addresses the environmental effects associated with implementation of the proposed General Plan. (DEIR, p. 2-1.) The FEIR is intended to serve as an informational document for public agency decision-makers and the general public regarding the objectives and components of the proposed General Plan, which is the proposed project for the purpose of the California Environmental Quality Act ("CEQA") (Pub. Resources Code, § 21000 et seq; Cal. Code Regs., tit. 14, § 15000 et seq; DEIR, p. 2-1.) The FEIR addresses the potential significant adverse environmental impacts that may be associated with build out of the proposed General Plan, and identifies feasible mitigation measures and alternatives that may be adopted to reduce or eliminate these impacts. (DEIR, p. 2-1.)

The FEIR is the primary reference document for the formulation and implementation of a mitigation monitoring program for the proposed General Plan. Environmental impacts cannot always be mitigated to a level that is considered less than significant. In accordance with the CEQA Guidelines (Cal. Code Regs., tit. 14, § 15000 et seq.), if a lead agency approves a project that has significant impacts that are not substantially mitigated (i.e., significant unavoidable impacts), the agency shall state in writing the specific reasons for approving the project based on the final CEQA documents and any other information in the public record for the project. (CEQA Guidelines, § 15093, subd. (b).) This is called a "statement of overriding considerations." (CEQA Guidelines, § 15093.) (DEIR, p. 2-2.)

The Final EIR consists of the following contents:

• A list of persons, organizations, and public agencies commenting on the Draft EIR (Section 1.4);

• The responses of the Lead Agency to significant environmental points raised in the public review and consultation process (Section 2.0);

• Revisions made to the Draft EIR (August 20, 2002), State of California Clearinghouse No. 2002051143, in the form of an addendum presented in Section 3.0; and

• The Mitigation Monitoring Plan (MMP) (Section 4.0). (FEIR, p. 1-1.)

On October 7, 2003, the Board of Supervisors certified the FEIR in accordance with CEQA. These findings, as well as the accompanying statement of overriding considerations in section XV, infra, have been prepared to comply with CEQA.

II.
FINDINGS REQUIRED UNDER CEQA

Public Resources Code section 21002 provides that "public agencies should not approve projects as proposed if there are feasible alternatives or feasible mitigation measures available which would substantially lessen the significant environmental effects of such projects[.]" (Emphasis added.) The same statute states that the procedures required by CEQA "are intended to assist public agencies in systematically identifying both the significant effects of proposed projects and the feasible alternatives or feasible mitigation measures which will avoid or substantially lessen such significant effects." (Emphasis added.) Section 21002 goes on to state that "in the event [that] specific economic, social, or other conditions make infeasible such project alternatives or such mitigation measures, individual projects may be approved in spite of one or more significant effects thereof."

The mandate and principles announced in Public Resources Code section 21002 are implemented, in part, through the requirement that agencies must adopt findings before approving projects for which EIRs are required. (See Pub. Resources Code § 21081, subd. (a); CEQA Guidelines, § 15091, subd. (a).) For each significant environmental effect identified in an EIR for a proposed project, the approving agency must issue a written finding reaching one or more of three permissible conclusions. The first such finding is that "[c]hanges or alterations have been required in, or incorporated into, the project which avoid or substantially lessen the significant environmental effect as identified in the final EIR." (CEQA Guidelines, § 15091, subd. (a)(1).) The second permissible finding is that "[s]uch changes or alterations are within the responsibility and jurisdiction of another public agency and not the agency making the finding. Such changes have been adopted by such other agency or can and should be adopted by such other agency." (CEQA Guidelines, § 15091, subd. (a)(2).) The third potential conclusion is that "[s]pecific economic, legal, social, technological, or other considerations, including provision of employment opportunities for highly trained workers, make infeasible the mitigation measures or project alternatives identified in the final EIR." (CEQA Guidelines, § 15091, subd. (a)(3).) Public Resources Code section 21061.1 defines "feasible" to mean "capable of being accomplished in a successful manner within a reasonable period of time, taking into account economic, environmental, social and technological factors." CEQA Guidelines section 15364 adds another factor: "legal" considerations. (See also Citizens of Goleta Valley v. Board of Supervisors ("Goleta II") (1990) 52 Cal.3d 553, 565.)

The concept of "feasibility" also encompasses the question of whether a particular alternative or mitigation measure promotes the underlying goals and objectives of a project. ( City of Del Mar v. City of San Diego (1982) 133 Cal.App.3d 410, 417.) "‘[F]easibility' under CEQA encompasses ‘desirability' to the extent that desirability is based on a reasonable balancing of the relevant economic, environmental, social, and technological factors." ( Id.; see also Sequoyah Hills Homeowners Assn. v. City of Oakland (1993) 23 Cal.App.4th 704, 715.)

The CEQA Guidelines do not define the difference between "avoiding" a significant environmental effect and merely "substantially lessening" such an effect. The County must therefore glean the meaning of these terms from the other contexts in which the terms are used. Public Resources Code section 21081, on which CEQA Guidelines section 15091 is based, uses the term "mitigate" rather than "substantially lessen." The CEQA Guidelines therefore equate "mitigating" with "substantially lessening." Such an understanding of the statutory term is consistent with the policies underlying CEQA, which include the policy that "public agencies should not approve projects as proposed if there are feasible alternatives or feasible mitigation measures available which would substantially lessen the significant environmental effects of such projects." (Pub. Resources Code, § 21002.)

For purposes of these findings, the term "avoid" refers to the effectiveness of one or more mitigation measures to reduce an otherwise significant effect to a less than significant level. In contrast, the term "substantially lessen" refers to the effectiveness of such measure or measures to substantially reduce the severity of a significant effect, but not to reduce that effect to a less than significant level. These interpretations appear to be mandated by the holding in Laurel Hills Homeowners Association v. City Council (1978) 83 Cal.App.3d 515, 519-521, in which the Court of Appeal held that an agency had satisfied its obligation to substantially lessen or avoid significant effects by adopting numerous mitigation measures, not all of which rendered the significant impacts in question less than significant.

Although CEQA Guidelines section 15091 requires only that approving agencies specify that a particular significant effect is "avoid[ed] or substantially lessen[ed]," these findings, for purposes of clarity, in each case will specify whether the effect in question has been reduced to a less than significant level, or has simply been substantially lessened but remains significant.

Moreover, although section 15091, read literally, does not require findings to address environmental effects that an EIR identifies as merely "potentially significant," these findings will nevertheless fully account for all such effects identified in the Final EIR.

CEQA requires that the lead agency adopt mitigation measures or alternatives, where feasible, to substantially lessen or avoid significant environmental impacts that would otherwise occur. Project modification or alternatives are not required, however, where such changes are infeasible or where the responsibility for modifying the project lies with some other agency. (CEQA Guidelines, § 15091, subd. (a), (b).)

With respect to a project for which significant impacts are not avoided or substantially lessened, a public agency, after adopting proper findings, may nevertheless approve the project if the agency first adopts a statement of overriding considerations setting forth the specific reasons why the agency found that the project's "benefits" rendered "acceptable" its "unavoidable adverse environmental effects." (CEQA Guidelines, §§ 15093, 15043, subd. (b); see also Pub. Resources Code, § 21081, subd. (b).) The California Supreme Court has stated, "[t]he wisdom of approving . . . any development project, a delicate task which requires a balancing of interests, is necessarily left to the sound discretion of the local officials and their constituents who are responsible for such decisions. The law as we interpret and apply it simply requires that those decisions be informed, and therefore balanced." ( Goleta II, 52 Cal.3d at p. 576.)

These findings constitute the Board of Supervisors' best efforts to set forth the evidentiary and policy bases for its decision to approve the General Plan in a manner consistent with the requirements of CEQA. To the extent that these findings conclude that various proposed mitigation measures outlined in the Final EIR are feasible and have not been modified, superseded or withdrawn, the County hereby binds itself to implement these measures. These findings, in other words, are not merely informational, but rather constitute a binding set of obligations that will come into effect when the Board adopts a resolution approving the General Plan.

III.
DEFINITIONS

"A-P" means Alquist-Priolo

"AB" means Assembly Bill

"af" means acre feet

"ARB" means March Air Reserve Base

"BLM" means Bureau of Land Management

"BMPs" means Best Management Practices

"Caltrans" means California Department of Transportation

"CCR" means California Code of Regulations

"CDFG" means California Department of Fish and Game

"CEQA" means California Environmental Quality Act

"CETAP" means Community Environmental and Transportation Acceptability Program

"CGS" means California Geologic Survey

"CIWMB" means California Integrated Waste Management Board

"CIWMP" means Countywide Integrated Waste Management Plan

"CVC" means California Vehicle Code

"dB" means decibel, or a unit for describing the amplitude of sound

"dBA L_eq" means equivalent sound level

"dBA L_dn" means day night noise level

"dBA" means decibel measured through the A-weighted scale to correct for the relative frequency response of the human ear

"DEIR" means Draft Environmental Impact Report

"EIR" means Environmental Impact Report

"FEMA" means Federal Emergency Management Agency

"FIRM" means Flood Insurance Rate Maps

"HCP" means habitat conservation plan

"I" means Interstate

"IS" means Initial Study

"km" means kilometer

"LAFCO" means Local Agency Formation Commission

"LOMA" means Letter of Map Amendment

"LOMR-F" means Letter of Map Revision based on fill

"LOS" means level of service

"MLD" means most likely descendent

"MSHCP" means Multiple Species Habitat Conservation Plan

"NAHC" means Native American Heritage Commission

"NOP" means Notice of Preparation

"NPDES" means National Pollutant Discharge Elimination System

"PM₁₀" means particulate matter smaller than 10 micrometers

"RCIP" means Riverside County Integrated Project or Riverside County Integrated Plan (see 2-4) "REMAP" means Riverside Extended Mountain Area Plan

"RWQCB" means Regional Water Quality Control Board

"SCAG" means Southern California Association of Governments

"SCAQMD" means South Coast Air Quality Management District

"SR" means State Route

"TLMA" means Transportation and Land Management Agency

"USFWS" means United States Fish and Wildlife Service

"USGS" means United States Geologic Survey

"VMT" means vehicle miles traveled

IV.
PROJECT DESCRIPTION

Overview

The General Plan is intended to be a blueprint for the future of Riverside County. It describes anticipated future growth, development, and environmental management programs over the long term. It is intended to act as a "constitution" for public and private development, and to serve as the foundation for growth and land-use-related decision-making within unincorporated Riverside County. Most of the unincorporated portions of Western Riverside County and some of Eastern Riverside County are divided into 19 Area Plans to provide more detailed land use and policy direction regarding local issues, such as land use, circulation, and open space. The General Plan is meant to express the community's goals with respect to the man-made and natural environments, and to set forth the policies and implementation measures needed to achieve those goals for the welfare of those who live, work, and do business in Riverside County. (DEIR, pp. 1-1, 3-81.)

Discretionary Actions

The following discretionary actions are anticipated to be taken by Riverside County as part of the proposed project:

• Adoption of the 2003 Riverside County General Plan, which incorporates 19 Area Plans as part of the Riverside County General Plan, and

• Adoption of proposed boundary changes to zoning districts to coincide with the 19 Area Plan boundaries.

(DEIR, pp.1-5, 2-4, 3-1.)

Project Objectives

The primary goal of the General Plan is to provide residents of the County with a blueprint for public and private development. The General Plan will act as the foundation upon which County leaders will make growth and land use-related decisions. The objective of the proposed General Plan is to achieve the Vision Statement of the County residents in conformance with State planning law. The Vision Statement is detailed in Chapter 2 of the proposed General Plan and is provided in Appendix B of the FEIR. (DEIR, p. 3-84.)

More specifically, the project objectives are to preserve crucial open space, provide a range of community design options in response to varied lifestyle choices, focus on high quality growth by using land resources efficiently, retain economically valuable agricultural lands, provide a comprehensive transportation system, provide public access to recreation opportunities, and expand local employment opportunities and broaden choices of transportation systems. (DEIR, p. 6-59.)

Project Location

The County of Riverside encompasses 7,295 square miles, and stretches across 200 miles from the eastern portion of the Los Angeles metropolitan area to the Colorado River. Bounded by Orange County on the west, San Bernardino County to the north, the State of Arizona to the east, and San Diego and Imperial Counties to the south, Riverside County is the fourth largest county area in California. (DEIR, p. 3-1.)

Within Riverside County, there are 24 incorporated cities with individual identities set among a mixture of rural communities, small towns, deserts, and open space areas. The various communities within the unincorporated areas are defined by the built environment and the surrounding topography, which includes river valleys, lakes, low deserts, mountains, foothills, and rolling plains. (DEIR, p. 4.4-1.)

Riverside County is divided into eastern and western regions by the San Jacinto Mountains. A deep valley known as the San Gorgonio Pass, formed by the San Jacinto and San Gorgonio Mountains, serves as a natural link between these two vast areas. The San Bernardino, Little San Bernardino, and Pinto Mountains form a portion of the County's northern boundary while numerous mountain ranges, including those in the Santa Rosa Wilderness and Cleveland National Forest, serve as boundaries along the southern and western edges of the County. (DEIR, p. 4.4-1.)

Riverside County is one of the most diverse counties in California. It includes well-established urban, suburban, and rural communities. It has an extensive array of agricultural lands, lands devoted to mineral extraction, and recreational areas. There are rugged mountains, flat valley areas, open desert, and expansive natural open space areas. The western portion of the County contains most of the County's non-desert areas, as well as most of its urbanized areas. Elevations within this area range from about 755 feet in the northwestern corner of the County to about 10,800 feet at San Jacinto Peak. Eastern Riverside County, which lies east of the crest of the San Jacinto Mountains, contains almost all the County's desert regions. Elevations in eastern Riverside County range from about 230 feet below mean sea level at the Salton Sea to about 9,800 feet in the San Jacinto Mountains. (DEIR, p. 3-1.)

Western Riverside County

Western Riverside County is bounded by the Santa Ana Mountains and Cleveland National Forest on the west and the San Jacinto Mountains and the San Bernardino National Forest on the east. Topography varies dramatically in this region, ranging from low-lying valleys to rolling hillsides and steep mountainous terrain with large rock outcroppings. Major features of this area include the Santa Ana River basin, Lake Mathews, Lake Perris, Lake Elsinore, Lake Skinner, Vail Lake, the San Jacinto River, Murrieta Creek, the Santa Margarita River, and the vineyard/citrus region near Temecula. The Diamond Valley Reservoir south of Hemet is the largest reservoir in Southern California. Western Riverside County includes numerous unincorporated communities as well as the Cities of Corona, Riverside, Beaumont, Banning, Norco, Lake Elsinore, Perris, Hemet, San Jacinto, Moreno Valley, Calimesa, Canyon Lake, Murrieta, and Temecula. (DEIR, p. 4.4-1.)

Eastern Riverside County

Eastern Riverside County is bounded by the Colorado River on the east and the Santa Rosa and San Jacinto Mountains on the west. This area includes the Joshua Tree National Park, Whitewater River, and a portion of the Salton Sea. The most urbanized areas in this portion of the County are contained in the Coachella Valley. This area includes the incorporated cities of Desert Hot Springs, Palm Springs, Cathedral City, Rancho Mirage, Indian Wells, Palm Desert, La Quinta, Indio and Coachella, and is noted for its golf resorts nestled among the Santa Rosa Mountains and date palm groves. The vast mountainous terrain of Joshua Tree National Park and the desert topography of the Chuckwalla Valley lie between the Coachella Valley, and the Colorado River. The Palo Verde Valley lies westerly of the Colorado River and includes the City of Blythe. (DEIR, pp. 4.4-1 to 4.4-2.)

Relationships and Differences Between RCIP Components

The General Plan recognizes the Western Riverside County MSHCP, and incorporates the MSHCP into its Area Plans as mitigation for the biological impacts that will result from development permitted by the proposed General Plan. The proposed General Plan also incorporates by reference the Coachella Valley MSHCP being prepared by the Coachella Valley Association of Governments parallel to, but separate from, RCIP. The proposed General Plan Circulation Element includes proposed CETAP corridors as part of its proposed roadway and highway system. (DEIR, p. 3-7.)

The MSHCP provides comprehensive mitigation for the development impacts that will result from development of the proposed General Plan land uses and transportation facilities (including CETAP corridors) within the western portion of the County, including development of proposed CETAP corridors. The MSHCP also includes CETAP corridors as permitted activities where they cross MSHCP preserve areas. (DEIR, p. 3-7.)

The three components of RCIP each cover different areas of the County. The proposed General Plan covers unincorporated lands throughout Riverside County, but does not have jurisdiction over March Air Reserve Base (ARB), Indian lands, and lands owned by the State and federal governments. The MSHCP covers all of western Riverside County, including County and City jurisdictions, since western County cities are participating in the program. CETAP addresses specific corridors only. (DEIR, pp. 3-7 to 3-8.)

The proposed General Plan has been prepared pursuant to the provisions of the California Government Code, and requires approval only of the County of Riverside. Environmental documentation for the proposed General Plan is subject only to the provisions of CEQA. Certain actions and developments undertaken pursuant to the proposed General Plan may require approvals of outside agencies. The MSHCP is being prepared pursuant to both State and federal law, and requires approval of the County, each participating city, the CDFG, and the USFWS. Environmental documentation for the MSHCP is subject to the provisions of both CEQA and the National Environmental Policy Act (NEPA). Riverside County is the lead agency for CEQA purposes, while the USFWS is the lead agency for NEPA purposes. The CETAP program proposes using local, State, and federal sources to fund right-of-way acquisition and ultimate construction of CETAP corridors. Thus, environmental documentation for CETAP must comply with the provisions of both CEQA and NEPA. Riverside County is the lead agency for CEQA purposes, while the Federal Highway Administration is the lead agency for NEPA purposes. (DEIR, pp. 3-7 to 3-8.)

Although they are clearly related projects, and are each part of an integrated planning program, as described above, each RCIP component covers a different physical area, is being prepared pursuant to different State and federal laws, involves different agencies in their approval, and has different lead agencies for their environmental documentation. In addition, each RCIP component is on a slightly different schedule. As a result of these differences, preparation of a single environmental document was found to be impractical. Such a document would prove to be overly complex and impossible to understand. Instead, each environmental document prepared from components of the RCIP program contains a cumulative impact analysis, summarizing the overall impacts of RCIP. (DEIR, p. 3-8.)

Project Description

The General Plan describes anticipated future growth over the long-term. The proposed General Plan is meant to express the community's goals with respect to the man-made and natural environments, and to set forth the policies and implementation measures needed to achieve those goals for the welfare of those who live, work, and do business in Riverside County. (DEIR, pp. 3-1, 3-6 to 3-7.)

State law requires each city and County to adopt a General Plan that contains, at a minimum, the following seven "elements:"

• The LAND USE ELEMENT designates the general distribution and intensity of uses of the land for housing, business, industry, open space, education, public buildings and grounds, waste disposal facilities, and other categories of public and private uses.

• The CIRCULATION ELEMENT is correlated with the land use element, and identifies the general locations and extent of existing and proposed major thoroughfares, transportation routes, terminals, and other local public utilities and facilities.

• The HOUSING ELEMENT is a comprehensive assessment of current and projected housing needs for all economic segments of the community, as well as groups having special housing needs (e.g., homeless, farm workers, elderly, handicapped). In addition, it embodies policy for providing adequate housing and includes action programs for this purpose.

• The CONSERVATION ELEMENT addresses the conservation, development, and use of natural resources, including water, forests, soils, rivers, and mineral deposits.

• The OPEN SPACE ELEMENT details plans and measures for preserving open space for natural resources, the managed production of resources, outdoor recreation, public health and safety, and the identification of agricultural land.

• The NOISE ELEMENT identifies and appraises noise problems within the community and forms the basis for land use distribution.

• The SAFETY ELEMENT establishes policies and programs to protect the community from risk associated with seismic, geologic, flood, and fire hazards. (DEIR, pp. 3-8 to 3-9.)

In the proposed General Plan, the Conservation and Open Space Elements have been combined into a Multipurpose Open Space Element. In addition to the seven mandatory General Plan elements, the proposed General Plan includes an Air Quality Element that addresses means to achieve and maintain good quality air throughout the County. (DEIR, p. 3-9.)

The proposed General Plan is an attempt to promote a more focused and balanced pattern of growth that accommodates the demand for housing, employment opportunities, and public facilities and services while minimizing the potential adverse impacts that may result from increased urban development. The policies and land use design of the proposed General Plan have been developed using a set of key land use concepts. These key concepts fall under ten general categories: Agriculture, Compact Development, Economic Development, Housing, Jobs and Housing Balance, Mixed-Use and Activity Centers, Multi-Purpose Open Space, Rural

Preservation, Service Provision, and Variety of Communities. (DEIR, pp. 3-9 to 3-10.) Five "foundation components" are established: Community Development, Rural Community, Rural, Agriculture and Open Space. The Area Plans further divide these foundation components into 27 land use designations, plus various overlays, each containing a specific description of allowable uses and development standards. The majority of western Riverside County and a portion of eastern Riverside County are in Area Plans. For that area of eastern Riverside County that is not in an Area Plan, the overlying foundation components of the General Plan, discussed above, are the land use designations. Riverside County does not have land use jurisdiction over the area within boundaries of March Air Reserve Base. (DEIR, p. 3-10.)

The proposed General Plan provides, in the form of text and maps, identification of County policy regarding the appropriate type and intensity of land use for every parcel within unincorporated Riverside County. In doing so, the proposed General Plan identifies lands for housing, business, industry, public facilities, recreation, and other uses. (DEIR, p. 3-5.)

The proposed General Plan also provides plans for a multi-modal transportation system, including intensive improvements to the existing roadway and highway system, to facilitate mobility of people and goods throughout unincorporated Riverside County. In addition, the General Plan incorporates a detailed program to ensure adequate housing opportunities for all economic segments of the community, including provisions for the County to accept its "fair share" of its regional housing needs of low and moderate income households. (DEIR, p. 3-5.)

Other portions of the General Plan are aimed at protecting open space and other environmental resources. These portions of the proposed General Plan aim at preserving lands needed for the managed production of resources (e.g., agricultural lands), protection of public health and safety (e.g., floodplains), outdoor recreation (e.g., parks), and protection of environmental resources (e.g., sensitive natural habitat areas). The proposed General Plan also addresses management of key environmental resources such as wildlife habitats, water resources, and air quality. (DEIR, p. 3-5.)

Portions of the proposed General Plan address issues of public health and safety in relation to such environmental hazards as earthquakes and associated seismically-induced hazards, flooding, wildland fire, soil erosion, and blow sand. The proposed General Plan sets standards for the protection of the public from these hazards. Finally, the proposed General Plan addresses noise-related hazards, and establishes standards to achieve and maintain noise-compatible land use relationships. (DEIR, p. 3-5.)

The proposed General Plan covers all unincorporated portions of the County. Lands within unincorporated areas that are owned by the federal government, (e.g., Joshua Tree National Monument, military reservations and BLM lands,) the State government (e.g., Lake Perris) and Indian tribes are not subject to County jurisdiction. (DEIR, p. 3-5.)

Area Plans

Eastvale Area Plan

The unincorporated Eastvale area ranges in character from urban development to agricultural and open space uses. Recognizing that dairy activities are not likely to be viable long-term uses in Eastvale, the Eastvale Area Plan Land Use Plan seeks to provide new areas for development throughout the planning area, while preserving the open space character of the Santa Ana River corridor. (DEIR, p. 3-20.)

The Eastvale Area Plan Land Use Plan consists primarily of Community Development land uses, with Medium Density Residential being the predominant land use designation. Commercial Retail, Commercial Office, Business Park, Light Industrial, and residential uses ranging from Low Density Residential to High Density Residential, are depicted on the Plan. It provides for up to two Community Centers, providing activity centers with a mix of employment, civic and residential uses. The Santa Ana River floodplain contains a mix of Open Space-Conservation, Open Space-Recreation and Open Space-Water designations. (DEIR, p. 3-20.)

Agriculture uses are designated in the southwest corner of the planning area, north of the Prado Dam Basin. Light Industrial uses are designated in the northwest corner of Eastvale, reflecting appropriate uses allowed within the Chino Airport Safety Zone. (DEIR, p. 3-20.)

Elsinore Area Plan

The Elsinore Area Plan reflects the proposed General Plan objectives for Riverside County in several ways. It does so by intensifying and mixing uses at nodes adjacent to transportation corridors, by more accurately reflecting topography and natural resources in land use designations, by avoiding high intensity development in natural hazard areas, and by considering compatibility with adjacent communities' land use plans as well as the desires of residents in the plan area. It provides for up to two Community Centers. The land use designations maintain the rural community character of Meadowbrook and Warm Springs, the natural and recreational characteristics of the Cleveland National Forest, and Community Development uses in Wildomar and Cleveland Ridge. In addition to providing habitat and recreational value, the conservation linkages within the Area Plan help provide a separation between communities and provide additional definition for existing communities. (DEIR, pp. 3-20, 3-25.)

Harvest Valley/Winchester Area Plan

This Area Plan reflects a significant shift from the existing rural character to a more urban/suburban/rural mix focused around unique cores. The impetus for this shift is the Diamond Valley Lake and the recreational opportunities it presents. In addition, the transit opportunities presented by the rail line, State Route 74 (SR-74), and State Route 79 (SR-79) create natural crossroads to expand upon. (DEIR, p. 3-25.)

The communities of Romoland, Homeland, and Green Acres, together called Harvest Valley, make up the northern portion of the Harvest Valley/Winchester planning area. They contain dispersed commercial, business, and residential uses along SR-74. A Mixed-Use Planning Area is planned to be located along the south side of SR-74, and easterly of Briggs Road, to act as a focus for the communities of Homeland and Romoland. Medium, Low and Very Low Density Residential uses surround the more intense uses along the highway, with Mountainous designations applied to the Lakeview Mountains and Double Butte, respectively. The former landfill site on Double Butte is designated as Public Facilities. (DEIR, p. 3-25.)

The community of Green Acres, located in the eastern portion of the planning area, is a Low Density Residential community that is presently separated from the City of Hemet by vacant land and mountainous terrain. To the southeast of this community, development is restricted due to the proximity to the Hemet Ryan Airport. The Rural Community and Mountainous land use designations southeast of Green Acres serve to distinguish Green Acres from Winchester, as well as the City of Hemet. Green Acres also includes a policy area that allows for continued equestrian and animal keeping uses. (DEIR, p. 3-25.)

Western Riverside County has a special visual quality created by the numerous land forms at varying scales that rise from the valley floors. Such is the case with Double Butte, which includes a closed landfill site. This public facility designated area is surrounded on three sides by mountainous terrain. (DEIR, p. 3-25.)

The community of Winchester is located immediately south of Double Butte and north of Salt Creek. Winchester is ideally situated to become the "gateway to the Diamond Valley" and accommodate significant intensification of land usage. Winchester has the potential to serve as an important tourist and transit hub for the region due to its proximity to the Diamond Valley Lake, as well as the presence of the rail line, SR-79 and Domenigoni Parkway. To most effectively take advantage of these opportunities, future development in Winchester should reflect a distinct character and identity. Typical strip commercial uses would diminish the community's potential significantly. Instead, a compact downtown core designed in an Old West theme is envisioned. To help make this vision become a reality, the Community Center Overlay allows a mixture of commercial, office, and residential uses to be developed and provides guidance for future community design. Contrary to typical zoning that separates uses, the Community Center Overlay allows a mixture of commercial, office, and residential uses within the same project. Like a western town, Winchester should be developed around a series of walkable blocks with buildings oriented to the street. Western-themed building facades with detailed touches, such as covered and wooden sidewalks, could further enhance the theme experience. (DEIR, pp. 3-25, 3-29.)

A core of retail, shopping, office, and residential uses should stretch along Winchester Road from the rail line to Olive Avenue. Medium density residential uses should be located within and around the core area to provide convenient pedestrian access to services, shopping, and employment uses. (DEIR, p. 3-29.)

A transit station on the rail line should be incorporated into the fabric of Winchester and act as the northern anchor for the community. This transit station would act as the regional connection to the Diamond Valley Lake and its surrounding entertainment and recreational uses, as well as Temecula farther to the south. (DEIR, p. 3-29.)

The Diamond Valley Lake and surrounding recreation area provides a major tourist attraction and is the key to future growth in the area. The land uses that surround the Diamond Valley Lake are intended to preserve this facility's long-term outdoor recreational opportunities and to attract visitors by providing a quality experience for them. (DEIR, p. 3-29.)

To the south of the Diamond Valley Lake, the Open Space-Conservation Habitat and Open Space-Recreation land use designations preserve the natural habitat of the Dawson Mountains and Shipley Reserve as well as providing areas for permanent outdoor recreation. To the west of the lake, the Commercial Tourist land use designation accommodates the intensive recreation plans of the Metropolitan Water District. (DEIR, p. 3-29.)

The Community Center Overlay with an underlying Mixed Use Planning Area land use designation immediately west of SR-79, south of Holland Road, accommodates an Entertainment Center that is intended to capitalize on the proximity of the lake and its intensive recreational opportunities. The Entertainment Center land use designation provides the opportunity to develop regional entertainment, recreation, and tourist related uses such as movie theaters, hotels, spas, and restaurants. This area is envisioned as a unified pedestrian-oriented village with a common design theme, integrated with the active recreation uses to the east. The center should be designed to accommodate pedestrian movement, and the presence of the automobile should be minimized by reducing street widths, locating parking behind buildings, and/or combining parking in structures. Sidewalks should be wide with ample street furniture and shade trees to create a pleasant pedestrian environment. (DEIR, p. 3-30.)

A transit station should be incorporated into this Entertainment Center. This transit station can be connected to the Winchester Transit Station through a transit system. The transit line would then follow Winchester Avenue south into the Temecula Valley, providing a convenient tourism connection for the major attractions of the region. (DEIR, p. 3-30.)

Highgrove Area Plan

Conservation of habitat, preservation of existing communities, and orderly community expansion easterly of Highgrove are the primary objectives of the Highgrove Area Plan. (DEIR, p. 3-30.)

West of Interstate 215 (I-215), in the vicinity of Main Street, the Land Use Plan designates the land as Light Industrial. Very Low Density Residential, Medium Density Residential, Commercial Retail, and Light Industrial lands are designated immediately west of I-215 in keeping with the area's existing patterns of development, with higher residential densities for existing mobile home parks. The portion of Highgrove located immediately east of I-215 contains a mix of urban uses, including Medium Density, Medium High and Highest Density Residential, Commercial Retail, and Light Industrial uses. The eastern half of this area is designated for Low and Medium density Residential uses. Light Industrial uses are designated for the area south of Palmyrita Avenue, which is compatible with adjacent industrial and distribution uses in the City of Riverside. (DEIR, p. 3-30.)

The central portion of the planning area, south of Highgrove, contains Open Space-Conservation areas associated with the Box Springs Mountains Park, along with Rural Mountainous, Rural Residential, and Very Low Density Residential uses. Slope, habitat and other natural constraints severely limit opportunities to provide substantial areas for population or employment growth. In the southern portion of the planning area, a mix of urban uses is planned in close proximity to SR-60, pursuant to the Gateway Center Specific Plan, including a range of residential, employment-generating, and public land uses. (DEIR, p. 3-30.)

Jurupa Area Plan

The Jurupa Area Plan provides for substantial areas devoted to rural and equestrian uses, as allowed by the Rural Community Foundation component. The land use plan also allows for traditional urban residential densities as reflected by the Medium Density and Medium High Density Residential designations. Complementing these residential land uses are several Commercial Retail corridors, two Community Center Overlays, several scattered Open Space-Conservation and Recreation areas, large chunks of Open Space-Conservation Habitat land in the Santa Ana River corridor and the Jurupa Mountains, and an abundance of employment opportunities within the Light Industrial and Business Park designations along Interstate 15 (I15), State Route (SR-60), and Van Buren Boulevard. Mining uses are also identified within the Jurupa Mountains. (DEIR, p. 3-33.)

To help provide focal points for this sector of the County, the Community Center Overlay is applied within Rubidoux Village Center along Mission Boulevard, and westerly of Interstate 15, northerly of Bellegrave Avenue. These areas are intended to function as Village Centers, with a mixture of residential, retail, office, and public uses in close proximity. The strategic location of these centers offers compelling reasons to focus attention on such a valuable economic resource. The Community Center Overlay in Rubidoux takes advantage of the existing pattern of development on Mission Boulevard by allowing for residential units next to commercial uses, thereby increasing the vitality of the Rubidoux Village core area. (DEIR, p. 3-33.)

The employment centers envisioned at the I-15/SR-60 junction, along Van Buren Boulevard, and in the Agua Mansa area would provide regional services with a mixture of business park and industrial uses. Typical employment uses within Business Park and Light Industrial designated areas include research and development, manufacturing, assembling, research institutions, academic institutions, medical facilities, and support commercial uses. Heavy Industrial designated areas would accommodate the most intensive types of industrial activities, including heavy manufacturing and processing plants. The proximity to a major freeway and railroad provides an opportunity for regional multi-modal transportation connections. Combined with the relatively compact activities envisioned in the Community Centers, these highly valuable access facilities offer the long-term potential to accommodate improved transit access. (DEIR, p. 3-33.)

Future multi-modal transportation options are a part of this Plan because of the need to ultimately take some of the pressure from the highway and freeway systems. This is particularly critical here because of the extensive truck traffic, which complicates vehicle flow despite its obvious linkage to economic development. Warehousing uses would be restricted by policy to a specific geographic area. (DEIR, p. 3-33.)

Large swaths of open space line the Santa Ana River corridor, providing an expansive natural buffer between Jurupa and the City of Riverside. Portions of the Jurupa Mountains also contain Open Space designations intended to preserve the rugged nature of this area and protect sensitive habitat areas. Recreational open space areas designed for relatively heavy use, such as golf courses and athletic fields, are located throughout Jurupa. The pattern and types of land uses described above are an extension of the existing land use patterns for Jurupa, and consequently help maintain the identity and character of its many distinctive communities. Selective additions to the land use choices refine the potential here without changing the basic character of these local communities. Additionally, preserving the natural features and unique landscape helps to distinguish this area from surrounding communities. (DEIR, p. 3-33.)

Lake Mathews/Woodcrest Area Plan

The Lake Mathews/Woodcrest Area Plan provides for substantial areas devoted to rural and equestrian uses, as allowed by the Rural Community and Rural Foundation components. The land use plan limits urban residential densities as reflected by the Medium Density Residential and Medium High Density Residential designations largely to areas within adopted specific plans. Complementing these residential land uses are scattered commercial retail uses, including a commercial corridor along Van Buren Boulevard, several recreational areas, large chunks of habitat land in the Lake Mathews/Estelle Reserve area and the Gavilan Hills, and public facility uses associated with the Metropolitan Water District operations at the Lake Mathews facility and the expanded El Sobrante Landfill. (DEIR, p. 3-37.)

Large swaths of open space border Lake Mathews, providing an expansive natural buffer between the lake and adjacent development. The pattern and types of land uses described above are an extension of the existing land use patterns for Woodcrest and Lake Mathews, and consequently help maintain the identity and character of its distinctive communities. Selective additions to the land use choices refine the potential here without changing the basic character of these local communities. Additionally, preserving the natural features and unique landscape helps to distinguish this area from surrounding communities. (DEIR, p. 3-37.)

Lakeview/Nuevo Area Plan

The Lakeview/Nuevo Area Plan reflects significant growth in its western half, near the City of Perris. Residential density gradually decreases east of the San Jacinto River until the Lakeview Mountains, where the Mountainous and Rural land use designations reflect the area's rugged nature. A series of adopted specific plans, concentrated east of the San Jacinto River, have influenced land use patterns and residential densities in this area. East of the San Jacinto River, the Area Plan generally reflects a pattern of predominantly low and very low density residential character with pockets of commercial uses interspersed within the communities of Lakeview and Nuevo. Continuing east past Lakeview Avenue, the land use pattern is primarily large lot and rural in nature with clusters of residential neighborhoods, public facilities, and commercial establishments. This Area Plan provides for two community centers west of the San Jacinto River. (DEIR, p. 3-37.)

Mead Valley Area Plan

The Mead Valley Area Plan provides for a predominantly rural community character with an equestrian focus. This is reflected by the Rural Residential and Very Low Density Residential land use designations that dominate the planning area. Pockets of open space, including the Motte-Rimrock Reserve and Steele Peak, are designated as Open Space Conservation Habitat to preserve their scenic and natural qualities. (DEIR, p. 3-43.)

A Rural Village Overlay is designated along a portion of the present alignment of the SR-74, which is located in the southern portion of the planning area. The Rural Village would serve as a focal point for the surrounding Good Hope community. This special overlay designation allows for a mixture of local serving commercial uses, educational, recreational/cultural opportunities, and limited residential development at a higher density than the underlying land use. The Land Use Element provides a further description of this land use designation and its intent. (DEIR, p. 3-43.)

Mobility within the open space system is not ignored, either. Multi-use trails are conceptually located throughout the planning area, providing the framework for future trail improvements and connections. Thus, there is a strong relationship in the Area Plan between land uses and associated transportation and mobility systems, no matter what the intensity of uses may be. (DEIR, p. 3-43.)

The Pass Area Plan

The Pass Area Plan generally reflects the predominantly rural character of the unincorporated area. The considerable amount of natural open space historically provided by Riverside County plans over the years within the Pass is maintained. Most of the proposed development within the Pass remains focused within the cities. (DEIR, p. 3-43.)

Cherry Valley and the Banning Bench generally maintain their rural character, although Cherry Valley would continue its focus around an existing retail and service-oriented community core on Beaumont Avenue. Cabazon retains its tourist identity along Interstate 10 (I-10), as well as its existing residential and desert-oriented uses. The rugged terrain, open space, and scenic qualities of the San Bernardino and San Jacinto Mountains that are so prominent in the area would continue to be preserved through the Rural Mountainous, Open Space, and Rural land use designations. A Mixed Use Planning Area is provided within the Oak Valley Specific Plan (SP 318) and a Community Center Overlay is provided in Cabazon. (DEIR, p. 3-43.)

Reche Canyon/Badlands Area Plan

The primary purpose of this Area Plan is to preserve the remote, rural nature of the Reche Canyon/Badlands area. Slope, habitat and other natural constraints severely limit opportunities to provide substantial areas for population or employment growth. Conservation of habitat, preservation of existing rural communities, and provision of areas for lower density residential areas in keeping with the rural character of the planning area are the primary objectives of this Area Plan. (DEIR, p. 3-43.)

The Reche Canyon/Badlands Area Plan designates much of the land in the northern portion of the planning area as Rural Mountainous and Open Space Rural, in keeping with the mountainous character of the region. Very Low Density Residential, Estate Density Residential and Rural Residential designations are generally applied to areas adjacent to the City of Moreno Valley and along some of the area's major roadway corridors, including San Timoteo Canyon Road, Gilman Springs Road, Reche Canyon Road, and Pigeon Pass Road. Open space areas for the preservation of publicly owned habitat and park land are designated for the Lake Perris State Recreational Area, the San Jacinto Wildlife Reserve, the Norton Younglove Reserve, and the Box Springs Mountains Reserve. Areas designated for Agriculture uses are located adjacent to the San Jacinto Wildlife Reserve. The Riverside County Badlands Landfill facility is designated for Public Facility use. Additional areas have been designated for Open Space Mining, Open Space Recreation, and Commercial Tourist, primarily reflecting those corresponding existing uses. (DEIR, p. 3-51.)

Riverside Extended Mountain Area Plan

The majority of the Riverside Extended Mountain Area Plan (REMAP) lies within Rural and Open Space Foundation Components. The amount of acreage already under public ownership (i.e., U.S. Forest Service, State of California, Bureau of Land Management) together with the constraints imposed by natural hazards, remoteness, and lack of infrastructure, preclude significant new growth in most of the area. Opportunities for expansion are provided for the rural communities of Anza and Aguanga. (DEIR, p. 3-51.)

Rural Village Overlays have been applied in strategic locations. These overlays allow a focused community core providing a mixture (however limited) of urban-type services and Community Development or Rural Community land uses complementing and blending with the natural environment and reinforcing existing community character. (DEIR, p. 3-51.)

Scattered rural residential areas are also present in the planning area, usually consisting of large lot residential homes with limited utilities and community services. REMAP reflects the desire by these communities to maintain the lifestyle currently associated with this predominantly remote and rugged territory. Limited development would be focused in established communities according to policies and guidelines that would sustain the special character of these places. (DEIR, p. 3-51.)

San Jacinto Valley Area Plan

The Area Plan is designed to maintain the predominantly rural, agrarian, and open space character of the unincorporated portions of the San Jacinto Valley and to focus growth in ways that respect the existing urban fabric, slope, and natural hazard considerations. This is accomplished by providing an opportunity for community development in the East Hemet and Valle Vista areas, by preserving selected natural features (especially riparian), and protecting residents from natural hazards. (DEIR, p. 3-51.)

The East Hemet and Valle Vista areas are a mix of Very Low, Low, Medium, Medium High and High Density Residential development. Commercial and office uses dominate along Florida Avenue. This area steps down in density to Agriculture, Rural-Mountainous, and Open SpaceConservation designated areas. San Jacinto Valley contains numerous significant natural features and hazards. Land near the San Jacinto River in the northern portion of the plan is severely constrained for development due to steep slopes, the 100-year floodplain, dam inundation hazards, seismic zones, and existing habitat. As such, most of the area within the flood plain along the river (except existing dairies) is designated as Open Space-Conservation. A large area between Gilman Hot Springs Road and the River is under single ownership and is depicted as a Mixed Use Planning Area. The truly limited development potential on the steep, inaccessible slopes of the San Jacinto Mountains is also recognized by the Open Space-Conservation designation. (DEIR, pp. 3-51, 3-57.)

This Area Plan has several constraints and benefits. Severely constrained lands subject to natural hazards are slated primarily for preservation. Community separators and greenbelts are provided by many of these conservation oriented designations. Finally, Community Development land uses are generally focused on areas adjacent to the existing urban fabric, while rural, agriculture and open space uses lie on the periphery. (DEIR, p. 3-57.)

Southwest Area Plan

The Southwest Area Plan Land Use Plan generally reflects the predominantly rural character of the area. In fact, most of the Southwest Area Plan is devoted to Open Space, Agricultural, and Rural designations. The remaining area is devoted to a variety of urban uses. Most of this urban development is focused in French Valley and easterly of the City of Temecula along SR-79 East. By concentrating development patterns in this manner, future growth would be accommodated, and the unique rural and agricultural lifestyle found elsewhere in the Southwest Area Plan would be maintained. For the most part, the Open Space and Rural designations are applied in the mountains and foothills surrounding the Cities of Murrieta and Temecula. The Agricultural designation is largely applied to the Citrus / Vineyard area east of Temecula. (DEIR, p. 3-57.)

The Santa Rosa Ecological Reserve, the Cleveland National Forest, and Vail Lake are designated for open space uses to reflect the rich and significant habitat these areas provide. Glen Oaks Hills and the Santa Rosa Plateau are designated for rural uses to maintain the existing rural residential character of these areas. These Open Space, Agricultural, and Rural area plan land use designations reflect the existing and intended long-term land use patterns for these areas and help maintain the historic identity and character of the Southwest Area Plan. Such designations also provide an edge to urban development and a separation between the adjoining area plans and San Diego County. This edge strengthens the identity of the Southwest Area Plan and helps to distinguish it from other communities. (DEIR, p. 3-57.)

Future growth is largely accommodated northeast of the existing Cities of Temecula and Murrieta in the French Valley. Proposed land uses reflect, or are influenced by, adopted specific plans. These specific plans depict a largely residential community with local-serving commercial and employment uses located along the major roadways. The residential community is focused around SR-79 North (Winchester Road). Within that residential pattern the French Valley Airport acts as a hub for surrounding business and industrial park development, which contributes significantly to an employment and economic focus for the Southwest Area Plan. SR-79 North is the chief circulation route in the valley other than the I-15 and I-215 freeways. The adjacent areas accommodate regional uses and a large segment of potential commercial development. Despite this rather focused development, significant watercourses in the valley are maintained in adopted and proposed specific plans through open space designations. This stream system is depicted on the Southwest Area Plan Land Use Plan as Watercourse and associated Open Space designations. The Southwest Area Plan includes a Community Center Overlay southerly of Scott Road and westerly of SR-79 North, and a Mixed Use Planning Area on the north side of Murrieta Hot Springs Road, easterly of SR-79 North. (DEIR, p. 3-57.)

Sun City/Menifee Valley Area Plan

The Sun City/Menifee Valley Area Plan reflects much of the existing Community Plan. To the extent possible, Community Development areas extend outward from the existing urbanized community areas. Furthermore, an effort is made, wherever existing and already approved land uses permit, to enhance existing concentrations of activity and distinguish them from other concentrations in and around the Area Plan. (DEIR, p. 3-61.)

For example, a Rural Mountainous designation in the northeast quadrant separates the McCall corridor from the developed Menifee Village north of Newport Road. The McCall corridor is anchored by Commercial Retail and Business Park designations near I-215, with Commercial Office, and Medium and Medium High Density Residential designations to the east. (DEIR, p. 3-61.)

Light Industrial uses along the north edge of the Plan Area both east and west of I-215 relate to transportation corridors, including a rail corridor along the diagonal edge of the Area Plan in the north. To the west of I-215, the Medium Density Residential designation extends the character of the existing Sun City development toward the edges of the Plan. At that point, a Rural Mountainous designation sets Quail Valley, with its rural character, apart from Sun City. The potential for Commercial Retail development serving Quail Valley is recognized along Goetz Road, allowing for a different scale of focus in keeping with the needs of this specialized community. (DEIR, p. 3-61.)

Both the channelized and natural portions of Salt Creek are designated Open Space-Recreation to allow the potential for the channel to serve both flood control and recreation purposes. This dominant feature offers another opportunity to distinguish development sectors from each other. Residential subdivisions characterize the area south of Salt Creek along Newport Road. Medium, Medium High, and High Density Residential designations dominate here, together with Commercial Retail. Farther south, the Area Plan diverges from the existing Community Plan in its provision for Community Center Overlays both easterly and westerly of I-215 and in its expansion of Medium Density Residential designations in the southwest and southeast Menifee Valley. (DEIR, p. 3-61.)

Temescal Area Plan

Open Space Foundation Component land uses comprise most of the unincorporated planning area in the Temescal Area Plan. The Cleveland National Forest and Prado Basin account for much of this acreage. This emphasizes the importance of the remaining land area to house and employ the existing population, to accommodate the growth pressures in Western Riverside County, to respect local interests, as well as observe hazard and circulation constraints. (DEIR, p. 3-61.)

The Area Plan focuses on preserving the integrity of existing communities and preserving irreplaceable open space resources, while recognizing this area's transition to urban uses by stimulating targeted infill development, as well as redevelopment projects. The land use plan also focuses on achieving a more balanced relationship between workers and jobs, offering options to the prevailing extended commute patterns to coastal job centers. (DEIR, p. 3-61.)

The Cleveland National Forest, as a priceless, natural open space resource area, is generally treated as a permanent open space preserve, with the exception of a few large-lot residential areas reflecting current uses or approved development. The Prado Basin will remain a significant habitat area and critical piece of the Santa Ana River Watershed, with its numerous critical functions in support of development within four counties. (DEIR, p. 3-61.)

Land use designations and policies maintain the general urban character of Coronita and Home Gardens and the low and very low density residential character of El Cerrito. The I-15 corridor represents the greatest opportunity for community development while achieving the RCIP objectives. Residential and employment uses would continue to be focused within this corridor through the extensive, though not exclusive, use of specific plans. Preserving the Temescal Wash, enhancing local and regional traffic conditions along I-15, and achieving a satisfactory interface with mineral extraction operations are of utmost importance in the guidance for this strategic area. The Community Center designation at Temescal Canyon Road and I-15 would provide a focused area for the development of a Job Center comprised of light industrial and business-park uses with supporting retail services. (DEIR, p. 3-67.)

Desert Center Area Plan

The Desert Center Land Use Plan generally reflects the very limited development potential here. The vast majority of land uses within the Area Plan are designated Open Space-Rural. These lands are generally remote, inaccessible, subject to natural hazards, or unable to support development due to the lack of facilities and necessary services for accommodating development. The uninhabited and natural character of the open space lands is expected to continue throughout the life of the plan. (DEIR, p. 3-67.)

Agricultural production areas are identified with the Agriculture land use designation. Land uses within the Community Development Foundation Component comprise only a small percentage of the total acreage within the planning area. Future development should be focused on infill and redevelopment of the existing communities at Desert Center, Lake Tamarisk, and Eagle Mountain. The distinct community separation between the highway commercial uses and the Lake Tamarisk community should be maintained. The Eagle Mountain landfill and townsite are designated to accommodate the proposed Class III non-hazardous waste landfill and nearby housing and services for its workers and their families. (DEIR, p. 3-67.)

Eastern Coachella Valley Area Plan

The Eastern Coachella Valley Area Plan is designed to maintain the predominantly rural, agricultural, and open space character of the Eastern Coachella Valley, while allowing for potential development in Vista Santa Rosa and around Thermal and Mecca. The plan integrates the existing urban fabric together with slope and natural hazard considerations. Importantly, the plan seeks to retain the agricultural practices and lands in the area that are so intrinsic to the character of this area and important to the County's economy. (DEIR, p. 3-67.)

The majority of the area within the Salton Trough, surrounding the Salton Sea to the west and stretching north toward the City of Coachella, is designated Agriculture. The majority of the area east of the All-American Canal is designated Open Space-Conservation Habitat and Open Space-Rural to reflect the area's remoteness and lack of services. (DEIR, p. 3-67.)

In the Thermal area, the actual planned extent of the Light Industrial uses adjacent to the airport is depicted on the land use plan. Higher density residential designations have been shown easterly of the airport that more correctly reflect the existing and potential land use. (DEIR, p. 373.)

Opportunities for Commercial Tourist development are shown around the State Route 111/State Route 86 (SR-111/SR-86) intersection. Areas of potential residential development have been expanded around Mecca. Commercial Tourist designations are also located adjacent to the Salton Sea, south of SR-111, and are intended to capitalize on the scenic and recreational opportunities of both the Salton Sea and the surrounding desert area. Location of such areas near the community of North Shore allows for contiguous development in an effort to preserve the area's natural attributes and assets. The plan provides for a Community Center on 40 acres in Mecca and allows for one in Vista Santa Rosa. (DEIR, p. 3-73.)

Palo Verde Area Plan

The eastern portion of the Palo Verde Area Plan is intended to preserve the agricultural character and the rich economic base of the Palo Verde Valley. Development patterns here are limited to areas along of I-10 and corridors along north / south roadways, a few small pockets adjacent to the City of Blythe, and the community of Ripley. The Area Plan also allows for limited development of appropriately designed recreational resorts along the Colorado River to respond to expanded tourist and recreational draw. (DEIR, p. 3-73.)

The western half of the Area Plan maintains the sparsely populated, rugged desert and mountain character of the Palo Verde Mesa. There is some potential for limited commercial uses at the intersection of I-10 and Wiley's Well Road, which is the main access to the prisons. Blythe Airport is accommodated and enhanced to provide an economic magnet with the inclusion of the Business Park and Commercial Retail land use designations. The Nicholls Warm Springs/Mesa Verde community is accommodated immediately south of the airport. (DEIR, p. 3-73.)

Western Coachella Valley Area Plan

The Western Coachella Valley Area Plan ranges in character from suburban style development found in Bermuda Dunes, Thousand Palms, and Sun City, to remote rural enclaves such as Sky Valley and Indio Hills, to the wind energy area southerly of Desert Hot Springs, to the outlying mountainous and desert terrain typical of Eastern Riverside County. The Area Plan seeks to maintain the character of these areas, while allowing additional urban development in areas adjacent to the I-10 corridor and preserving the desert character of the Valley's remote desert and mountainous areas. (DEIR, p. 3-73.)

The Area Plan proposes a mix of lower density residential land uses ranging from Rural Residential to Medium Density Residential uses near urban centers, except along Washington Street and Avenue 42 in Bermuda Dunes, which will continue to provide for areas of High Density Residential development. (DEIR, p. 3-77.)

Ample land exists within Coachella Valley cities to accommodate most of the residential and commercial growth through the year 2040. The Area Plan focuses Community Development land uses, including residential, commercial and industrial uses, along Interstate 10 and the Pierson Boulevard and Dillon Road corridors, while maintaining a mix of urban uses in Bermuda Dunes, Sun City, and Thousand Palms. (DEIR, p. 3-77.)

The Western Coachella Valley Area Plan identifies the area within the sphere of influence of the City of Rancho Mirage as having significant development potential, due in large part to the area's centralized Valley location, proximity to I-10, and large amount of vacant land, much of which is Indian-owned. This Area Plan creates a policy area designed to establish policies and guidelines for development in this area, in concert with a joint planning effort involving the City of Rancho Mirage and the Agua Caliente Band of Cahuilla Indians. (DEIR, p. 3-77.)

Also identified within this Area Plan is the location of a Rural Village within the community of Sky Valley. With the Rural Village Overlay designation on the Area Plan, this village is designed to allow for a concentration of rural residential uses, a small neighborhood commercial center, public, and open space uses, thus allowing Sky Valley residents access to localized commercial and public services. (DEIR, p. 3-77.)

Much of the Western Coachella Valley area is designated for rural and open space uses. These uses separate Community Development areas, creating distinct community edges and enhancing community identity. Open space areas for habitat conservation occupy almost 25 percent of the total unincorporated area. These areas are predominant in the SR-74/Santa Rosa Mountains area south of Palm Desert and Indian Wells, along the eastern edge of the San Gorgonio Pass north and south of I-10, and north of Desert Hot Springs, throughout the Indio Hills and Coachella Valley Preserve, and areas east of Dillon Road. (DEIR, p. 3-77.)

Modifications to Zoning District Boundaries

Concurrent with the proposed General Plan, Riverside County proposes to modify the boundaries of existing zoning districts to correspond to the Area Plan boundaries contained in the proposed General Plan. Zoning Districts are a means used by Riverside County to organize its zoning maps. Whereas small and medium-sized cities, such as those within Riverside County, can typically display zoning throughout their jurisdictions on a single map, the County's large size (7,200 square miles) means that zoning must be presented on several different maps for zoning designations on individual properties to be readable. Each of these individual maps is identified as a zoning district area. (DEIR, p. 3-77.)

The actions proposed by Riverside County would reorganize the individual zoning maps (zoning districts) to correspond to the Area Plan boundaries proposed in the General Plan. If approved, the boundaries of individual zoning maps (zoning districts) would be coterminous with the General Plan's Area Plan boundaries. (DEIR, p. 3-77.)

Although the County does not propose to change the existing zoning of any individual property at this time, because each zoning district was adopted by separate ordinances by the County Board of Supervisors, modification of zoning district boundaries requires a discretionary action to be taken by the Board of Supervisors, even if zoning designations on individual properties are not affected by the County's action. As a result, the proposed modification of zoning district boundaries constitutes a "project" under CEQA, requiring environmental documentation. (DEIR, p. 3-81.)

As stated previously, although the County does not propose to change the existing zoning of any individual property at this time, state law requires zoning to be consistent with the General Plan. Therefore, there will be changes to zoning subsequent to General Plan adoption. (DEIR, p. 381.)

V.
BACKGROUND

Environmental Review Process

To further the basic purposes of CEQA, the environmental review process requires the preparation and public circulation of several documents. These include, in addition to the General Plan Program EIR, a Notice of Preparation (NOP), and an Initial Study (IS). An NOP is a brief notice that the Lead Agency plans to prepare an EIR for a project. The purpose of the NOP is to solicit guidance from agencies and individuals as to the scope and content of the environmental information to be included in the EIR. (DEIR, p. 2-6.)

Riverside County formally initiated the environmental process with circulation of an NOP, which was sent to responsible agencies and interested individuals for a 30-day review period from May 28, 2002 to June 30, 2002. An IS for the proposed General Plan was presented to the public on May 28, 2002 and circulated with the NOP. If, as here, it is known that an EIR will be prepared, an IS, although not required, is helpful in identifying the likely potential environmental impacts that should be studied in the EIR. The full range of potential environmental effects associated with the implementation of the General Plan, as identified in the IS, is contained in Appendix A to the FEIR. (DEIR, p. 2-6.)

The IS (Environmental Assessment No. 38614) prepared for the proposed General Plan identified potential environmental impacts related to the following issues:

Based on the IS, it was determined that potential impacts associated with the aforementioned issues required further evaluation in the Program EIR for the proposed General Plan. Additionally, the IS determined that an evaluation of potential cumulative impacts resulting from implementation of the proposed General Plan be included in the EIR. (DEIR, p. 1-5.)

In compliance with CEQA Guidelines, the County of Riverside has taken steps to optimize opportunities to participate in the environmental process. During the preparation of the Draft EIR, various Federal, State, regional, and local government agencies, and other interested parties were contacted to solicit comments and to inform the public of the proposed General Plan. Two public scoping meetings were held to solicit public comment on the General Plan EIR. Public comments made at the two public scoping meetings are summarized in Section 1.3.1 of the DEIR. (DEIR, p. 1-12.) Additionally, several individuals and agencies sent written comments in response to the NOP. Those comments are summarized in Section 1.3 of the DEIR. (DEIR, pp. 1-6 through 1-11.)

Incorporation By Reference

As stated in Section 15150 of the State CEQA Guidelines, "An EIR or negative declaration may incorporate by reference all or portions of another document which is a matter of public record or is generally available to the public." Section 15150, subdivision (b) further states that all documents incorporated by reference shall be made available to the public for inspection at a public place or public building and requires that the EIR state where the incorporated documents will be made available for public inspection. Section 15150, subdivision (d) requires that the EIR include the state identification number of any previous EIR or negative declaration which has been incorporated by reference. The following document has been incorporated by reference: Riverside County Integrated Plan (RCIP) Existing Setting Report (LSA Associates, March 2000). (DEIR, p. 2-4.)

The RCIP is intended to provide a common factual basis for the preparation of the three components of the County's integrated planning effort: Riverside County General Plan, Western Riverside County MSHCP, and the Western Riverside County CETAP. This report also provides a single environmental baseline inventory that will be used in the preparation of subsequent environmental documents for each of the three plans comprising the RCIP. (DEIR, p. 2-4.)

The RCIP presents the results of an intensive research effort aimed at identifying the physical, social, and economic characteristics of Riverside County which need to be understood in order to formulate goals, objectives, and policies for the integrated planning effort. (DEIR, p. 2-4.)

VI.
RECORD OF PROCEEDINGS

For the purposes of CEQA, and the findings herein set forth, the administrative record for the Project consists of those items listed in Public Resources Code section 21167.6, subdivision (e). The record of proceedings for the Board's decision on the Project consists of the following documents, at a minimum:

• The Riverside County Integrated Plan (RCIP) Existing Setting Report (LSA Associates, March 2000);

• The NOP (May 2002) and all other public notices issued by the County in conjunction with the Project;

• The Draft Environmental Impact Report for the 2002 Riverside County General Plan and Technical Appendices (August 2002);

• All comments submitted by agencies or members of the public during the 45-day comment period on the Draft EIR (August 20, 2002 through October 4, 2002);

• All comments and correspondence submitted to the County with respect to the Project, in addition to timely comments on the Draft EIR;

• The Final Environmental Impact Report for the 2002 Riverside County General Plan, including comments received on the Draft EIR, responses to those comments, and technical appendices (March 2003);

• The mitigation monitoring and reporting program for the Project;

• All findings and resolutions adopted by the Board in connection with the 2002 Riverside County General Plan project, and all documents cited or referred to therein;

• All reports, studies, memoranda, maps, staff reports, or other planning documents relating to the Project prepared by the County, consultants to the County, or responsible or trustee agencies with respect to the County's compliance with the requirements of CEQA and with respect to the County's action on the 2002 Riverside County General Plan;

• All documents submitted to the County (including the Planning Commission and Board of Supervisors) by other public agencies or members of the public in connection with the 2002 Riverside County General Plan, up through the close of the public hearing on July 1, 2003;

• Any minutes and/or verbatim transcripts of all information sessions, public meetings, and public hearings held by the County in connection with the 2002 Riverside County General Plan;

• Any documentary or other evidence submitted to the County at such information sessions, public meetings and public hearings;

• All resolutions adopted by the County regarding the 2002 Riverside County General Plan, and all staff reports, analyses, and summaries related to the adoption of those resolutions;

• Matters of common knowledge to the County, including, but not limited to Federal, State, and local laws and regulations;

• Any documents expressly cited in these findings, in addition to those cited above; and

• Any other materials required for the record of proceedings by Public Resources Code section 21167.6, subdivision (e).

The official custodian of the record is the Clerk of the Riverside County Board of Supervisors, 4080 Lemon Street, Riverside, California 92501.

VII.
MITIGATION MONITORING

AND REPORTING PROGRAMS

Mitigation Monitoring and Reporting Programs ("MMRPs") were prepared for the Project, and were approved by the Board of Supervisors by the same resolution that has adopted these findings. (See Pub. Resources Code, § 21081.6, subd. (a)(1); CEQA Guidelines, § 15097.) The County will use the MMRPs to track compliance with Project mitigation measures. The MMRPs will remain available for public review during the compliance period. This program is found in Section 4.0 of the Final EIR, which is incorporated by reference into this exhibit (Mitigation Monitoring Plan).

VIII.
TIERING AND THE USE OF A PROGRAM EIR

Program EIRs are typically prepared for an agency plan program, or series of actions that can be characterized as one large project, such as a general plan. Tiering refers to the concept of a multilevel approach to preparing environmental documents (CEQA Guidelines, § 15152). A General Plan EIR, addressing the impacts of countywide and local policy decisions, can be thought of as a "first tier" document. It evaluates the large-scale impacts on the environment that can be expected to result from the adoption of the General Plan, but does not necessarily address the site-specific impacts that each of the individual development projects that will follow and implement the General Plan may have. CEQA requires each of those subsequent development projects be evaluated for their particular site-specific impacts. These site-specific analyses are typically encompassed in second-tier documents, such as Project EIRs, Focused EIRs, or Negative Declarations on individual development projects subject to the General Plan, which typically evaluate the impacts of a single activity undertaken to implement the overall plan. (DEIR, p. 2-2; FEIR pp. 3-4 to 3-5.)

According to the CEQA Guidelines, a State or local agency should prepare a Program EIR, rather than a Project EIR, when the lead agency proposes the following:

• Series of related actions that are linked geographically;

• Logical parts of a chain of contemplated events, rules, regulations, or plans that govern the conduct of a continuing program; or

• Individual activities carried out under the same authorizing statutory or regulatory authority and having generally similar environmental effects that can be mitigated in similar ways.

(CEQA Guidelines, § 15168, subd. (a).) (DEIR, p. 2-2.)

In this case, the Program EIR addresses the General Plan, which is the proposed Project. The FEIR anticipates a series of actions needed to achieve the implementation of the proposed General Plan. Further actions or procedures required to allow implementation of the proposed General Plan include the processing of zoning plans, specific plans, tentative tract maps, site design plans, building permits, and grading permits. (DEIR, p. 2-2; FEIR, p.3-5.)

In a Program EIR, CEQA allows the general analysis of broad environmental effects of the program with the acknowledgment that subsequent site-specific environmental review may be required for particular aspects of portions of the program at the time of project implementation. The Program EIR serves a valuable purpose as a first-tier environmental analysis. The Program EIR can be incorporated by reference into subsequently prepared environmental documents to address issues, such as cumulative impacts and growth inducing impacts, allowing the subsequent documents to focus on new or site-specific impacts (CEQA Guidelines, § 151168, subd. (d)). (DEIR, pp. 2-2 to 2-3.)

Although the legally required contents of a Program EIR are the same as those of a Project EIR, in practice there are considerable differences in level of detail. Program EIRs are typically more conceptual and abstract. They contain a more general discussion of impacts, alternatives, and mitigation measures. (DEIR, p. 2-3.)

To keep the analysis of impacts in this Program EIR in perspective, the County of Riverside is approximately the size of the State of New Jersey (approximately 7,295 square miles). It includes well-established urban, suburban, and rural communities. It has an extensive array of agricultural lands, lands devoted to mineral extraction, and recreational areas. There are rugged mountains, flat valley areas, open desert, and expansive natural open space areas. The variety of geographic zones has an influence on climate which, in turn, affects biodiversity, energy usage (for air conditioning and heating), water usage (for agriculture and landscaping), wild fire hazards, flood hazards, air quality (heat, wind patterns, topography), water quality (natural salinity), and soil types (prime farmland) within the County. In addition, the County contains vast expanses of federal and Native American lands and 24 incorporated cities that are not under the land use control of the County. The analysis in a Program EIR for a county this size is not intended to be site-specific (e.g., determining the level of service for intersections within the County), but is a more broad analysis. For instance, the traffic analysis determines whether the roadway widths proposed in the General Plan Circulation Element will accommodate the planned land uses. The Program EIR does not, however, determine fair share roadway improvements for individual future development projects. These fair share improvements that development will be responsible to build or pay for will be determined during subsequent environmental review on a case-by-case basis. (DEIR, p. 2-3.)

Therefore, the Program EIR will help determine the need for subsequent environmental documentation. Parameters by which a lead agency can determine the need for additional environmental documentation are contained in the CEQA Guidelines. (See CEQA Guidelines, §§ 15160 to 15170.) (DEIR, p. 2-3.)

IX.
GROWTH INDUCEMENT

CEQA requires a discussion of the ways in which the proposed General Plan could be growth inducing. CEQA Guidelines Section 15126.2, subdivision (d), identifies a project as growth inducing if it fosters economic or population growth, or the construction of additional housing, either directly or indirectly, in the surrounding environment. New employees from commercial and industrial development and new population from residential development represent direct forms of growth. These direct forms of growth have a secondary effect of expanding the size of local markets and inducing additional economic activity in the area. Examples of development that would indirectly facilitate growth include the installation of new roadways or the construction or expansion of water delivery/treatment facilities. (DEIR, p. 5-6.)

Section 5.3 of the DEIR provides a discussion of growth inducing impacts of the General Plan. As discussed in that section, the proposed General Plan would result in growth. Based on the definition of growth inducement, a General Plan is inherently growth inducing. Moreover, the growth permitted by the proposed General Plan leads to significant unavoidable adverse impacts. The proposed General Plan is a master plan providing the framework by which public officials will be guided on making decisions relative to development within Riverside County. However, it is the implementation of land use policies that will incrementally increase demands for public services, utilities, and infrastructure, and the need for medical, educational, and recreation facilities. (DEIR, p. 5-8.)

X.
CUMULATIVE IMPACTS

"Cumulative impacts can result from individually minor but collectively significant projects taking place over a period of time." (CEQA Guidelines, § 15355, subd. (b).) Section 15130 of the CEQA Guidelines requires that an EIR include a discussion of the potential cumulative impacts of a proposed project. Cumulative impacts are defined as "two or more individual effects which, when considered together, are considerable or which compound or increase other environmental impacts." (CEQA Guidelines, § 15355.) "The cumulative impact from several projects is the change in the environment which results from the incremental impact of the project when added to other closely related past, present, and reasonably foreseeable or probable future projects." (CEQA Guidelines, § 15355, subd. (b).)

The cumulative discussion in the EIR for the 2002 Riverside County General Plan analyzed the cumulative effects of the entire RCIP, including the proposed General Plan, the proposed Western Riverside County MSHCP and the proposed CETAP. Even though the MSHCP and the CETAP are undergoing separate environmental documentation, they were considered as foreseeable future projects as a part of the actions of the County. In addition, the cumulative analysis considered the build out of not only the proposed General Plan, but the build out of all incorporated cities within the County. (DEIR, p. 5-10.)

Cumulative impacts were analyzed in Section 5.4 of the FEIR. (DEIR, pp. 5-8 to5-17.) Of the 19 identified significant cumulative impacts, three were identified as significant and unavoidable. (DEIR, pp. 5-11 to 5-17.) These impacts include the loss of Prime, Unique, or Statewide Important agricultural lands, air quality, biological resources. (DEIR, pp. 5-11 to 513.) Section XIII, infra, of these Findings addresses each impact individually.

XI.
SIGNIFICANT IRREVERSIBLE ENVIRONMENTAL EFFECTS

Section 5.2 of the DEIR examined "significant irreversible environmental effects." Approval and implementation of actions related to the proposed General Plan would result in an irretrievable commitment of non-renewable resources such as energy supplies and other construction related materials. The energy resource demands would be used for construction, heating and cooling of buildings, transportation of people and goods, heating and refrigeration, lighting, and other associated energy needs. (DEIR, p. 5-5.)

Environmental changes with implementation of the proposed General Plan would occur as the physical environment is altered through continued commitments of land and construction materials to urban and rural development. There would be an irretrievable commitment of labor, capital, and materials used in construction and a permanent loss of open space. Nonrenewable resources would be committed primarily in the form of fossil fuels and would include fuel, oil, natural gas, and gasoline used by vehicles and equipment associated with implementation of the proposed General Plan. (DEIR, p. 5-5.)

The consumption of other non-renewable or slowly renewable resources would result from the development of the proposed General Plan. These resources would include, but not be limited to, lumber and other forest products, sand and gravel, asphalt, steel, copper, lead, and water. Because alternative energy sources such as solar, geothermal, or wind energy are not currently in widespread local use, it is unlikely that real savings in non-renewable energy supplies (e.g., oil and gas) could be realized in the immediate future. (DEIR, p. 5-5.)

Development within Riverside County as envisioned by the proposed General Plan would result in the construction of structures, facilities, and/or infrastructure on lands that are currently undeveloped. Development of lands would generally result in their future and permanent commitment to urban uses. (DEIR, p. 5-5.)

XII.
CONSISTENCY WITH REGIONAL PLANS

CEQA Guidelines Section 15125, subdivision (d), requires that any inconsistencies between a regionally significant project and regional plans be discussed. Southern California Association of Governments (SCAG) regional plans cover the proposed project area and five other counties in Southern California. SCAG's regional plans that require a consistency discussion are the Regional Comprehensive Plan and the Regional Transportation Plan administered by SCAG. (DEIR, p. 5-17.) The proposed General Plan is consistent with these two plans, as discussed in Sections 5.5.1 and 5.5.2 of the DEIR, and as noted by SCAG in its comments on the DEIR. (DEIR, p. 5-24; FEIR, pp. 2-131 to 2-132.)

Consistency with applicable Air Quality Management Plans and Air Quality Attainment Plans, as well as the air quality State Implementation Plan, is discussed in Section 4.5 of the DEIR. (DEIR, pp. 4.5-26.) Consistency with applicable Habitat Conservation Plans and Natural Community Conservation Plans is discussed in Sections 4.2 and 4.6. (DEIR, pp. 4.2-11, 4.6-18, 4.6-30.) Section 4.2 also contains an analysis of consistency with relevant Airport Land Use Plans and Riverside County LAFCO policies. (DEIR, pp. 4.2-12 to 4.2-14.) The DEIR concluded that through its proposed policies, implementation of those policies, and mitigation measures, the proposed General Plan is consistent with all of these plans. (See DEIR, pp. 4.2-11 to 4.2-14, 4.5-26, 4.6-30.)

Furthermore, on May 22, 2003, the Riverside County Airport Land Use Commission (ALUC) voted unanimously to certify that the new Riverside County General Plan is consistent with the Airport Land Use Plan, provided that certain policy revisions were included to ensure consistency and to improve the General Plan's system of identifying and resolving potential airport land use conflicts. The proposed policy revisions were included in Exhibit I, Final Changes to the RCIP General Plan Amendment No. 618, Land Use Management Agency's Submittal to the Board of Supervisors, dated October 7, 2003, and approved by the Board on October 7, 2003.