INTRODUCTION

Most of man's activities require an area of land and the space above it. The Open Space Element focuses on those activities which use extensive land areas with little development of permanent structures. Open space uses such as agriculture, grazing and timber production occupy most of Butte County and are important both to the economic system and to the quality of our environment. This plan considers each type of open space land in the County, why it is important, and policies and actions to preserve these areas.

OPEN SPACE VERSUS URBAN DEVELOPMENT

Open space uses differ from urban land uses in their intensity and degree of development. Compared to rural areas, cities are areas of concentrated activity and dense population., Much of the land surface in urban areas is covered with pavement, buildings and other man-made objects. Walls, fences, property lines and the circulation system tend to separate activities and divide up the space. Because urbanized land is intensely used and substantially occupied, it is "closed" space rather than "open" space.

Human growth and progress tends to convert open space to urban land uses. As human technology advances, a smaller proportion of people need devote their time to the primary economic activity of producing food and fiber from the land. The cities grow as people leave the land and move near concentrations of businesses and services. As the population increased urban areas must expand into the surrounding open space, preempting the less-intense rural land uses.

The major objective of the Land Use Element is to provide suitable spaces for all land use, but especially urban uses which must relate closely to each other and to public facilities. The Land Use Element designates the amount and location of land allocated for urbanization before the year 2000. The designated urban areas are extensions of the existing cities which have a full range of public utilities and services. The other small communities of the County are not designated as urban areas because they do not have the numbers of people to support a wide range of urban facilities.

The development of small isolated residential areas creates several public problems other than the reduction of open space. Some urban development disrupts rural activities and spoils the land's scenic qualities. Another problem is the premature creation of lots which don't sell and can't be build upon. Many isolated residential developments are difficult to provide with public services. It is true that such subdivision con increase property tax revenues. However, they can be a fiscal drain on the County when enough scattered development has taken place to require such services as road improvement, snow removal, schools, waste disposal, police and fire protection.

AGRICULTURAL LAND

The County's agricultural land is located on the Sacramento Valley floor and in the low foothills of the Sierra Nevada. These are the areas of alluvial deposits and deep permeable soils that are indicated as Classes 1 to 4 on the Soils Map. According to the Agricultural Crop Report, 52% of the County was used for agricultural crops in 1972. Butte County is a leader in acreage devoted to rice, nuts, fruit and olives. Another agricultural use requiring extensive open space is the raising of cattle, sheep and goats. Most of the County's grazing land is located on less-than-prime soils in the foothills.

Agricultural crops in Butte County had a record value of $74,296,000 in 1973. The income received by producers is distributed to suppliers of goods and services and thereby multiplies the economic importance of agriculture. Agricultural land uses also produce far more in tax revenues than they require in local government expenditures.

The irreversible conversion of agricultural land to urban use threatens both the production of food and income from agriculture. Much of the growth of the cities in the County has been at the expense of the productive land which economically supports those same cities. This unfortunate growth can be explained by the level surface and permeable soil of these areas; such land is suited to both agriculture and urban development. Conversion of agricultural land occurs when the urban land users want the land want the land for sub-urban residences or other "higher" uses and can offer sufficient profits to the property owner to induce him to subdivide, sell or build.

County government can prevent urbanization of prime agricultural land through its legal authority to regulate private land use for the public welfare. California courts have upheld the Constitutionality of zoning to preserve resource-productions areas. Zoning regulations can restrict the use of land, require use permits and specify the minimum parcel size. It is appropriate to set large minimum lot sizes for agricultural areas since small parcels can rarely be used economically for agriculture.

Article XXVIII of the California Constitution declares that it is in the interests of the State to preserve lands used for the production of food and fiber and that assessment practices must be so designed. The Williamson Act has attempted to implement this objective. According to its provisions, an agricultural landowner can enter into a contract with the County that commits has land to open space uses for ten years. About 95,000 acres of the County is under contract at this time but less than half of that is classed as "prime agricultural land" by Williamson Act definition. In assessing the property, the tax assessor is directed to consider the contract restrictions and the income from agriculture, rather than the urban development potential. The State then reimburses the County for any tax losses.

TIMBER LAND

More than a third of the County is forested. Some of the valley hardwoods, especially oak and walnut, are commercially valuable, but the most valuable forests grow above 1,500 feet elevation. Here ponderosa pine and Douglas Fir is harvested to be processed into building materials and pulp products. Much of this highly productive land is owned by large private firms; Diamond International. Louisiana Pacific, Souther Pacific, Soper-Wheeler. 124,000 acres is included in the Lassen and Plumas National Forests.

The preservation of this timber land is important to the County for several reasons:

A large percentage of the County's labor force is employed in the wood products industry, and the potential exists for future expansion, especially in pulp and paper production.

Like most resource-production activities, the lumber industry is a basic economic activity which brings income into the County. One quarter of National Forest earnings are also turned over to local governments; Butte County received $196,271.52 in 1972 from Plumas National Forest.

Residential construction in Butte County will continue to require wood products. However, the financial situation of timber companies discourages reforestation and encourages the sale and conversion of productive timber land.

The County's forested mountains are valuable as many types of open space; timber land, scenic areas, watershed, wildlife habitat, recreation sites, natural areas. The U.S. Forest Service recognizes these many functions in their multiple-use concept of management. A variety of activities are allowed to use National Forest land without destroying it.

These are several possible ways to preserve the protect timber land. Lumber can be obtained with minimum environmental impact and reforestation afterwards. Tax laws can weaken the economic pressures to convert timber land. Urban development can be regulated, limited or prohibited.

WATER RESOURCE AREAS

Butte County has an abundance of water resources. Precipitation ranges from 18 inches per year along the Sacramento River to 90 inches in the mountains. Surface water bodies cover 30 square miles of the County; this doesn't include the many rivers, streams and canals. Several of the County's waterways have been designated as significant water resources by the State; Sacramento River, Big Chico Creek, Butte Creek, Butte Sink, Lake Oroville, Feather River and its Middle Fork.

Water resources are essential to our existence in many different ways. We consume water directly. Water is required for the growth of food crops, livestock, forests, fish and wildlife. We use water for cooking, sanitation, fire protection and manufacturing. Water resources create recreational and scenic opportunities.

To reach surface water bodies precipitation must fall on the land and move downward in rivers and streams. The quantity, quality and rate of flow of water from the land is largely determined by vegetation, soil characteristics and surface slopes. Man also has a great influence through his control of land uses and vegetation. The management of watersheds is an important as the control of surface waters to the preservation of water resources.

Man's activities often upset the ecological balances of good watersheds. Rates of water evaporation and transpiration can change when trees are cut. Roofs, pavement and other impermeable surfaces prevent natural absorption and increase run-off. Any development in mountain areas that requires site clearance or road construction can create heavy sediment loads that can ruin fishing waters and fill up channels and reservoirs. The chemical pollutants we produce can harm or destroy animal species.

WILDLIFE HABITAT

A suitable habitat for wild animals must include sufficient food, water, cover and space. Butte County has an abundance of suitable natural areas, but their value as wildlife habitat is deteriorating as urban development continues.

The largest habitats shown on the Wildlife Map are the seasonal ranges for migrating deer herds. The summer ranges are the high altitudes of the National Forests. In winter the herds move down to the oak, grass and chaparral vegetation between 500 and 2,000 feet elevation. However, these winter ranges are also areas of substantial residential developments near Cohasset, Concow, Yankee Hill, Berry Creek, Lake Wyandotte and Bangor.

Several other areas are important habitats for smaller animals. The seasonal and permanent marshes of Butte Sink and the Grey Lodge Waterfowl Management Area support many waterfowl. The shores of the Sacramento River and the Feather River below Oroville provide cover for a wide variety of wildlife; pheasant, quail, doves, songbirds, fur-bearing mammals.

Lake Oroville and all of the County's larger streams are highly valued as habitat for such fish as trout, salmon, striped bass, shad and warm water species. The maintenance of their premium classification depends on the surrounding land uses. Erosion caused by urban development often creates waterborne sediments which can destroy spawning beds and aquatic insect production.

OPEN SPACE FOR OUTDOOR RECREATION

Outdoor recreation areas are plentiful in Butte County. Most of the National Forest land is available for outdoor recreation activities. Recreational sites in the Plumas National Forest include 39 campgrounds, 14 picnic areas, and several hundred miles of hiking and jeep trails. Much of the mountain lands owned by timber companies can also be used for recreational purposes. The State Department of Parks and Recreation manages the extensive recreation facilities around Lake Oroville and the Thermalito Bays. Local recreation areas in Butte County are maintained by the four cities and the five recreation districts. One of the local facilities, Bidwell Park in Chico, is the second-largest city park in the country.

The existing Recreation Element of the General Plan describes public recreation facilities in the County and discussed the recreation needs of residents and tourists. However, no new projects were proposed and no suitable sites were recommended for acquisition.

County government has only recently begun to assume a role in the provision of recreational facilities. The Lime Saddle boating area was managed by the County from July, 1969, to March, 1973. A committee of local recreation agencies has just been formed, and with County-level assistance, will evaluate recreational needs and determine the priorities for expenditure of the County's allocation of State recreational funds.

Some recreational activities involving vehicles and/or travel require linear areas or corridors.

Trails for hiking, bicycling and horse-riding are the narrowest type of recreational corridor. These three activities do not use the same corridors because bicycles need a smooth surface with gradual slopes.

The operators of cycles, jeeps and dune buggies prefer unpaved open areas with moderate slopes. The widest type of recreational corridors are scenic highways in rural areas with a rolling or mountainous topography.

AREAS WITH DEVELOPMENT HAZARDS

Some open space lands should remain open, not to protect environmental resources, but because of the presence of development hazards. Buildings can be irreparably damages by "Acts of God" in special areas such as flood plains, unstable soil areas, earthquake fault zones and areas of high fire risk.

The Flood Control map shows the flood plains of the Sacramento River and its tributaries. Preliminary study indicates that there are no active earth faults in the County. The existence of unstable soil areas is also a matter of conjecture until more detailed geologic data is obtained.

This geologic information will be obtained in the preparation of the Seismic and Safety Elements of the General Plan.

It is known that portions of the Sierra foothills have a high risk of fire damage. However, these areas are not yet mapped accurately. The preparation of the Safety Element will also require the designation of fire hazard areas. Another newly-mandated General Plan Element is the Noise Element. This will require the mapping of noise levels around airports and major highways.

RECOMMENDATIONS

Open Space versus Urban Development

The County should set large minimum parcel sizes for open space lands outside the urban areas indicated on the Land Use Plan Map. "Urban development" would then be defined as the creation or use of smaller parcels.

The County should not allow urban development of open space land described in this plan.

Studies should be conducted to determine the urban development capabilities of the foothill and mountain areas.

The County should allow urban development only in areas physically suited to such use.

The County should discourage urban development isolated from existing development and urban centers unless such a need can be determined.

The County should permit the creation of residential parcels near large numbers of vacant sites of similar characteristics only if such a need can be demonstrated.

The County should designate, at lease once every five years, the land available for urban development.

Agricultural Lands

All "prime agricultural land" (as defined in the Williamson Act outside designated urban areas (amended December, 1976) should be designated as "Agricultural" on the Land Use Plan Map.

Agricultural zones should allow only open space uses described in this plan and necessary related structures.

A minimum parcel size of 5 to 160 acres should be specified for each agricultural zone.

The County should encourage all agricultural land owners to enter open space agreements.

The County should support all State and federal legislation designed to preserve soil and agricultural land.

Timberland

Studies should be conducted to determine the multiple-use capabilities of forested areas.

The County should determine the forest areas which are to remain in the various open space classifications and designate them on the Land Use Plan Map.

The County should not allow in timber-mountain areas the construction of any roads or buildings which are not necessary to open space uses.

Logging practices should be studied and regulated to preserve the land's potential for timber production.

The County should encourage the owners of timberland to enter open space agreements.

Water Resource Areas

Studies should be conducted to determine the erosional characteristics of mountain watersheds in the County.

No urban development should be permitted on highly erodible land.

Logging, mining, recreational vehicles and other open space uses should be regulated to prevent erosion and protect water resources.

The County should control land use and water pollution in accordance with State water quality control guidelines.

Wildlife Habitat

The County should encourage the creation and expansion of conservation and natural wilderness areas.

The County should regulate residential development in the foothills to facilitate the survival and migration of deer herds.

The County should not allow any urban development in the Butte Sink area, the marshes near the Sacramento River and the borrow area along the Feather River.

The County should not allow any urban development which would increase sediment loads in prime fishing waters.

Open Space for Outdoor Recreation

The County should financially or politically assist the development or recreation facilities commonly used by people outside the City or district.

The Butte County Association of Governments should coordinate the distribution of State and federal grants to local recreation agencies.

The County should encourage the State Department of Parks and Recreation to complete their development of recreational facilities in the Lake Oroville State Recreation Area.

The Recreation Element should be revised by updating the description of existing facilities, by estimating future needs, and by designating suitable sites for future development.

The County's scenic corridors should be analyzed and a Scenic Highways Element prepared.

The County should encourage the development of suitable private and commercial outdoor recreation areas, especially campgrounds and off-road vehicle areas.

Areas with Development Hazards

The County should not allow urban development in designated flood plains.

Areas of unstable soil, earthquake faults and high fire risks should be located, studies and mapped as a guide to the use of such lands.

The County should plan for protection from fires and geologic hazards by preparing and adopting the Seismic and Safety Elements.

The County should prepare a Noise Element that indicates areas with high noise levels.