Orange/Los Angeles Boundary Report - DocumentCloud
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Orange/Los Angeles Boundary Report
Orange/Los Angeles Boundary Report Revised June 30, 2008
Prepared by Orange County LAFCO
Table of Contents Orange/Los Angeles Boundary Report EXECUTIVE SUMMARY ....................................................................................................................................... 1 INTRODUCTION .............................................................................................................................................................. 1 BACKGROUND ............................................................................................................................................................... 1 SUMMARY OF POTENTIAL BOUNDARY ADJUSTMENTS ........................................................................................................... 1 COUNTY BOUNDARY PROCESS .......................................................................................................................................... 4 HISTORY OF BOUNDARY BETWEEN ORANGE AND LOS ANGELES COUNTIES ........................................................ 5 “THE BEGINNING FOR LOS ANGELES COUNTY” .................................................................................................................... 5 “ALONG CAME ORANGE COUNTY” .................................................................................................................................... 6 THE LOS COYOTES FLOOD CONTROL CHANNEL ..................................................................................................................... 7 POTENTIAL COUNTY BOUNDARY ADJUSTMENTS ................................................................................................ 9 CITY OF BREA ............................................................................................................................................................. 11 CITY OF BUENA PARK ................................................................................................................................................... 11 CITY OF LA PALMA ....................................................................................................................................................... 20 CITY OF LOS ALAMITOS ................................................................................................................................................ 23 CITY OF SEAL BEACH .................................................................................................................................................... 25 OTHER POTENTIAL COUNTY BOUNDARY ADJUSTMENTS .................................................................................... 29 ORANGE/RIVERSIDE COUNTY POTENTIAL BOUNDARY ADJUSTMENT ....................................................................................... 29 ORANGE/SAN DIEGO COUNTY POTENTIAL BOUNDARY ADJUSTMENT ..................................................................................... 30 PROCEDURES FOR CHANGING COUNTY BOUNDARIES ........................................................................................ 31 MINOR COUNTY BOUNDARY CHANGES ............................................................................................................................ 31 MAJOR COUNTY BOUNDARY CHANGES AND PROCEEDINGS .................................................................................................. 31 WHERE DO WE GO FROM HERE? – “NEXT STEPS” .............................................................................................. 33 COUNTY BOUNDARY PROCESS ........................................................................................................................................ 33 REPORT ATTACHMENT ....................................................................................................................................... 1 A.
LOS ANGELES LAFCO, COUNTY BOUNDARY STUDY, 1977 ........................................................................................... 1
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Orange/Los Angeles Boundary Report
EXECUTIVE SUMMARY Introduction The Orange/Los Angeles County Boundary Report provides an initial overview of potential adjustments to the county boundaries of Orange County and the neighboring counties of Los Angeles, Riverside and San Diego. This report also provides a brief discussion of the history of and issues associated with the identified boundary issues. The process of changing county boundaries is complex, and a process for ensuring input from stakeholders has also been proposed.
Background In July 2007, Orange County LAFCO completed a municipal service review for Northwest Orange County that included the cities of Buena Park, Cypress, Fullerton, La Habra, La Palma and Placentia. During the MSR process, the issue of an illogical boundary between Orange and Los Angeles counties was raised. The MSR process was not the first platform where the boundary issue has been raised. Inefficient boundaries along the shared border of the two counties have been the subject of past discussions among LAFCO, the staffs of several cities and both respective Board of Supervisors. Discussions have revolved around confusion in delivery of municipal services, duplication of services, and the need for clarity regarding boundaries within many areas along the Orange and Los Angeles boundary. An alternative to resolving many of these issues may be to change jurisdictional boundaries for many of these areas. However, because current law (Government Code Section 56741) states that territory may not be annexed to a city unless it is located in the same county, future discussions on this issue should begin with consideration of adjustments to county boundaries. It is recognized that LAFCOs do not have the authority to change county boundaries. Pursuant to Government Code Section 23200 et. seq, the authority to adjust county boundaries rests solely with the County Board of Supervisors. Information on this process is provided in detail within the “PROCEDURES FOR CHANGING COUNTY BOUNDARIES” section of this report.
Summary of Potential Boundary Adjustments The following table provides a summary of the areas of potential county boundary adjustments discussed in this report. The table lists each city (by county), the adjustment area, and map references as depicted in the report. The table also provides a brief discussion of issues associated with each potential boundary adjustment. More details, including current land use, population and location, are provided in a later section of this report.
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Orange/Los Angeles Boundary Report
Orange County LAFCO Boundary Report Summary of Potential County Boundary Adjustments
City Affected (Orange County) Brea
Orange/Los Angeles Potential Boundary Adjustments City Affected Area Map (Figure #) (Los Angeles County) One area; 3,000 Diamond acres Bar/unincorporated LA Cty
Buena Park
La Mirada
Areas 1 thru 8; residential, commercial, industrial uses
Figures 1.0 thru 1.7
Buena Park Fullerton
La Mirada
Area 9; commercial
Figure 1.8
Cypress
Hawaiian Gardens
Areas 1 & 65 mobile home park
Figure 2.0 Figure 2.3
Cypress, La Palma
Cerritos, Lakewood
Area 2
Figure 2.1
Cypress
Unincorporated LA Cty
Area 3; residential
Figure 2.2
Cypress
Lakewood
Area 4; multi-family residential
Figure 2.2
La Palma
Cerritos
Areas 1 thru 4; public parks, commercial, residential
Figures 3.0-- 3.3
Los Alamitos
Long Beach
Areas 1 thru 4; public park, residential
Figures 4.0- 4.2
Notes In planning stages for eventual development; not recommended to be included at this time Confusion regarding delivery of municipal services
Adjustment involves 3 cities; primary access thru Fullerton Development and individual parcels split between two cities Includes Del Amo Bridge; current discussion among cities underway Small unincorporated island w/ access only thru Cypress Gated development w/access primarily through Cypress Parks currently maintained by Cerritos; residential areas w/primary access thru Cerritos Confusion regarding delivery of municipal services; residential development and individual parcels split between two
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Seal Beach
Long Beach
Areas 1 thru 4; harbor area, mobile home park, residential, industrial, small public park
Orange/Riverside Potential Boundary Adjustment City (Orange) City (Riverside) Area San Juan Rancho Carillo One area; gated Capistrano (unincorporated) community with access only thru Orange County
Figures 5.0- 5.3
Map (Figure #) Figure A.1
Orange/San Diego Potential Boundary Adjustment City (Orange) City (San Diego) Area Map (Figure #) San Clemente Unincorporated SD Cty One area; San Figure A.2 Onofre Power Plant, marine corps housing
cities Confusion regarding delivery of municipal services
Notes Resident -driven request to change boundaries
Notes Past discussions were unsuccessful
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Orange/Los Angeles Boundary Report
County Boundary Process OC LAFCO staff has developed a process for further exploration of the potential county boundary adjustments referenced above. If supported by both affected Boards of Supervisors, the process would include a collaborative effort involving affected agencies and communities for further exploration of the areas. The diagram below represents the proposed process. Additional details on the process are also provided in the “Next Steps” section of this report. Diagram of Proposed County Boundary Process
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OC BOS Consider OC LAFCO Boundary Report
•Chairman Moorlach contact/meet with members of Los Angeles BOS (ongoing) •OC LAFCO makes contact with affected agencies & prepares for boundary workshop
II. Boundary Workshop
Proposed County Boundary Process III. Boundary Adjustments
IV. OC/LA LAFCO Subsequent Boundary Actions
•Workshop to review/discuss technical procedures for making boundary adjustments (boundary workshop to be facilitated by LAFCO consultant) •Review potential boundary adjustments •Identify next steps as group and/or by agency •Conduct 2nd Workshop (OPTIONAL) to validate boundary changes & develop implementation plan
•LAFCO presents recommendations on boudary adjustments developed by interested agencies to OC/LA BOS •OC/LA BOS jointly consider/approve boundary adjustments
•LAFCO develops timeline for subsequent boundary actions in sonsultation with LA LAFCO •City Council (s) adopt initiating resolution(s) for subsequent actions •LAFCO staff provides support to agencies for preparing and processing of subsequent actions
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Orange/Los Angeles Boundary Report
HISTORY OF BOUNDARY BETWEEN ORANGE AND LOS ANGELES COUNTIES “The Beginning of Los Angeles County” On February 18, 1850, the County of Los Angeles was established as one of the 27 original counties in the State, several months before California was admitted to the Union. The people of Los Angeles County on April 1, 1850 asserted their newly won right of self‐ government and elected a three‐man Court of Sessions as their first governing body. A total of 377 votes was cast in this election. In 1852 the Legislature dissolved the Court of Sessions and created a five‐member Board of Supervisors. In 1913 the citizens of Los Angeles County approved a charter recommended by a board of freeholders (land owners) which gave Los Angeles greater freedom to govern itself within the framework of state law. The size of Los Angeles County has changed over the years. It went from being a small county along the coast to being a large county extending to the Nevada border and then to again being a relatively small county in area. During the early 1850s, a large territory that was formerly a part of Mariposa County was added to the Los Angeles boundary. Some lands that were formerly in Santa Barbara County were also added near this time. In turn, over many years to follow, territory that at one time was a part of Los Angeles County was added to six other counties: Inyo, Kern, Orange, Riverside, San Bernardino, and Ventura Counties and a new county (Orange) was formed to include territory that was originally a part of the Los Angeles boundary. Today, Los Angeles County consists of approximately 4,752 square miles and is home to over a quarter (approximately 10 million) of all California residents. The boundary includes 88 incorporated cities and many unincorporated areas.
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“Along Came Orange County” In 1880, the region that is now Orange County still belonged to Los Angeles County. Population in the area was growing rapidly with cities now known as Anaheim and Santa Ana deemed as important population centers. However, residents of the southern part of then Los Angeles County were frustrated with the governance structure and contended that there was far less investment in roads and bridges in their areas than nearby Los Angeles (the only bridge over the Santa Ana River at that time was a railroad bridge) and sheriff protection was considered inadequate. They argued that County offices were mainly held by Los Angelinos leaving the southern residents feeling disenfranchised and neglected. Hence, an effort was begun to form a separate county. The charge to form a new county was not welcomed with open arms and came up against strong opposition from Los Angeles County. Another California neighbor, San Francisco, supported the effort in order to hobble growing competition from Los Angeles. Because of successful lobbying led by Los Angeles, efforts to create a new county were repeatedly unsuccessful in 1871, 1873, 1876 and 1881. In 1888 through the persistent efforts of proponents, the State Legislature, convinced that Los Angeles County was neglecting the south county area, approved the formation of the a new county. The only issue left for deciding was where to draw the boundary between Los Angeles and Orange County. Santa Ana pushed for creation of a new county boundary at Coyote Creek in the north. Anaheim, seeing itself as the central county seat, pushed for the boundary to be at the San Gabriel River. When state legislators agreed to set the boundary at Coyote Creek, furious Anaheim promoters turned into opponents of the new county and as a result the effort failed. In 1889, the effort was revived by Attorney Eugene Edwards of Santa Ana who was re‐elected to the State Assembly on a county separation platform. He introduced a bill to create a new county south of Coyote Creek. OC lobbyists’ efforts were effective around Sacramento since they spent as much as $50,000 to get the legislature to approve formation of a new county. The bill was successfully approved with 64‐6 vote in the Assembly and a 28‐8 vote in the Senate. The name "Orange" was adopted for the proposed new county and in March 1889, Governor Robert Waterman signed the bill and the matter was left to a vote of the residents. That summer voters, in a 2,509 to 500 decision, approved formation of the new county and Orange County was born. At that time the County included only three incorporated cities: Anaheim, Santa Ana, and Orange.
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The first Orange County (OC) Board of Supervisors met on August 5, 1889. Among their first official acts was to reject bills from Los Angeles County totaling $11,375, most of which were for a bridge over the Santa Ana River. Los Angeles County failed to secure payment after three lawsuits and appeals. Today, Orange County includes approximately 948 square miles, 34 incorporated cities, and relatively few unincorporated areas. Based on geography, Orange County is the smallest county in Southern California. However, the county is home to approximately 2.8 million residents, making it the second most populous county in California.
Past County Boundary Adjustments Between Orange and Los Angeles Adjustments to County boundaries are not common occurrences. Since Orange County was created (1889), there have been only three minor boundary adjustments. Two of the adjustments were between Orange and Los Angeles counties. Adjustments to the boundaries require the collaboration of the respective counties, LAFCOs, and cities that recognize that current boundaries create inefficiency in service provision. Ultimately, any boundary adjustment requires the approval of each county’s Board of Supervisors. If it involves incorporated territory, changes must also involve the affected cities since a city cannot have territory in two counties and any change in a city’s boundaries must be approved by that city. Finally subsequent actions (i.e., sphere amendments, annexations) require LAFCO approval.
The Los Coyotes Flood Control Channel Rancho Los Nietos, awarded to Manuel Nieto in 1784, was the largest Spanish land grant in Alta California. It was 300,000 acres, extending from the San Gabriel River, to the west, and the Santa Ana River to the east. Today, parts of Long Beach, Lakewood, Downey, Norwalk, Santa Fe Springs, Whittier, Fullerton, Huntington Beach, Bolsa Chica State Beach, Seal Beach, Anaheim, Buena Park, Garden Grove, and many smaller cities including Artesia and Cerritos are located on what was once the enormous Nieto Rancho. On May 22, 1834, Alta California governor José Figueroa officially declared the Los Nietos grant under Mexican rule and ordered its partition into six smaller ranchos: Las Bolsas, Los Alamitos, Los Cerritos, Los Coyotes, Santa Gurtrudes and Palo Alto. Juan José Nieto received Rancho Los Alamitos, Rancho Los Coyotes and Rancho Palo Alto. The property, which included the Coyote
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Hills and most of the Arroyo de los Coyotes, is now called Coyote Creek, and in 1889 it became the boundary between Los Angeles and Orange Counties.1 Coyote Creek Channel is a major tributary of the San Gabriel River. At its confluence with the San Gabriel River, it carries the accumulated flow from approximately 100,000 acres. The slope of the stream‐bed of Coyote Creek extends from the San Gabriel River to the crest of the Puente Hills above the City of Brea.2 Over the years, many improvements to the channel have been carried out and it is these improvements which have, in some areas, created the boundary issues addressed in this report. Today, Coyote Creek extends from the cities of Seal Beach (OC) and Long Beach (LA) to Brea (OC) and La Mirada (LA). Maintenance of the channel is currently provided by the Counties of Orange and Los Angeles and the City of La Habra (See Exhibit A). Exhibit A – Maintenance of Los Coyotes Flood Control Channel
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http://en.wikipedia.org/wiki/Rancho_Los_Nietos, Rancho Los Nietos, From Wikipedia, the free encyclopedia
Preliminary Investigation and Report on the Coyote Creek Channel Bond Project A‐1, Orange County Flood Control District, Santa Ana, California, September 1959
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Orange/Los Angeles Boundary Report
POTENTIAL COUNTY BOUNDARY ADJUSTMENTS The Orange County cities located along the common boundary of Orange and Los Angeles Counties include Buena Park, Cypress, Fullerton, La Habra, La Palma, Los Alamitos, and Seal Beach (Figure 1.0). The County of Los Angeles cities include La Mirada, Cerritos, Hawaiian Gardens, Lakewood, and Long Beach (See Exhibit B). These cities are separated by the Los Coyotes Flood Control Channel (formerly known as Coyote Creek), and state and local right‐of‐ ways. While there have been relatively few county boundary adjustments involving Los Angeles and Orange, there have been past discussions regarding realignment of the shared boundary to improve the delivery of services to residents. Back in 1977, the Los Angeles LAFCO (LA LAFCO) prepared a “County Boundary Study” (Attachment A) that discussed potential adjustments involving many of the areas included in this report. At that time, staff concluded that actions were required by both property owners and the Board of Supervisors, and that no further actions at the LAFCO level were necessary. In July 2007, Orange County LAFCO completed a municipal service review for Northwest Orange County, and the discussion of the boundary between Orange and Los Angeles counties resurfaced among the cities and the LAFCO staff. While it was recognized once again that LAFCOs do not have the authority to change county boundaries, the decision was made to prepare another boundary report to serve as background information should interest among the Boards of Supervisors and affected agencies be expressed.
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Orange/Los Angeles Boundary Report
Exhibit B – Orange/Los Angeles County Boundary Map
During preparation of the report, OC and LA LAFCO representatives met and discussed potential county boundary adjustments. Subsequently, the boundary report was presented to the Orange County Commission and the Orange County Board of Supervisors for consideration. The Board of Supervisors expressed interest in studying potential adjustments and the Chair requested that OC LAFCO staff report back with a proposed process and revised report for further exploration of the Orange/Los Angeles boundary issues. The following provides a summary of the areas identified in the initial boundary report presented to the Board of Supervisors on January 28, 2007 and other areas identified during subsequent discussions with LA LAFCO. Boundary issue discussions are grouped by city.
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Orange/Los Angeles Boundary Report
City of Brea
The City’s sphere of influence includes approximately 5,000 acres in an area located between the City’s northern boundary and the Los Angeles County border. The area is primarily uninhabited territory used primarily for oil production purposes. One property owner, Aera Energy, owns approximately 3,000 acres of territory located both in Brea’s SOI in Orange County and in the adjacent unincorporated area of Los Angeles County. Aera is planning a development for its entire land holding that is currently being processed through the City of Diamond Bar. The preliminary plans show development in a portion of Orange County immediately adjacent to the City of Brea. This portion of the development would best be served by the City of Brea due to street patterns, drainage and service provision. Because any county boundary adjustments adjacent to Brea and Diamond Bar involve future development for which more complex issues will need to be addressed, discussions involving this area should be conducted separately from other potential boundary adjustments.
City of Buena Park The City of Buena Park is adjacent to the Cities of Cerritos and La Mirada in Los Angeles County. Within the initial boundary report, a single area involving Buena Park and La Mirada was identified for potential boundary adjustment. The area, currently located in Buena Park’s SOI, includes an unincorporated island located in the northern portion of the city (Figure 1.0). While this area is within Orange County, residents more closely associate with the City of La Mirada since the area may only be accessed through La Mirada due to the adjacent Los Coyotes Flood Control Channel. Additionally, the mailing address of residents of the island includes a La Mirada zip code (90638) and residents presently receive U.S. mail from the La Mirada post office located approximately one mile away from area. Figure 1.0—Buena Park Boundary Adjustment Area (1)
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Orange/Los Angeles Boundary Report
Orange County recognized that there were service issues, particularly involving sewer service, within the unincorporated island adjacent to Buena Park. As a result, the County formed County Service Area (CSA) No. 13–La Mirada to provide for the maintenance of local collector sewers within the island. The CSA has a current budget of $5,878 and any future discussions regarding annexation of this area should include dissolution of CSA No. 13. During the Orange County LAFCO MSR process, the City of Buena Park agreed to discuss this issue but reiterated that they would not annex this area unless residents are willing to be annexed. LA LAFCO staff agreed to follow‐up with City of La Mirada and the residents to explore their interest in annexing. During subsequent discussions with LA LAFCO, several other areas (Areas 2‐9) have been identified. Brief discussions regarding these areas follow and are shown in Figures 1.1 ‐1.8. Buena Park Area 2 This area (See Figure 1.1) is currently within the city limits of Buena Park and is located west of the Los Coyotes Flood Control Channel. Land use within the area includes multi‐family residential. Because of the contiguity of this area to the unincorporated area shown in Figure 1.0, potential adjustments should include a concurrent review of both areas by the City. While this area is currently within Buena Park’s city limits, primary access to the area is through La Mirada. Figure 1.1 – Buena Park Boundary Adjustment Area (2)
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Orange/Los Angeles Boundary Report
Buena Park Area 3 Area 3 consists of a multi‐family residential area located in the City of La Mirada and east of the flood control channel. Access is primarily through the City of Buena Park. Figure 1.2—Buena Park Boundary Adjustment Area (3)
Buena Park Area 4 This area is currently located in the City of Buena Park, adjacent to the City of La Mirada and west of the flood control area. The area includes approximately 64 acres and is primarily residential with a small portion of commercial land use. Primary access to the area is through the City of La Mirada. Figure 1.3—Buena Park Boundary Adjustment Area (4)
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Buena Park Area 5 This area is currently located in the City of Buena Park, adjacent to the City of La Mirada and includes a small commercial area. This area is located west of the flood control channel with primary access through La Mirada. Figure 1.4—Buena Park Boundary Adjustment Area (5)
Buena Park Area 6 Area 6 is located within the city limits of La Mirada, adjacent to the City of Buena Park. It includes a small commercial area east of the flood control channel with primary access through Buena Park. Figure 1.5—Buena Park Boundary Adjustment Area (6)
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Buena Park Area 7 Area 7 is located west of the flood control channel and includes light industrial land use. Presently the territory is located in the City of Buena Park and adjacent to and primary access through the cities of La Mirada and Cerritos. Figure 1.6—Buena Park Boundary Adjustment Area (7)
Buena Park Area 8 Area 8 includes light industrial land use and is currently located in the City of Cerritos, adjacent to the cities of La Palma and Buena Park and east of the flood control channel. Primary access to this area is through Buena Park and La Palma. Figure 1.7—Buena Park Boundary Adjustment Area (8)
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Buena Park Area 9 This area is located in the City of La Mirada, adjacent to the cities of Fullerton and Buena Park. The proposed area includes commercial land use that is east of the flood control channel. The current boundary suggests that potential adjustment in this area may involve all three cities’ boundaries. Primary access to this area is through the City of Fullerton. Figure 1.8—Buena Park Boundary Adjustment Area (9)
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Orange/Los Angeles Boundary Report
City of Cypress The City of Cypress is adjacent to the Cities of Hawaiian Gardens and Lakewood in Los Angeles County. When OC LAFCO established the SOI for Cypress in 1973, it was noted that the alignment of the Los Coyotes Flood Control Channel created inefficient boundaries in the area. Today, the irregular boundaries remain. Cypress Area 1 Currently, Cypress provides street sweeping service through a contractual arrangement to a property located in the City of Hawaiian Gardens (Figure 2.0). Recognizing that this may not be the most efficient method for delivering service to this area, a potential boundary adjustment and annexation of this area to the City of Cypress were discussed during the MSR process. Figure 2.0 – Cypress Boundary Adjustment Area (1)
Cypress Area 2 In discussions regarding potential county boundary adjustments, issues were raised involving the ownership and current boundary of the Del Amo Bridge that is adjacent to the Cities of Cypress, La Palma, Cerritos, and Lakewood (Figure 2.1). These issues were raised by both the City of Cypress and LA LAFCO staff. It is unclear who owns the bridge, who is responsible for maintenance, and where the exact boundary lies. Currently there is a proposed project involving the bridge and all four cities are involved in the discussions. The cities have been asked to provide funding for the project, and Cypress has raised concerns that there is no access to the bridge through Cypress.
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Orange/Los Angeles Boundary Report
Figure 2.1—Cypress Boundary Adjustment Area (2)
LA LAFCO also discussed working with OC LAFCO on any potential boundary changes involving the bridge and adjacent cities. During the discussions with LA LAFCO of the county boundaries affecting the Cities of Cypress Hawaiian Gardens, Los Alamitos, and Long Beach, additional areas (Areas 3 thru 5) were identified; a discussion of those areas follows. Cypress Area 3 This area is located east of the Los Coyotes flood control channel and north of Crescent Boulevard adjacent to the City of Cypress (Figure 2.2). It includes a small unincorporated area of Los Angeles County with single‐family residential land use. Access to the area is through the City of Cypress. Cypress Area 4 This area is presently within the incorporated boundaries of City of Lakewood (Figure 2.2) and land use consists of multi‐ family residential. The area is located east of the Los Coyotes Flood Control Channel. Should the channel be determined as the logical boundary between Orange and Los Angeles counties, adjustments of these areas should be considered.
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Orange/Los Angeles Boundary Report
Figure 2.2 – Cypress Boundary Adjustment Areas (3 & 4)
Cypress Area 5 This area is south of Area 1 (shown in Figure 2.0) and is located within the same mobile home park development. Currently the mobile home park is located in the City of Hawaiian Gardens, east of the flood control channel with access adjacent to the City of Cypress. Figure 2.3 – Cypress Boundary Adjustment Area (5)
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City of La Palma Five potential areas located in La Palma where service delivery might be improved through an exchange of County territory were noted. Potential boundary adjustments in this area involve the cities of La Palma and Cerritos. La Palma Area 1 The first area includes two neighborhood parks (Rainbow Park and Bettencourt Park), both located in La Palma, but accessed through and maintained by Cerritos through a contract (Figure 3.0). As in many discussions regarding boundaries, the Los Coyotes channel was referenced as the most logical boundary between Orange and Los Angeles Counties (ideally, with territory east of the creek being Orange County and west of the creek in Los Angeles ). Discussions regarding any potential boundary change should address placing both parks within the jurisdiction of its current service provider, City of Cerritos. It is important to note that detaching an area from city’s boundaries would require consent from the city losing territory. Figure 3.0—La Palma Boundary Adjustment Area (1)
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Orange/Los Angeles Boundary Report
La Palma Areas 2 and 3 The next two areas are also adjacent to the Cities of La Palma and Cerritos and include La Palma/Orange County territory that extends west of the Los Coyotes flood control channel (Figure 3.1, Areas 2 & 3). Land use within these areas includes residential, commercial, and industrial. Figure 3.1 – La Palma Boundary Adjustment Areas (2 & 3)
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La Palma Areas 4 and 5 Additional exploration of the Orange/Los Angeles boundary has identified two (2) areas adjacent to the cities of La Palma and Cerritos. These areas (see Figure 3.2 & Figure 3.3), currently located in the City of Cerritos, consists of residential developments located east of the flood control channel with access from to the City of La Palma. Figure 3.2 – La Palma Boundary Adjustment Area (4)
Figure 3.3 – La Palma Boundary Adjustment Area (5)
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Orange/Los Angeles Boundary Report
City of Los Alamitos Los Alamitos Area 1 This potential boundary adjustment includes an area (located in City of Long Beach) that is adjacent to 3 residential parcels and Stansbury Park (located in the City of Los Alamitos) (Figure 4.0). The area within Long Beach can only be accessed through Los Alamitos. Subsequent to the municipal service review for Los Alamitos, the City proposed adjusting the boundary to include this area in Los Alamitos. Figure 4.0—Los Alamitos Boundary Adjustment Area (1)
The potential adjustment has been the subject of previous discussions involving staff from Orange and Los Angeles LAFCOs and the cities. Additionally, Supervisor Moorlach (Orange) and Supervisor Knabe (Los Angeles) have met to discuss. Both cities appear to be supportive of the potential change. Staff from Los Angeles and Orange LAFCO met to discuss next steps and agreed to identify this issue in the boundary report to move discussions forward. Los Alamitos Area 2 Another potential change involving the cities of Los Alamitos and Long Beach includes a residential area (Figure 4.1) located immediately north of the boundary area shown in Figure 4.0. This area is currently located in Long Beach and east of the flood control channel. Much like the previous area involving the same cities, current boundaries split property lines between two counties. Immediate access to the neighborhood is adjacent to the Cities of Los Alamitos and Cypress.
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Orange/Los Angeles Boundary Report
Figure 4.1 – Los Alamitos Boundary Adjustment Area (2)
Los Alamitos Area 3 The next potential boundary adjustment area consists of multi and single family residences located in Los Alamitos. Present boundaries split the multi‐family residential development between two cities – Los Alamitos and Long Beach. Current access to the entire area is through the City of Long Beach. Figure 4.2 – Los Alamitos Boundary Adjustment Area (3)
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City of Seal Beach There are four areas located in or adjacent to the City of Seal Beach where potential county boundary adjustments may occur. The City of Seal Beach is located in northwest Orange County adjacent to the cities of Los Alamitos, Huntington Beach, and Long Beach. All four potential boundary adjustments involve Seal Beach and Long Beach. Seal Beach Area 1 (Figure 5.0) includes a small portion of the Long Beach Harbor and a parking lot adjacent to a shopping center located in Long Beach and east of the San Gabriel River. During the boundary review, Seal Beach staff stated that the current boundary presents service delivery confusion that may be resolved if the county boundary is adjusted. Figure 5.0 – Seal Beach Boundary Adjustment Area (1)
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Orange/Los Angeles Boundary Report
Seal Beach Area 2 The second area (Figure 5.1) includes portions of a mobile home park and parking lot currently located in Long Beach, east of the San Gabriel River. Much like Area 1, service delivery to this area under the current boundary often includes confusion among service providers. Figure 5.1 – Seal Beach Boundary Adjustment Area (2)
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Orange/Los Angeles Boundary Report
Seal Beach Area 3 This area is currently located in the City of Long Beach, east of the San Gabriel River, and includes a small residential area (commonly known as “The Village”) and a power plant owned by the Los Angeles Department of Water Power. In the past, residents have approached the City of Seal Beach and expressed interest in detaching from Long Beach and annexing to Seal Beach. No application has ever been filed. Should residents file an application in the future, a county boundary adjustment would need to occur prior to detachment and annexation. Sentiments of current residents as well as the fate of the revenue for the power plant are currently unknown. Figure 5.2 – Seal Beach Boundary Adjustment Area (3)
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Seal Beach Area 4 This area is currently located in unincorporated Orange County adjacent to the cities of Long Beach and Seal Beach. The area is west of the San Gabriel River and includes small portions of a tennis court located in College Estates Park and a bridge that is currently located in the City of Seal Beach. According to discussions with Seal Beach staff, the portion involving the park is currently maintained by the City of Long Beach and is adjacent to College Park Estates. Based on these discussions, the exact boundary of this area also needs clarification. Figure 5.3 – Seal Beach Boundary Adjustment Area (4)
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OTHER POTENTIAL COUNTY BOUNDARY ADJUSTMENTS Adjustment of the boundary between adjacent counties is not an everyday occurrence. County boundary adjustments have occurred throughout the state as early as 1850 with the most recent one occurring in 1999 involving Orange and Los Angeles counties. The discussion of potential adjustments between Orange and Los Angeles has prompted some discussions about boundary adjustments between Orange County and both Riverside and San Diego Counties. Staff would like to point out that the following information is very preliminary and elected officials and staff from these counties have not participated in these discussions.
Orange/Riverside County Potential Boundary Adjustment Recently, residents of the Rancho Carrillo community expressed interest in joining Orange County. Rancho Carrillo (See Figure A.1) is a unique and small community consisting of large lot, ranch‐style homes located off of the Ortega Highway. Located in unincorporated Riverside County, the area is eight miles east of the City of San Juan Capistrano (Orange County). Surrounded by the San Mateo Canyon Wilderness and portions of the Cleveland National Forest, this gated community includes a population of approximately 500. Residents have stated that they patronize and utilize services provided by Orange County more than by Riverside County. Presently the area receives municipal services from Riverside and Orange County (Orange provides fire and emergency services through contractual arrangement with Riverside County) and a private mutual water company. Rancho Carillo also includes private roads which are the responsibility of property owners within the area.
Figure A.1 Unincorporated Rancho Carrillo
Staff from the OC Board of Supervisors (Second District) and OC LAFCO have met and provided information to residents regarding potential county boundary adjustment for the area. Future
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discussions regarding potential adjustments for the area should include representatives from the community, both counties, adjacent cities and other affected agencies. Additionally, residents have expressed interest in changing current jurisdiction of school boundaries for the area. Because of its close proximity to Orange County, some children residing in Rancho Carillo attend schools within the San Juan Capistrano School District through an intra‐county/district transfer. However, since LAFCOs have no authority over school district boundaries, OC LAFCO staff directed residents to the appropriate school district agencies to explore this jurisdictional change.
Orange/San Diego County Potential Boundary Adjustment Another neighbor of Orange County is San Diego County. The City of San Clemente, which is located in the southern part of Orange County, expressed interest in the 1980s in annexing the San Onofre Nuclear Generating Station which is located in the northern part of San Diego County. At that time, the city’s interest in annexing the plant, as expressed in a report authored by the Senate Committee on Local Government, was due mainly to its proximity (distance between city and plant is approximately 4 miles) and limited services provided to the area. It was also referenced in the report that a Marine Corps residential area near the plant considers their area to be a part of San Clemente as the children attend schools in Orange County and families patronize within Orange County.3 The plant and nearby residential area are currently unincorporated and shown on Figure A.2. Figure A.2 San Onofre Nuclear Plant/Nearby Residential Area
3
A Proposal for Allowing Cross-County City Annexations by Chris Laugenour and Peter Detwiler, November 1984
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PROCEDURES FOR CHANGING COUNTY BOUNDARIES There are two types of county boundary changes ‐‐ “minor” and “major” boundary changes. All of the potential areas of adjustment between Orange and Los Angeles Counties would be considered “minor” changes but both procedures have been described below and are shown in the attached flow chart (Figure 1.6)
Minor County Boundary Changes Procedures for minor changes were adopted by the legislature to allow a more simplified process for counties to approve changes to the boundaries of their counties (Govt. Code § 23200.). A minor change is defined as one that: • Does not move boundaries more than five miles from its original location. • Does not reduce by more than 5% the area of any affected county. • Does not reduce, by more than 5%, the population of any affected county "as determined by the State Department of Finances most recent estimate of population." Proceedings The process for minor changes in county boundaries is similar to LAFCO’s process. Proceedings for minor boundary changes may be initiated by petition of either county or by a petition signed by 25% of the registered voters or landowners in the area (Govt. Code § 23203). Once the board of supervisors of the initiating county adopts this resolution, it must file it with the board of supervisors of the other affected county (Govt. Code § 23204). Within thirty (30) days of receiving the resolution adopted by the initiating county, the board of supervisors of the other affected county, called the "conducting county,” must adopt a resolution which sets a public hearing (Govt. Code § 23206). The public hearing on the boundary change must be held jointly with the board of supervisors of the other affected county (Govt. Code §23208). At the hearing, if less than 25% written protests are received, the board of supervisors of each affected county must adopt substantially similar ordinances approving the proposed boundary change not later than thirty (30) days after the conclusion of the hearing (Govt. Code § 23210). If more than 25% but not more than 50% written protests have been received before the conclusion of the hearing, the board of supervisors of each affected county shall set a time for an election (Govt. Code §23210(c). However if more than 50% written protests are received, the board of supervisors for the conducting county must adopt a resolution abandoning the proposed county boundary.
Major County Boundary Changes and Proceedings Government Code section 23230 et seq. provides the procedures for boundary changes that are considered major. A major change between counties may be initiated by petition, or by resolution of the legislative body of either affected county, or of any city within either affected county (Govt. Code §23233). Upon receipt of the certification of a petition, or a certified copy
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of a resolution, the board of the transferring county must then transmit a copy of the certification or certified resolution to the Governor (Govt. Code §23247.) The Governor shall create a County Boundary Review Commission (“Commission”) to review the proposed county boundary change, and appoint five persons to be members of the Commission, of which two must reside within the territory to be transferred, two shall reside within the accepting county, and one shall not be a resident of either territory (Govt. Code §23248). The Commission shall conduct a public hearing to receive information and to hear any protests to the proposed boundary change, or requests for exclusion from the boundary change. Within 180 days, the Commission shall adopt a resolution making its determinations and transmit its report in writing to the board of supervisors of both affected counties (Govt. Code §23264). If the protest threshold is not met, the determinations of the Commission become the terms and conditions for boundary change and are final and binding on both affected counties if both approve the change. If the proposed territory is inhabited and the boards of both affected counties approve the boundary change, the board of the transferring county shall order an election be held in the territory proposed to be transferred (Govt. Code §23267).
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WHERE DO WE GO FROM HERE? – “Next Steps” As mentioned earlier in the report, the authority to adjust county boundaries rests solely with the Board of Supervisors. LAFCO does not have the authority to adjust boundaries and has jurisdiction only over subsequent boundary changes such as an annexation or detachment. Since it is likely that a county boundary adjustment would involve subsequent changes, a process that includes actions of both Boards of Supervisors, cities and LAFCO is recommended. This process proposes to explore boundary adjustments further through a collaborative process involving representatives from the County, LAFCO, affected cities and other public agencies and the respective communities. The initial step, however, is approval of this process by the Orange and Los Angeles County Board of Supervisors for OC LAFCO staff to move forward on exploration of the boundaries.
County Boundary Process It is recommended that a stakeholder approach be utilized to achieve consensus on any issues or circumstances directly or indirectly related to potential adjustments in the area. The following provides additional details regarding the proposed process for exploration of boundary adjustments. 1. Boundary Workshop Workshop conducted by OC LAFCO staff with attendees from Orange and Los Angeles County (county, cities and other affected agencies from potential adjustment areas). The purpose of the workshop would be to review the boundary report with attendees and discuss process for boundary changes. Additionally, workshop would serve to explore the interest of cities regarding adjustments discussed in report. 2nd Workshop would be conducted involving stakeholders interested in developing implementation plan for boundary adjustments. 2. Boundary Adjustments Presentation and recommendation to OC/LA Board of Supervisors on boundary adjustments developed by stakeholders (workshop attendees) Board of Supervisors joint consideration/approval of boundary adjustments 3. OC/LA LAFCO Subsequent Boundary Actions OC LAFCO staff develops a timeline for subsequent boundary actions in consultation with LA LAFCO and affected agencies. City Council(s) adopt initiating resolution(s) for subsequent actions OC LAFCO staff provides support to agencies for preparing and processing of subsequent actions.
Attachment “A”
Orange/Los Angeles Boundary Report
ATTACHMENT A Los Angeles LAFCO, County Boundary Study, 1977
Attachment “A”
Orange/Los Angeles Boundary Report
Attachment “A”
Orange/Los Angeles Boundary Report
Attachment “A”
Orange/Los Angeles Boundary Report
Attachment “A”
Orange/Los Angeles Boundary Report
Attachment “A”
Orange/Los Angeles Boundary Report
Attachment “A”
Orange/Los Angeles Boundary Report
Attachment “A”
Orange/Los Angeles Boundary Report
Orange/Los Angeles Boundary Report
Orange/Los Angeles Boundary Report Revised June 30, 2008
Prepared by Orange County LAFCO
Table of Contents Orange/Los Angeles Boundary Report EXECUTIVE SUMMARY ....................................................................................................................................... 1 INTRODUCTION .............................................................................................................................................................. 1 BACKGROUND ............................................................................................................................................................... 1 SUMMARY OF POTENTIAL BOUNDARY ADJUSTMENTS ........................................................................................................... 1 COUNTY BOUNDARY PROCESS .......................................................................................................................................... 4 HISTORY OF BOUNDARY BETWEEN ORANGE AND LOS ANGELES COUNTIES ........................................................ 5 “THE BEGINNING FOR LOS ANGELES COUNTY” .................................................................................................................... 5 “ALONG CAME ORANGE COUNTY” .................................................................................................................................... 6 THE LOS COYOTES FLOOD CONTROL CHANNEL ..................................................................................................................... 7 POTENTIAL COUNTY BOUNDARY ADJUSTMENTS ................................................................................................ 9 CITY OF BREA ............................................................................................................................................................. 11 CITY OF BUENA PARK ................................................................................................................................................... 11 CITY OF LA PALMA ....................................................................................................................................................... 20 CITY OF LOS ALAMITOS ................................................................................................................................................ 23 CITY OF SEAL BEACH .................................................................................................................................................... 25 OTHER POTENTIAL COUNTY BOUNDARY ADJUSTMENTS .................................................................................... 29 ORANGE/RIVERSIDE COUNTY POTENTIAL BOUNDARY ADJUSTMENT ....................................................................................... 29 ORANGE/SAN DIEGO COUNTY POTENTIAL BOUNDARY ADJUSTMENT ..................................................................................... 30 PROCEDURES FOR CHANGING COUNTY BOUNDARIES ........................................................................................ 31 MINOR COUNTY BOUNDARY CHANGES ............................................................................................................................ 31 MAJOR COUNTY BOUNDARY CHANGES AND PROCEEDINGS .................................................................................................. 31 WHERE DO WE GO FROM HERE? – “NEXT STEPS” .............................................................................................. 33 COUNTY BOUNDARY PROCESS ........................................................................................................................................ 33 REPORT ATTACHMENT ....................................................................................................................................... 1 A.
LOS ANGELES LAFCO, COUNTY BOUNDARY STUDY, 1977 ........................................................................................... 1
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EXECUTIVE SUMMARY Introduction The Orange/Los Angeles County Boundary Report provides an initial overview of potential adjustments to the county boundaries of Orange County and the neighboring counties of Los Angeles, Riverside and San Diego. This report also provides a brief discussion of the history of and issues associated with the identified boundary issues. The process of changing county boundaries is complex, and a process for ensuring input from stakeholders has also been proposed.
Background In July 2007, Orange County LAFCO completed a municipal service review for Northwest Orange County that included the cities of Buena Park, Cypress, Fullerton, La Habra, La Palma and Placentia. During the MSR process, the issue of an illogical boundary between Orange and Los Angeles counties was raised. The MSR process was not the first platform where the boundary issue has been raised. Inefficient boundaries along the shared border of the two counties have been the subject of past discussions among LAFCO, the staffs of several cities and both respective Board of Supervisors. Discussions have revolved around confusion in delivery of municipal services, duplication of services, and the need for clarity regarding boundaries within many areas along the Orange and Los Angeles boundary. An alternative to resolving many of these issues may be to change jurisdictional boundaries for many of these areas. However, because current law (Government Code Section 56741) states that territory may not be annexed to a city unless it is located in the same county, future discussions on this issue should begin with consideration of adjustments to county boundaries. It is recognized that LAFCOs do not have the authority to change county boundaries. Pursuant to Government Code Section 23200 et. seq, the authority to adjust county boundaries rests solely with the County Board of Supervisors. Information on this process is provided in detail within the “PROCEDURES FOR CHANGING COUNTY BOUNDARIES” section of this report.
Summary of Potential Boundary Adjustments The following table provides a summary of the areas of potential county boundary adjustments discussed in this report. The table lists each city (by county), the adjustment area, and map references as depicted in the report. The table also provides a brief discussion of issues associated with each potential boundary adjustment. More details, including current land use, population and location, are provided in a later section of this report.
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Orange County LAFCO Boundary Report Summary of Potential County Boundary Adjustments
City Affected (Orange County) Brea
Orange/Los Angeles Potential Boundary Adjustments City Affected Area Map (Figure #) (Los Angeles County) One area; 3,000 Diamond acres Bar/unincorporated LA Cty
Buena Park
La Mirada
Areas 1 thru 8; residential, commercial, industrial uses
Figures 1.0 thru 1.7
Buena Park Fullerton
La Mirada
Area 9; commercial
Figure 1.8
Cypress
Hawaiian Gardens
Areas 1 & 65 mobile home park
Figure 2.0 Figure 2.3
Cypress, La Palma
Cerritos, Lakewood
Area 2
Figure 2.1
Cypress
Unincorporated LA Cty
Area 3; residential
Figure 2.2
Cypress
Lakewood
Area 4; multi-family residential
Figure 2.2
La Palma
Cerritos
Areas 1 thru 4; public parks, commercial, residential
Figures 3.0-- 3.3
Los Alamitos
Long Beach
Areas 1 thru 4; public park, residential
Figures 4.0- 4.2
Notes In planning stages for eventual development; not recommended to be included at this time Confusion regarding delivery of municipal services
Adjustment involves 3 cities; primary access thru Fullerton Development and individual parcels split between two cities Includes Del Amo Bridge; current discussion among cities underway Small unincorporated island w/ access only thru Cypress Gated development w/access primarily through Cypress Parks currently maintained by Cerritos; residential areas w/primary access thru Cerritos Confusion regarding delivery of municipal services; residential development and individual parcels split between two
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Seal Beach
Long Beach
Areas 1 thru 4; harbor area, mobile home park, residential, industrial, small public park
Orange/Riverside Potential Boundary Adjustment City (Orange) City (Riverside) Area San Juan Rancho Carillo One area; gated Capistrano (unincorporated) community with access only thru Orange County
Figures 5.0- 5.3
Map (Figure #) Figure A.1
Orange/San Diego Potential Boundary Adjustment City (Orange) City (San Diego) Area Map (Figure #) San Clemente Unincorporated SD Cty One area; San Figure A.2 Onofre Power Plant, marine corps housing
cities Confusion regarding delivery of municipal services
Notes Resident -driven request to change boundaries
Notes Past discussions were unsuccessful
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County Boundary Process OC LAFCO staff has developed a process for further exploration of the potential county boundary adjustments referenced above. If supported by both affected Boards of Supervisors, the process would include a collaborative effort involving affected agencies and communities for further exploration of the areas. The diagram below represents the proposed process. Additional details on the process are also provided in the “Next Steps” section of this report. Diagram of Proposed County Boundary Process
I.
OC BOS Consider OC LAFCO Boundary Report
•Chairman Moorlach contact/meet with members of Los Angeles BOS (ongoing) •OC LAFCO makes contact with affected agencies & prepares for boundary workshop
II. Boundary Workshop
Proposed County Boundary Process III. Boundary Adjustments
IV. OC/LA LAFCO Subsequent Boundary Actions
•Workshop to review/discuss technical procedures for making boundary adjustments (boundary workshop to be facilitated by LAFCO consultant) •Review potential boundary adjustments •Identify next steps as group and/or by agency •Conduct 2nd Workshop (OPTIONAL) to validate boundary changes & develop implementation plan
•LAFCO presents recommendations on boudary adjustments developed by interested agencies to OC/LA BOS •OC/LA BOS jointly consider/approve boundary adjustments
•LAFCO develops timeline for subsequent boundary actions in sonsultation with LA LAFCO •City Council (s) adopt initiating resolution(s) for subsequent actions •LAFCO staff provides support to agencies for preparing and processing of subsequent actions
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HISTORY OF BOUNDARY BETWEEN ORANGE AND LOS ANGELES COUNTIES “The Beginning of Los Angeles County” On February 18, 1850, the County of Los Angeles was established as one of the 27 original counties in the State, several months before California was admitted to the Union. The people of Los Angeles County on April 1, 1850 asserted their newly won right of self‐ government and elected a three‐man Court of Sessions as their first governing body. A total of 377 votes was cast in this election. In 1852 the Legislature dissolved the Court of Sessions and created a five‐member Board of Supervisors. In 1913 the citizens of Los Angeles County approved a charter recommended by a board of freeholders (land owners) which gave Los Angeles greater freedom to govern itself within the framework of state law. The size of Los Angeles County has changed over the years. It went from being a small county along the coast to being a large county extending to the Nevada border and then to again being a relatively small county in area. During the early 1850s, a large territory that was formerly a part of Mariposa County was added to the Los Angeles boundary. Some lands that were formerly in Santa Barbara County were also added near this time. In turn, over many years to follow, territory that at one time was a part of Los Angeles County was added to six other counties: Inyo, Kern, Orange, Riverside, San Bernardino, and Ventura Counties and a new county (Orange) was formed to include territory that was originally a part of the Los Angeles boundary. Today, Los Angeles County consists of approximately 4,752 square miles and is home to over a quarter (approximately 10 million) of all California residents. The boundary includes 88 incorporated cities and many unincorporated areas.
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“Along Came Orange County” In 1880, the region that is now Orange County still belonged to Los Angeles County. Population in the area was growing rapidly with cities now known as Anaheim and Santa Ana deemed as important population centers. However, residents of the southern part of then Los Angeles County were frustrated with the governance structure and contended that there was far less investment in roads and bridges in their areas than nearby Los Angeles (the only bridge over the Santa Ana River at that time was a railroad bridge) and sheriff protection was considered inadequate. They argued that County offices were mainly held by Los Angelinos leaving the southern residents feeling disenfranchised and neglected. Hence, an effort was begun to form a separate county. The charge to form a new county was not welcomed with open arms and came up against strong opposition from Los Angeles County. Another California neighbor, San Francisco, supported the effort in order to hobble growing competition from Los Angeles. Because of successful lobbying led by Los Angeles, efforts to create a new county were repeatedly unsuccessful in 1871, 1873, 1876 and 1881. In 1888 through the persistent efforts of proponents, the State Legislature, convinced that Los Angeles County was neglecting the south county area, approved the formation of the a new county. The only issue left for deciding was where to draw the boundary between Los Angeles and Orange County. Santa Ana pushed for creation of a new county boundary at Coyote Creek in the north. Anaheim, seeing itself as the central county seat, pushed for the boundary to be at the San Gabriel River. When state legislators agreed to set the boundary at Coyote Creek, furious Anaheim promoters turned into opponents of the new county and as a result the effort failed. In 1889, the effort was revived by Attorney Eugene Edwards of Santa Ana who was re‐elected to the State Assembly on a county separation platform. He introduced a bill to create a new county south of Coyote Creek. OC lobbyists’ efforts were effective around Sacramento since they spent as much as $50,000 to get the legislature to approve formation of a new county. The bill was successfully approved with 64‐6 vote in the Assembly and a 28‐8 vote in the Senate. The name "Orange" was adopted for the proposed new county and in March 1889, Governor Robert Waterman signed the bill and the matter was left to a vote of the residents. That summer voters, in a 2,509 to 500 decision, approved formation of the new county and Orange County was born. At that time the County included only three incorporated cities: Anaheim, Santa Ana, and Orange.
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The first Orange County (OC) Board of Supervisors met on August 5, 1889. Among their first official acts was to reject bills from Los Angeles County totaling $11,375, most of which were for a bridge over the Santa Ana River. Los Angeles County failed to secure payment after three lawsuits and appeals. Today, Orange County includes approximately 948 square miles, 34 incorporated cities, and relatively few unincorporated areas. Based on geography, Orange County is the smallest county in Southern California. However, the county is home to approximately 2.8 million residents, making it the second most populous county in California.
Past County Boundary Adjustments Between Orange and Los Angeles Adjustments to County boundaries are not common occurrences. Since Orange County was created (1889), there have been only three minor boundary adjustments. Two of the adjustments were between Orange and Los Angeles counties. Adjustments to the boundaries require the collaboration of the respective counties, LAFCOs, and cities that recognize that current boundaries create inefficiency in service provision. Ultimately, any boundary adjustment requires the approval of each county’s Board of Supervisors. If it involves incorporated territory, changes must also involve the affected cities since a city cannot have territory in two counties and any change in a city’s boundaries must be approved by that city. Finally subsequent actions (i.e., sphere amendments, annexations) require LAFCO approval.
The Los Coyotes Flood Control Channel Rancho Los Nietos, awarded to Manuel Nieto in 1784, was the largest Spanish land grant in Alta California. It was 300,000 acres, extending from the San Gabriel River, to the west, and the Santa Ana River to the east. Today, parts of Long Beach, Lakewood, Downey, Norwalk, Santa Fe Springs, Whittier, Fullerton, Huntington Beach, Bolsa Chica State Beach, Seal Beach, Anaheim, Buena Park, Garden Grove, and many smaller cities including Artesia and Cerritos are located on what was once the enormous Nieto Rancho. On May 22, 1834, Alta California governor José Figueroa officially declared the Los Nietos grant under Mexican rule and ordered its partition into six smaller ranchos: Las Bolsas, Los Alamitos, Los Cerritos, Los Coyotes, Santa Gurtrudes and Palo Alto. Juan José Nieto received Rancho Los Alamitos, Rancho Los Coyotes and Rancho Palo Alto. The property, which included the Coyote
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Hills and most of the Arroyo de los Coyotes, is now called Coyote Creek, and in 1889 it became the boundary between Los Angeles and Orange Counties.1 Coyote Creek Channel is a major tributary of the San Gabriel River. At its confluence with the San Gabriel River, it carries the accumulated flow from approximately 100,000 acres. The slope of the stream‐bed of Coyote Creek extends from the San Gabriel River to the crest of the Puente Hills above the City of Brea.2 Over the years, many improvements to the channel have been carried out and it is these improvements which have, in some areas, created the boundary issues addressed in this report. Today, Coyote Creek extends from the cities of Seal Beach (OC) and Long Beach (LA) to Brea (OC) and La Mirada (LA). Maintenance of the channel is currently provided by the Counties of Orange and Los Angeles and the City of La Habra (See Exhibit A). Exhibit A – Maintenance of Los Coyotes Flood Control Channel
1 2
http://en.wikipedia.org/wiki/Rancho_Los_Nietos, Rancho Los Nietos, From Wikipedia, the free encyclopedia
Preliminary Investigation and Report on the Coyote Creek Channel Bond Project A‐1, Orange County Flood Control District, Santa Ana, California, September 1959
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POTENTIAL COUNTY BOUNDARY ADJUSTMENTS The Orange County cities located along the common boundary of Orange and Los Angeles Counties include Buena Park, Cypress, Fullerton, La Habra, La Palma, Los Alamitos, and Seal Beach (Figure 1.0). The County of Los Angeles cities include La Mirada, Cerritos, Hawaiian Gardens, Lakewood, and Long Beach (See Exhibit B). These cities are separated by the Los Coyotes Flood Control Channel (formerly known as Coyote Creek), and state and local right‐of‐ ways. While there have been relatively few county boundary adjustments involving Los Angeles and Orange, there have been past discussions regarding realignment of the shared boundary to improve the delivery of services to residents. Back in 1977, the Los Angeles LAFCO (LA LAFCO) prepared a “County Boundary Study” (Attachment A) that discussed potential adjustments involving many of the areas included in this report. At that time, staff concluded that actions were required by both property owners and the Board of Supervisors, and that no further actions at the LAFCO level were necessary. In July 2007, Orange County LAFCO completed a municipal service review for Northwest Orange County, and the discussion of the boundary between Orange and Los Angeles counties resurfaced among the cities and the LAFCO staff. While it was recognized once again that LAFCOs do not have the authority to change county boundaries, the decision was made to prepare another boundary report to serve as background information should interest among the Boards of Supervisors and affected agencies be expressed.
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Exhibit B – Orange/Los Angeles County Boundary Map
During preparation of the report, OC and LA LAFCO representatives met and discussed potential county boundary adjustments. Subsequently, the boundary report was presented to the Orange County Commission and the Orange County Board of Supervisors for consideration. The Board of Supervisors expressed interest in studying potential adjustments and the Chair requested that OC LAFCO staff report back with a proposed process and revised report for further exploration of the Orange/Los Angeles boundary issues. The following provides a summary of the areas identified in the initial boundary report presented to the Board of Supervisors on January 28, 2007 and other areas identified during subsequent discussions with LA LAFCO. Boundary issue discussions are grouped by city.
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City of Brea
The City’s sphere of influence includes approximately 5,000 acres in an area located between the City’s northern boundary and the Los Angeles County border. The area is primarily uninhabited territory used primarily for oil production purposes. One property owner, Aera Energy, owns approximately 3,000 acres of territory located both in Brea’s SOI in Orange County and in the adjacent unincorporated area of Los Angeles County. Aera is planning a development for its entire land holding that is currently being processed through the City of Diamond Bar. The preliminary plans show development in a portion of Orange County immediately adjacent to the City of Brea. This portion of the development would best be served by the City of Brea due to street patterns, drainage and service provision. Because any county boundary adjustments adjacent to Brea and Diamond Bar involve future development for which more complex issues will need to be addressed, discussions involving this area should be conducted separately from other potential boundary adjustments.
City of Buena Park The City of Buena Park is adjacent to the Cities of Cerritos and La Mirada in Los Angeles County. Within the initial boundary report, a single area involving Buena Park and La Mirada was identified for potential boundary adjustment. The area, currently located in Buena Park’s SOI, includes an unincorporated island located in the northern portion of the city (Figure 1.0). While this area is within Orange County, residents more closely associate with the City of La Mirada since the area may only be accessed through La Mirada due to the adjacent Los Coyotes Flood Control Channel. Additionally, the mailing address of residents of the island includes a La Mirada zip code (90638) and residents presently receive U.S. mail from the La Mirada post office located approximately one mile away from area. Figure 1.0—Buena Park Boundary Adjustment Area (1)
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Orange County recognized that there were service issues, particularly involving sewer service, within the unincorporated island adjacent to Buena Park. As a result, the County formed County Service Area (CSA) No. 13–La Mirada to provide for the maintenance of local collector sewers within the island. The CSA has a current budget of $5,878 and any future discussions regarding annexation of this area should include dissolution of CSA No. 13. During the Orange County LAFCO MSR process, the City of Buena Park agreed to discuss this issue but reiterated that they would not annex this area unless residents are willing to be annexed. LA LAFCO staff agreed to follow‐up with City of La Mirada and the residents to explore their interest in annexing. During subsequent discussions with LA LAFCO, several other areas (Areas 2‐9) have been identified. Brief discussions regarding these areas follow and are shown in Figures 1.1 ‐1.8. Buena Park Area 2 This area (See Figure 1.1) is currently within the city limits of Buena Park and is located west of the Los Coyotes Flood Control Channel. Land use within the area includes multi‐family residential. Because of the contiguity of this area to the unincorporated area shown in Figure 1.0, potential adjustments should include a concurrent review of both areas by the City. While this area is currently within Buena Park’s city limits, primary access to the area is through La Mirada. Figure 1.1 – Buena Park Boundary Adjustment Area (2)
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Orange/Los Angeles Boundary Report
Buena Park Area 3 Area 3 consists of a multi‐family residential area located in the City of La Mirada and east of the flood control channel. Access is primarily through the City of Buena Park. Figure 1.2—Buena Park Boundary Adjustment Area (3)
Buena Park Area 4 This area is currently located in the City of Buena Park, adjacent to the City of La Mirada and west of the flood control area. The area includes approximately 64 acres and is primarily residential with a small portion of commercial land use. Primary access to the area is through the City of La Mirada. Figure 1.3—Buena Park Boundary Adjustment Area (4)
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Buena Park Area 5 This area is currently located in the City of Buena Park, adjacent to the City of La Mirada and includes a small commercial area. This area is located west of the flood control channel with primary access through La Mirada. Figure 1.4—Buena Park Boundary Adjustment Area (5)
Buena Park Area 6 Area 6 is located within the city limits of La Mirada, adjacent to the City of Buena Park. It includes a small commercial area east of the flood control channel with primary access through Buena Park. Figure 1.5—Buena Park Boundary Adjustment Area (6)
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Buena Park Area 7 Area 7 is located west of the flood control channel and includes light industrial land use. Presently the territory is located in the City of Buena Park and adjacent to and primary access through the cities of La Mirada and Cerritos. Figure 1.6—Buena Park Boundary Adjustment Area (7)
Buena Park Area 8 Area 8 includes light industrial land use and is currently located in the City of Cerritos, adjacent to the cities of La Palma and Buena Park and east of the flood control channel. Primary access to this area is through Buena Park and La Palma. Figure 1.7—Buena Park Boundary Adjustment Area (8)
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Buena Park Area 9 This area is located in the City of La Mirada, adjacent to the cities of Fullerton and Buena Park. The proposed area includes commercial land use that is east of the flood control channel. The current boundary suggests that potential adjustment in this area may involve all three cities’ boundaries. Primary access to this area is through the City of Fullerton. Figure 1.8—Buena Park Boundary Adjustment Area (9)
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City of Cypress The City of Cypress is adjacent to the Cities of Hawaiian Gardens and Lakewood in Los Angeles County. When OC LAFCO established the SOI for Cypress in 1973, it was noted that the alignment of the Los Coyotes Flood Control Channel created inefficient boundaries in the area. Today, the irregular boundaries remain. Cypress Area 1 Currently, Cypress provides street sweeping service through a contractual arrangement to a property located in the City of Hawaiian Gardens (Figure 2.0). Recognizing that this may not be the most efficient method for delivering service to this area, a potential boundary adjustment and annexation of this area to the City of Cypress were discussed during the MSR process. Figure 2.0 – Cypress Boundary Adjustment Area (1)
Cypress Area 2 In discussions regarding potential county boundary adjustments, issues were raised involving the ownership and current boundary of the Del Amo Bridge that is adjacent to the Cities of Cypress, La Palma, Cerritos, and Lakewood (Figure 2.1). These issues were raised by both the City of Cypress and LA LAFCO staff. It is unclear who owns the bridge, who is responsible for maintenance, and where the exact boundary lies. Currently there is a proposed project involving the bridge and all four cities are involved in the discussions. The cities have been asked to provide funding for the project, and Cypress has raised concerns that there is no access to the bridge through Cypress.
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Figure 2.1—Cypress Boundary Adjustment Area (2)
LA LAFCO also discussed working with OC LAFCO on any potential boundary changes involving the bridge and adjacent cities. During the discussions with LA LAFCO of the county boundaries affecting the Cities of Cypress Hawaiian Gardens, Los Alamitos, and Long Beach, additional areas (Areas 3 thru 5) were identified; a discussion of those areas follows. Cypress Area 3 This area is located east of the Los Coyotes flood control channel and north of Crescent Boulevard adjacent to the City of Cypress (Figure 2.2). It includes a small unincorporated area of Los Angeles County with single‐family residential land use. Access to the area is through the City of Cypress. Cypress Area 4 This area is presently within the incorporated boundaries of City of Lakewood (Figure 2.2) and land use consists of multi‐ family residential. The area is located east of the Los Coyotes Flood Control Channel. Should the channel be determined as the logical boundary between Orange and Los Angeles counties, adjustments of these areas should be considered.
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Orange/Los Angeles Boundary Report
Figure 2.2 – Cypress Boundary Adjustment Areas (3 & 4)
Cypress Area 5 This area is south of Area 1 (shown in Figure 2.0) and is located within the same mobile home park development. Currently the mobile home park is located in the City of Hawaiian Gardens, east of the flood control channel with access adjacent to the City of Cypress. Figure 2.3 – Cypress Boundary Adjustment Area (5)
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City of La Palma Five potential areas located in La Palma where service delivery might be improved through an exchange of County territory were noted. Potential boundary adjustments in this area involve the cities of La Palma and Cerritos. La Palma Area 1 The first area includes two neighborhood parks (Rainbow Park and Bettencourt Park), both located in La Palma, but accessed through and maintained by Cerritos through a contract (Figure 3.0). As in many discussions regarding boundaries, the Los Coyotes channel was referenced as the most logical boundary between Orange and Los Angeles Counties (ideally, with territory east of the creek being Orange County and west of the creek in Los Angeles ). Discussions regarding any potential boundary change should address placing both parks within the jurisdiction of its current service provider, City of Cerritos. It is important to note that detaching an area from city’s boundaries would require consent from the city losing territory. Figure 3.0—La Palma Boundary Adjustment Area (1)
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La Palma Areas 2 and 3 The next two areas are also adjacent to the Cities of La Palma and Cerritos and include La Palma/Orange County territory that extends west of the Los Coyotes flood control channel (Figure 3.1, Areas 2 & 3). Land use within these areas includes residential, commercial, and industrial. Figure 3.1 – La Palma Boundary Adjustment Areas (2 & 3)
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La Palma Areas 4 and 5 Additional exploration of the Orange/Los Angeles boundary has identified two (2) areas adjacent to the cities of La Palma and Cerritos. These areas (see Figure 3.2 & Figure 3.3), currently located in the City of Cerritos, consists of residential developments located east of the flood control channel with access from to the City of La Palma. Figure 3.2 – La Palma Boundary Adjustment Area (4)
Figure 3.3 – La Palma Boundary Adjustment Area (5)
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City of Los Alamitos Los Alamitos Area 1 This potential boundary adjustment includes an area (located in City of Long Beach) that is adjacent to 3 residential parcels and Stansbury Park (located in the City of Los Alamitos) (Figure 4.0). The area within Long Beach can only be accessed through Los Alamitos. Subsequent to the municipal service review for Los Alamitos, the City proposed adjusting the boundary to include this area in Los Alamitos. Figure 4.0—Los Alamitos Boundary Adjustment Area (1)
The potential adjustment has been the subject of previous discussions involving staff from Orange and Los Angeles LAFCOs and the cities. Additionally, Supervisor Moorlach (Orange) and Supervisor Knabe (Los Angeles) have met to discuss. Both cities appear to be supportive of the potential change. Staff from Los Angeles and Orange LAFCO met to discuss next steps and agreed to identify this issue in the boundary report to move discussions forward. Los Alamitos Area 2 Another potential change involving the cities of Los Alamitos and Long Beach includes a residential area (Figure 4.1) located immediately north of the boundary area shown in Figure 4.0. This area is currently located in Long Beach and east of the flood control channel. Much like the previous area involving the same cities, current boundaries split property lines between two counties. Immediate access to the neighborhood is adjacent to the Cities of Los Alamitos and Cypress.
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Figure 4.1 – Los Alamitos Boundary Adjustment Area (2)
Los Alamitos Area 3 The next potential boundary adjustment area consists of multi and single family residences located in Los Alamitos. Present boundaries split the multi‐family residential development between two cities – Los Alamitos and Long Beach. Current access to the entire area is through the City of Long Beach. Figure 4.2 – Los Alamitos Boundary Adjustment Area (3)
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City of Seal Beach There are four areas located in or adjacent to the City of Seal Beach where potential county boundary adjustments may occur. The City of Seal Beach is located in northwest Orange County adjacent to the cities of Los Alamitos, Huntington Beach, and Long Beach. All four potential boundary adjustments involve Seal Beach and Long Beach. Seal Beach Area 1 (Figure 5.0) includes a small portion of the Long Beach Harbor and a parking lot adjacent to a shopping center located in Long Beach and east of the San Gabriel River. During the boundary review, Seal Beach staff stated that the current boundary presents service delivery confusion that may be resolved if the county boundary is adjusted. Figure 5.0 – Seal Beach Boundary Adjustment Area (1)
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Seal Beach Area 2 The second area (Figure 5.1) includes portions of a mobile home park and parking lot currently located in Long Beach, east of the San Gabriel River. Much like Area 1, service delivery to this area under the current boundary often includes confusion among service providers. Figure 5.1 – Seal Beach Boundary Adjustment Area (2)
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Seal Beach Area 3 This area is currently located in the City of Long Beach, east of the San Gabriel River, and includes a small residential area (commonly known as “The Village”) and a power plant owned by the Los Angeles Department of Water Power. In the past, residents have approached the City of Seal Beach and expressed interest in detaching from Long Beach and annexing to Seal Beach. No application has ever been filed. Should residents file an application in the future, a county boundary adjustment would need to occur prior to detachment and annexation. Sentiments of current residents as well as the fate of the revenue for the power plant are currently unknown. Figure 5.2 – Seal Beach Boundary Adjustment Area (3)
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Seal Beach Area 4 This area is currently located in unincorporated Orange County adjacent to the cities of Long Beach and Seal Beach. The area is west of the San Gabriel River and includes small portions of a tennis court located in College Estates Park and a bridge that is currently located in the City of Seal Beach. According to discussions with Seal Beach staff, the portion involving the park is currently maintained by the City of Long Beach and is adjacent to College Park Estates. Based on these discussions, the exact boundary of this area also needs clarification. Figure 5.3 – Seal Beach Boundary Adjustment Area (4)
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OTHER POTENTIAL COUNTY BOUNDARY ADJUSTMENTS Adjustment of the boundary between adjacent counties is not an everyday occurrence. County boundary adjustments have occurred throughout the state as early as 1850 with the most recent one occurring in 1999 involving Orange and Los Angeles counties. The discussion of potential adjustments between Orange and Los Angeles has prompted some discussions about boundary adjustments between Orange County and both Riverside and San Diego Counties. Staff would like to point out that the following information is very preliminary and elected officials and staff from these counties have not participated in these discussions.
Orange/Riverside County Potential Boundary Adjustment Recently, residents of the Rancho Carrillo community expressed interest in joining Orange County. Rancho Carrillo (See Figure A.1) is a unique and small community consisting of large lot, ranch‐style homes located off of the Ortega Highway. Located in unincorporated Riverside County, the area is eight miles east of the City of San Juan Capistrano (Orange County). Surrounded by the San Mateo Canyon Wilderness and portions of the Cleveland National Forest, this gated community includes a population of approximately 500. Residents have stated that they patronize and utilize services provided by Orange County more than by Riverside County. Presently the area receives municipal services from Riverside and Orange County (Orange provides fire and emergency services through contractual arrangement with Riverside County) and a private mutual water company. Rancho Carillo also includes private roads which are the responsibility of property owners within the area.
Figure A.1 Unincorporated Rancho Carrillo
Staff from the OC Board of Supervisors (Second District) and OC LAFCO have met and provided information to residents regarding potential county boundary adjustment for the area. Future
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discussions regarding potential adjustments for the area should include representatives from the community, both counties, adjacent cities and other affected agencies. Additionally, residents have expressed interest in changing current jurisdiction of school boundaries for the area. Because of its close proximity to Orange County, some children residing in Rancho Carillo attend schools within the San Juan Capistrano School District through an intra‐county/district transfer. However, since LAFCOs have no authority over school district boundaries, OC LAFCO staff directed residents to the appropriate school district agencies to explore this jurisdictional change.
Orange/San Diego County Potential Boundary Adjustment Another neighbor of Orange County is San Diego County. The City of San Clemente, which is located in the southern part of Orange County, expressed interest in the 1980s in annexing the San Onofre Nuclear Generating Station which is located in the northern part of San Diego County. At that time, the city’s interest in annexing the plant, as expressed in a report authored by the Senate Committee on Local Government, was due mainly to its proximity (distance between city and plant is approximately 4 miles) and limited services provided to the area. It was also referenced in the report that a Marine Corps residential area near the plant considers their area to be a part of San Clemente as the children attend schools in Orange County and families patronize within Orange County.3 The plant and nearby residential area are currently unincorporated and shown on Figure A.2. Figure A.2 San Onofre Nuclear Plant/Nearby Residential Area
3
A Proposal for Allowing Cross-County City Annexations by Chris Laugenour and Peter Detwiler, November 1984
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PROCEDURES FOR CHANGING COUNTY BOUNDARIES There are two types of county boundary changes ‐‐ “minor” and “major” boundary changes. All of the potential areas of adjustment between Orange and Los Angeles Counties would be considered “minor” changes but both procedures have been described below and are shown in the attached flow chart (Figure 1.6)
Minor County Boundary Changes Procedures for minor changes were adopted by the legislature to allow a more simplified process for counties to approve changes to the boundaries of their counties (Govt. Code § 23200.). A minor change is defined as one that: • Does not move boundaries more than five miles from its original location. • Does not reduce by more than 5% the area of any affected county. • Does not reduce, by more than 5%, the population of any affected county "as determined by the State Department of Finances most recent estimate of population." Proceedings The process for minor changes in county boundaries is similar to LAFCO’s process. Proceedings for minor boundary changes may be initiated by petition of either county or by a petition signed by 25% of the registered voters or landowners in the area (Govt. Code § 23203). Once the board of supervisors of the initiating county adopts this resolution, it must file it with the board of supervisors of the other affected county (Govt. Code § 23204). Within thirty (30) days of receiving the resolution adopted by the initiating county, the board of supervisors of the other affected county, called the "conducting county,” must adopt a resolution which sets a public hearing (Govt. Code § 23206). The public hearing on the boundary change must be held jointly with the board of supervisors of the other affected county (Govt. Code §23208). At the hearing, if less than 25% written protests are received, the board of supervisors of each affected county must adopt substantially similar ordinances approving the proposed boundary change not later than thirty (30) days after the conclusion of the hearing (Govt. Code § 23210). If more than 25% but not more than 50% written protests have been received before the conclusion of the hearing, the board of supervisors of each affected county shall set a time for an election (Govt. Code §23210(c). However if more than 50% written protests are received, the board of supervisors for the conducting county must adopt a resolution abandoning the proposed county boundary.
Major County Boundary Changes and Proceedings Government Code section 23230 et seq. provides the procedures for boundary changes that are considered major. A major change between counties may be initiated by petition, or by resolution of the legislative body of either affected county, or of any city within either affected county (Govt. Code §23233). Upon receipt of the certification of a petition, or a certified copy
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of a resolution, the board of the transferring county must then transmit a copy of the certification or certified resolution to the Governor (Govt. Code §23247.) The Governor shall create a County Boundary Review Commission (“Commission”) to review the proposed county boundary change, and appoint five persons to be members of the Commission, of which two must reside within the territory to be transferred, two shall reside within the accepting county, and one shall not be a resident of either territory (Govt. Code §23248). The Commission shall conduct a public hearing to receive information and to hear any protests to the proposed boundary change, or requests for exclusion from the boundary change. Within 180 days, the Commission shall adopt a resolution making its determinations and transmit its report in writing to the board of supervisors of both affected counties (Govt. Code §23264). If the protest threshold is not met, the determinations of the Commission become the terms and conditions for boundary change and are final and binding on both affected counties if both approve the change. If the proposed territory is inhabited and the boards of both affected counties approve the boundary change, the board of the transferring county shall order an election be held in the territory proposed to be transferred (Govt. Code §23267).
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WHERE DO WE GO FROM HERE? – “Next Steps” As mentioned earlier in the report, the authority to adjust county boundaries rests solely with the Board of Supervisors. LAFCO does not have the authority to adjust boundaries and has jurisdiction only over subsequent boundary changes such as an annexation or detachment. Since it is likely that a county boundary adjustment would involve subsequent changes, a process that includes actions of both Boards of Supervisors, cities and LAFCO is recommended. This process proposes to explore boundary adjustments further through a collaborative process involving representatives from the County, LAFCO, affected cities and other public agencies and the respective communities. The initial step, however, is approval of this process by the Orange and Los Angeles County Board of Supervisors for OC LAFCO staff to move forward on exploration of the boundaries.
County Boundary Process It is recommended that a stakeholder approach be utilized to achieve consensus on any issues or circumstances directly or indirectly related to potential adjustments in the area. The following provides additional details regarding the proposed process for exploration of boundary adjustments. 1. Boundary Workshop Workshop conducted by OC LAFCO staff with attendees from Orange and Los Angeles County (county, cities and other affected agencies from potential adjustment areas). The purpose of the workshop would be to review the boundary report with attendees and discuss process for boundary changes. Additionally, workshop would serve to explore the interest of cities regarding adjustments discussed in report. 2nd Workshop would be conducted involving stakeholders interested in developing implementation plan for boundary adjustments. 2. Boundary Adjustments Presentation and recommendation to OC/LA Board of Supervisors on boundary adjustments developed by stakeholders (workshop attendees) Board of Supervisors joint consideration/approval of boundary adjustments 3. OC/LA LAFCO Subsequent Boundary Actions OC LAFCO staff develops a timeline for subsequent boundary actions in consultation with LA LAFCO and affected agencies. City Council(s) adopt initiating resolution(s) for subsequent actions OC LAFCO staff provides support to agencies for preparing and processing of subsequent actions.
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ATTACHMENT A Los Angeles LAFCO, County Boundary Study, 1977
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