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HomeMy WebLinkAbout6618RESOLUTION NO. 6618 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF ARCADIA, CALIFORNIA, ADOPTING A REVISED CITY OF ARCADIA URBAN FOREST MASTER PLAN WHEREAS, on February 19, 2002, the City Council of the City of Arcadia adopted Ordinance No. 2153 pertaining to the City's Comprehensive Tree Management Program; and WHEREAS, the Ordinance provides that the City Council shall adopt by resolution a Street Tree Master Plan, and may amend it by resolution from time -to- time. NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF ARCADIA, CALIFORNIA DOES HEREBY RESOLVE AS FOLLOWS: SECTION 1. The City Council hereby adopts the revised City of Arcadia Urban Forest Master Plan as attached hereto as Exhibit "A ". SECTION 2. The City Clerk shall certify to the adoption of this Resolution. [SIGNATURES ON NEXT PAGE] 1 Passed approved and adopted this 20th day of May 2008. ��� Mayor of the City of Arcadia ATTEST: ity Clerk APPROVED AS TO FORM: fit , P. D&Ize City Attorney 2 STATE OF CALIFORNIA ) COUNTY OF LOS ANGELES) SS: CITY OF ARCADIA ) I, JAMES H. BARROWS, City Clerk of the City of Arcadia, hereby certifies that the foregoing Resolution No. 6618 was passed and adopted by the City Council of the City of Arcadia, signed by the Mayor and attested to by the City Clerk at a regular meeting of said Council held on the 20th day of May, 2008 and that said Resolution was adopted by the following vote, to wit: AYES: Council Member Amundson, Chandler, Kovacic, Wuo and Harbicht NOES: None ABSENT: None ity Clerk of the City of Arcadia 3 Section 1. Executive Summ 1.1 Introductio The City of Arcadia, located in the foothills of the San Gabriel Valley is a mature, predominately residential community of approximately 50,000 people, occupying 12 square miles extending into the southern slopes of the San Gabriel Mountains. Each year since 1993, the City of Arcadia has been designated as a Tree City USA. To maintain this honorable status, the City continues to meet the following established criteria: 1. Maintain a Tree Board or Commission (Arcadia Beautiful Commission). 2. Adopt a Community Tree Ordinance (Section 9, Chapter7). 3. Spend at least $2 per capita on forestry programs (current expenditures are approximately $7.70 /resident). 4. Conduct an Arbor Day Observance or proclamation (typically Arcadia celebrates this special event in March or April). The Arcadia Beautiful Commission, designated by the City Council and in the Arcadia Municipal Code as the City's "Tree Commission ", represents an excellent opportunity for the City to have spokespersons and advocates for the City's Urban Forest. These individuals assist City staff in implementing Urban Forestry guidelines and also promoting the City's Urban Forestry programs. The Public Works Services Department (PWSD) is proposing the Urban Forest Master Plan as a guideline to assist the City Council, Arcadia Beautiful Commission, and staff, in planning and implementing long -term management and care of the Urban Forest. The Urban Forest Master Plan is a comprehensive strategy to be employed by the City, specifically PWSD, to fully integrate and standardize all aspects of infrastructure maintenance. Currently the City has successfully implemented a Water Master Plan, Sewer Master Plan and is formalizing a Pavement Management Plan. PWSD has also implemented a Maintenance Management Information System for all service requests processed through the Department and to accurately track daily activities and programs of the Department. The Master Plan approach to infrastructure maintenance allows for continuity, consistency, and equity with regard to planning, and budgeting. Maintenance of the Urban Forest has historically been considered a relatively simple, and routine aspect of local infrastructure maintenance not requiring long -range planning or management. However, due to a number of emerging concerns, tree maintenance issues have become far more complex. Some of the key emerging concerns that have contributed to the increasing complexity of tree maintenance include; modifications in local land -use, changing aesthetic concerns, safety and liability issues, proliferation of local plant types and species, aging and deterioration of large majestic tree, environmental concerns, sewer system root intrusion, root damage to sidewalks and driveways, utility interference, and local budgetary constraints. The Urban Forest 1 Master Plan attempts to address and mitigate these concerns in a comprehensive, coordinated and cost - effective manner. 1.2 Background and Current Program The Urban Forest is a tree or group of trees growing on public property or private property, within the right -of -way, and within the city limits of Arcadia. The right -of -way shall mean any land, or interest therein, which, by deed, conveyance, agreement, dedication, usage, or other process of law, has been reserved for or dedicated to the City for the use of the general public for public road purposes, including, but not limited to, any public street, highway, alley, curb, gutter, sidewalk, driveway approach, or parkway. The City of Arcadia's Urban Forest consists of over 17,800 trees. The tree population is extremely diverse consisting of over 50 different species and is also home to the Engeleman Oak, a relatively rare majestic species of tree for this area. The City's lush Urban Forest softens the hard lines of the urban infrastructure and is an integral part of our community's aesthetic appeal. The trees are frequently cited as a point of civic pride. The care and maintenance of the Urban Forest is a shared responsibility between the City of Arcadia Public Works Services Department (PWSD) and its residents. The PWSD has a designated Tree and Right -of -Way Unit, within the Street Maintenance Section, which consists of two (2) full -time employees and utilizes the services of a private tree trimming contractor to assist the City in maintaining a 4 year _ tree trimming schedule. The Tree and Right -of Way Unit will be utilized for the day -to- day care and maintenance of trees located throughout the City, including 11 City Parks and 9 City facilities. The City crew also performs other types of right -of -way maintenance such as weed abatement, brush removal, vegetation clearance, and rapid response to limbs that have fallen or require immediate trimming for safety reason. The Tree and Right -of -Way Unit trims approximately 1,500 trees and remove /replaces another 30 trees each year. 1.3 Discussion The City's existing tree maintenance program provides for the general upkeep of the current tree stock, mitigates immediate public safety hazards, and allows for minimal tree replacement on a case -by -case basis. The existing program provides for some, but not all, pro- active and predictive maintenance efforts necessary to improve aesthetics, minimize long -term liability and facilitate the long -term sustainability of a vibrant Urban Forest in the City of Arcadia. Elements of a comprehensive, pro- active Urban Forest Master Plan for the City would provide for: • Planting of new tree stock in certain areas or in areas void of appropriate landscaping. • Mitigation of utility line interference. 2 • Planned removal /relocation of trees that have been identified by the PWSD as aesthetically or structurally incompatible with their immediate environment. • Development of a multi -year maintenance Urban Forest management profile that emphasizes the cultivation and replacement of tree species that are aesthetically pleasing, low- maintenance, infrastructure friendly, and cost effective (to be determined by the PWSD). This Urban Forest Master Plan proposal provides a number of long -term program alternatives that can be selected for implementation. Each alternative covers a ten -year duration and addresses some, or all, of the elements noted above. It is recommended that the City take the following actions over the next 10 years: • Actively promote the planting of new trees in areas in need of trees to increase the total tree population. • Actively replace a predetermined number of undesirable trees each year, as defined in Section 3.1 (Undesirable Trees). • Actively promote awareness of the City's Urban Forest and care for trees, as defined in Section 5 (Public Education). • Introduce flexibility into the City's tree removal guideline, as defined in Section 4.3.2 (Systematic, Incremental Undesirable Tree Removal Program). 3 Section 2 Introduction and Mission of the Master Plan 2.1 Introduction In developing the proposed Urban Forest Master Plan several questions have been considered to assist in planning for the future: • What does the City want the local Urban Forest to look like in 20 or 30 years and what alternative funding strategy must be established to try and achieve the desired outcome? • What criteria will the City establish in regard to removing and replanting trees. Master Plan Mission Statement Arcadia's Urban Forest will be a multi -aged, fully stocked, healthy and safe forest. It will contain a wide variety of appropriate species maintained at a low cost on a regularly scheduled basis. It will contribute to the general welfare of our residents by reducing energy costs, increasing property values, providing homes for wildlife, beautifying all neighborhoods, and projecting an image of quality to visitors and prospective b usinesses. 2.2 Cultivation and maintenance of a thriving Urban Forest` The City recognizes that the Urban Forest provides numerous direct and indirect benefits for the residents of Arcadia. Some of these benefits are: • Improving Air Quality — trapping and holding dust particles that can damage human lungs. Tree foliage absorbs carbon dioxide and other poisonous gases and, in turn, replenishes the atmosphere with oxygen for us to breathe. One acre of trees provides oxygen for 18 people and will absorb the amount of carbon dioxide each year equivalent to that produced by a car driven 26, 000 miles. • Saving Energy — through providing shade in the summer months and serving as a windbreak during the winter. Trees properly placed around buildings can reduce air - conditioning demands by 30 percent. Trees strategically placed for windbreak protection can save 20 to 50 percent in energy used for heating. As a result, fewer fossil fuels are expended for heating and cooling. • Reducing Noise Pollution — trees serve as natural noise buffers that absorb and deflect loud and unpleasant sounds from the urban environment. • Improving Personal Health — helping relieve psychological stresses associated with living in metropolitan areas. Trees create feelings of relaxation and well- being. Medical research shows that patients assigned to rooms with a natural view of trees and green open spaces have shorter postoperative hospital stays. F1 • Improving Water Quality — reducing the impact of billions of raindrops — resulting in less runoff and erosion. This allows more recharging of the ground water supply, which hardscape and paving significantly reduce. Wooded areas help prevent the transport of sediment and chemicals into streams • Providing Natural Habitat — for numerous species of birds, mammals, insects, plants, and a variety of other wildlife that would not be present if not for an abundant local tree population. • Adding Natural Beauty — softening the visual lines of the urban world, trees often give visitors the first impressions of a community. Picture Arcadia without trees. Is it still a place you would like to live? Trees improve the quality of life for all of us — now, as well as for future generations. • Increasing Economic Stability — attracting and keeping businesses in a community. The National Arbor Day Foundation reports that people linger and shop longer along tree lined streets. Apartments and offices rent quicker and tenants stay longer in wooded areas. Studies by the US Department of Agriculture — Forest Service have shown that healthy mature trees add an average of 10 percent (10 %) to a property's value. (This section is taken in part from Urban and Community Forestrv7 Improving Our Quality of Life USDA Forest Service)" 2.3 Recommendation It is recommended that the City recognize the civic importance of a well maintained Urban Forest and incorporate the Urban Forest Master Plan Mission Statement as a guideline for maintaining trees on public property and on private property within the right -of -way. 5 on '3. Current issues Conce rning Species management of Arcadia's urban Fores Over the past thirty years, more than 50 different species of trees have been planted and are growing within the public right -of -way. In the past, primary considerations when planting trees in the right -of -way were aesthetics and visual compatibility with the immediate surrounding environment. While most local trees have grown and flourished, some types and species of trees have become undesirable for the following reasons: • Destructive root systems. • Fruit and pod discharge. • Age, decay and deterioration. • Utility line interference. Another issue is that some areas of the City are relatively barren and are lacking an adequate presence of trees in the right -of -way. One of the most significant issues related to the management of the Urban Forest is the aging and deterioration of the local tree stock. All of these issues; undesirable trees, lack of trees in certain areas, aging and decay in the Urban Forest are discussed in detail in this Section. 3.1 Undesirable Trees in the Right -of -Way Staff has determined that various species of trees in the right -of -way are creating a range of operational situations related to safety, infrastructure maintenance, and property damage. This conclusion is based on prevailing arboricultural literature, observation and experience from the PWSD, contractor field crews, and comments from local residents and businesses. Field experience and conventional wisdom suggest that certain species of trees are not well suited for certain areas of the public right -of- way. Destructive Root Systems Tree root systems that fracture local sidewalk, driveways and other concrete and pavement surfaces are perhaps one of the most visually obvious problems caused by trees. Shallow roots from large trees that break the ground surface in search of water, have adequate force to crack concrete, asphalt and nearly any other hard surface in the roots' path. This problem is most common among large, majestic trees and is not necessarily limited to a particular species. These destructive root systems not only damage public and private property, but also create safety hazards and liability issues related primarily to "trip and fall" incidents. Each year staff receives approximately 300 service requests related to root - related hazards or property damage. Some destructive root systems, rather than growing upward in search of surface water, grow downward and intrude public and private sewer lines. The hair -like roots enter through cracks in the pipe, or through pipe connector seams that are not properly sealed. Once the roots have intruded a sewer line they rapidly proliferate in the moist, mineral -laden environment. The roots will grow sufficiently large to form a filter for various sediments and grease. These roots impede, and eventually obstruct the flow of water or sewage through the line. Lines that become completely obstructed by root intrusion will ultimately result in breakage of the line, or a sewer back up. Each year the City video -tapes (tapes are used to identify areas of root intrusion) and removes roots from public sewer pipelines. This type of problem is not usually species specific, and can be caused by a variety of different trees. The City's current guidelines addressing sewer lateral damage from root intrusion are outlined in Tree Removal Guideline. Fruit and Pod Discharge Some species of trees routinely discharge fruit, pods and flowers onto the public right - of -way. While this is merely a biological function of plant growth, and reproduction, in terms of community aesthetics, maintenance and safety, this function is undesirable. Some tree species have discharges that soil and stain local streets and sidewalks, and in general create a messy and aesthetically unpleasing environment. While many of these fruit and pod bearing species are beautiful trees, they are better suited to open areas away from hardscape. Age, Decay and Deterioration Some trees are approaching, or have exceeded, their average life expectancy (approximately 50 years). The age and decay factor transcends all species and eventually impacts all City trees in the Urban Forest. Once aging trees have surpassed peak maturity and begin the process of deterioration, their structural integrity becomes increasingly compromised. It may have dead or decaying limbs, branches or trunk cavities that can present a significant hazard during high wind conditions. Eventually the tree begins to decay and is no longer able to support the weight of its structure (trunk) and /or substructures (branches or limbs). At this point, the tree becomes a potential hazard and will likely require removal. Utility Line Interference There are several areas in the City that have trees that have grown very tall and their branches interfere with overhead electric utility lines. When these branches grow into the live electrical utility wires, it can damage the lines as well as create a significant fire hazard. Often in these areas, trimming must occur on an annual or more frequent basis. Currently, the local electric utility provider, Southern California Edison (SCE), is responsible for trimming in areas where trees interfere with utility lines. However, SCE's trimming techniques are not consistent with the City's trimming standards. SCE employs a trimming technique commonly referred to as "topping" which, as the term implies, refers to simply chopping the tallest branches off of the top of the tree without 7 any attention to thinning and shaping the interior branches of the tree. The practice of "topping" results in distorted growth patterns and eventually leads to permanent damage, or death of a tree. 3.2 Preferred Trees in the Right -of -Way Staff has identified and categorized various local tree species that are preferred for planting and cultivation the in right -of -way. Climate and Soil Compatibility This is perhaps the most important consideration when selecting a new or replacement tree. No matter how desirable a tree species may be from a maintenance and aesthetic standpoint, if it is not compatible with the local climate and soil conditions it will become an operational liability and eventually perish. The preferred species are those which thrive on extended exposure to sunlight and heat and have minimal rainfall requirements (i.e., limited drought tolerance). Species that thrive in dry soil conditions would also be preferred. Aesthetics and Visual Compatibility The City's Urban Forest is recognized as a point of civic pride. Arcadia's Urban Forest is a rich blend of mature and predominately healthy trees from varied species. The species range from the majestic Engleman Oak to Magnolia, Crape Myrtle and Liquid Ambar trees. Aesthetically preferred species would be those that are visually compatible with the existing trees in the area and those that provide shade, greenery, and in certain cases are deciduous and loose their leaves in the fall. Growth Rate, Maintenance Requirements and Life Expectancy Preferred species are durable, mature rapidly, live for long periods of time, and require minimal trimming, water and maintenance. Tree species with symmetrical growth patterns (e.g., Camphor, Magnolia and Deodar Cedar) are also preferable to species that have erratic or disproportionate growth patterns. Resistance to Disease and Adverse Air Quality Preferred species should be very resilient and capable of tolerating high levels of exposure to smog and various airborne toxins. Preferred species should also have a high level of resistance to a variety of different diseases that can infect the local flora and fauna. Recommendation Several tree species that closely meet the criteria mentioned above have been identified and listed in the Specie Palette. The list also includes species that may not be El preferred for all right -of -way environments, but may be preferred for conditional uses such as open spaces and landscaped medians. The Urban Forest Master Plan recommends that the above criteria and tree species listed in the Specie Palette provide the basis for future selection of tree species that will be planted and cultivated in the right-of-way. 0 Tree Removal Guideline This Tree Removal Guideline is part of the Urban Forest Master Plan. Tree Removal Guideline No tree in the right -of -way, as defined in the Arcadia Municipal Code, shall be removed or replaced, unless the Public Works Services Director approves such removal or replacement in writing. The City may remove and/or replace a tree if: • The tree is dead, dying or diseased as defined in section 1; or • The tree poses a hazard to the public; or • Removal of the tree is required in order to permit the installation of public improvements. Section I — Criteria to Remove a Tree in the Right -of -Way A tree shall be deemed to meet the above criteria based on one or more of the following: the tree exhibits extensive dying branches or extensive decay in the trunk and /or branches; or the tree is leaning extensively; or the tree is missing significant tree branches to a degree that the tree appears unbalanced; or the tree suffers from significant root damage. Separate and apart from the above - mentioned circumstances, the City may allow a property owner to remove and replace a tree, at the owner's expense, if one of the following limited conditions is satisfied: (a) The tree removal is- approved by the Public Works Services Director as part of a construction project on public property, but only if the Public Works Services Director determines that the health of the tree will be affected by such construction or is necessary for the installation of sidewalks, handicap ramps, and /or curb & gutter; or (b) The right -of -way tree's roots are causing verifiable damage to the adjacent property owner's sewer and /or water lateral. (The detailed process for damage verification is outlined later in this policy and entitled "Damage Verification Process. ") (c) The right -of -way tree is causing verifiable damage to private property, (e.g. private walkways, driveways, building foundations, etc.). The process for damage verification and ultimate removal will be consistent with that required for sewer and water lateral lines. The City shall not be held liable for any damage to private property by the performance of the removal. Note: The City will require that the property owner /applicant hold the City harmless for any claims and liability for any damage to sewer laterals and water service lines, as well as to other property, caused by the removal of a tree. ift Note: The installation of a circular driveway or the widening of a driveway, position of tree in the right -of -way, and/or re- landscaping of a property owner's yard does Mt constitute sufficient basis for the removal of a tree, unless the tree is considered undesirable or meets the criteria for removal as described above. Before a tree is removed at the request of a property owner, the property owner shall submit to the City a deposit equal to the amount determined by the Public Works Services Director to be the actual cost to remove and replace the tree. Whether a tree is removed at the City's expense, or at the property owner's expense, in all cases the tree that is removed shall be replaced with a new tree. The size and species of the new tree shall be approved by the Public Works Services Director. Section II — Damage Verification and Approval to Remove a Tree in the Right -of- Way 1) For staff to consider the removal of a tree that is allegedly obstructing or damaging a private sewer lateral or water service line, the property owner must provide tangible and credible evidence to this effect. Evidence must include work invoices from a licensed plumbing contractor; and should include photographs of damaged lines and closed circuit television tapes of lateral lines. 2) Once the City has reviewed the evidence and determined it to be credible and compelling, a staff member will visit the site to conduct a field survey. The staff member will further inspect the street tree to determine species, age, size, and condition. 3) If the right -of -way tree is healthy and viable, the City will make every effort to encourage the property owner to mitigate the utility line problem through means other than removal of the tree. The cost to remove and replace a tree is the responsibility of the property owner. 4) If the City has determined that removal of a tree is necessary, staff will calculate a cost for removal and replacement based on size, condition, etc. The property owner can also use a licensed private contractor to remove and replace the tree as long as the removal and replacement are done properly and the contractor has first been approved in writing by City staff and licensed by the City. 5) Any tree that is removed must be replaced with another tree from the approved Urban Forest Species Palette. The City will typically require the replanting of a 24" box tree in the vicinity of the previous tree. Revised 4/21/08 11 The Master Plan Mission Statement includes the goals and guiding principles for managing the City's Urban Forest. These goals are relatively simple and include: • Comprehensive and systematic planning for the current and future requirements of Arcadia's Urban Forest. • Routine care and cultivation of the Urban Forest to promote the health, vitality, and safety of the City's Urban Forest. The Urban Forest Master Plan proposes to achieve the goals of the Mission Statement through an Urban Forest Tree and Right -of -Way Maintenance Program. This program emphasizes the following operational objectives: 1) Increase the existing tree inventory by planting additional new trees each year, rather than simply replacing existing trees that have been removed through attrition. 2) Trees growing under utility lines that have been subjected to repeated topping and excessive pruning will eventually be removed and replaced with more compatible species. 3) Undesirable tree species will gradually be phased -out and replaced with preferred species. 4) An established four -year trimming cycle will be maintained to promote the health and safety of trees in the right -of -way. 5) Trees in improved right -of -way areas that have tree wells, will receive upgrades to accommodate new growth and safety considerations. Challenges It is proposed that the City assume a more dynamic role in cultivating a sustainable and desirable Urban Forest for Arcadia residents. Staff has determined that a variety of tree species pose challenges from an operational perspective. The challenges involve tree issues such as; safety hazards, damage to public and private property, additional maintenance for fruit and pod clean -up, and in some cases detracting from the accepted community aesthetics. Another challenge is related to the fact that while some species are preferred in some areas of the community, they may be completely incompatible in another area. For example, tall Pine trees are well suited for a spacious boulevard median such as those found on Santa Anita Avenue between Las Tunas and Duarte Road. However, that same tree may not be as well suited on a sidewalk downtown along Huntington Drive `14 with its canopy blocking a storefront and its roots uplifting the sidewalk (e.g., Ficus trees). 4.1 Proposed Guideline Approaches to Replacement Staff has determined that there are approximately 5,055 undesirable trees that are concentrated in different areas throughout the City. There are essentially two alternative approaches the City can employ regarding the replacement of these undesirable trees with preferred species. Replacement Through Attrition The Public Works Services Department is currently attempting to follow this practice within the City (i.e., removing 100 trees and replacing 70). Attrition, as the term implies, is simply waiting to remove a tree until it has naturally terminated its life cycle. The advantage of the attrition approach is that the healthy and mature tree stock will not require removal. The primary disadvantage of the attrition approach is that any safety hazard, property damage or public eyesore that the tree may pose can only be temporarily mitigated until it dies, or meets the criteria stated in the Tree Removal Guideline. Often the mitigation measure(s) must also occur repeatedly over time. For example, the trees interfering with utility lines must be trimmed a minimum of once a year, whereas most trees in the City are only trimmed once every four (4) years. Systematic, Incremental Replacement This approach provides for the incremental removal and replacement of a predetermined number of undesirable trees each year. An annual removal /replacement schedule could be based on; 1) geographic location, 2) species, 3) prioritized by potential for causing damage or 4) safety hazard. The advantage of this approach is trees that have been identified as undesirable can be systematically removed without waiting, perhaps several years, for the tree to terminate its life cycle. Subsequently, any property damage, public nuisance, aesthetic incompatibility or other issue with a tree can be permanently mitigated in a timely, well - coordinated manner. This approach will save the City money in the long run by reducing extraordinary maintenance costs and potential claims for property damage. Staff has been allowing residents to pay for the removal and replacement of trees if they 13 request it. This is allowed when a tree is not an approved tree, is reaching the end of its life cycle but not ready for removal, or meets the removal criteria identified in the Tree Removal Guideline. The disadvantage of this approach is that it would inevitably require the removal of some trees that are mature and healthy. Many residents have developed strong attachments to trees that are growing in or around their neighborhood. When confronted with issues of potential safety hazards and property damage, some residents are very resistant to healthy trees being removed. Historically, the City's tree removal guideline has paralleled the community notion that healthy trees should only be removed as a last resort, (i.e. poses a significant safety hazard or damage to public property). 4.2 Comprehensive Tree Planting Guidelines A primary consideration in managing the Urban Forest is long -term sustainability. As segments of the tree stock age and die, it is important that these trees be removed and replaced with young, vigorous tree stock. It is equally important to augment the City's tree inventory annually to improve neighborhoods and other areas lacking an appropriate number of trees. Trees in the right -of -way are only being planted as replacements for trees that have been removed though attrition. Currently, approximately 100 trees are removed each year but the annual budget allows for only 70 tree replacements each year. New tree stock is not currently being planted in the City, with the exception of isolated landscaping projects. In response to the need to replenish and build the current tree inventory in the right -of- way, the Urban Forest Master Plan provides several tree planting guidelines for consideration: • Develop an active multi -year planting program that provides for annually increasing the Urban Forest inventory of trees each year. • Continue to require appropriate planting of trees as part of any new property development. • Educate property owners on their responsibilities regarding care of trees in the right - of -way. • Revisit the City's Municipal Code to consider amendments to Section 9811 regarding the appropriate tree species suitable for planting in the right -of -way, as defined in the Species Palette. iEl 4.3 Comprehensive Tree Removal Guidelines The city receives approximately 750 -1000 service requests regarding trees in the right - of -way from residents each year. Staff has determined that the top four local issues concerning trees are: 1. The tree discharges messy fruit droppings (primarily Olive, Carob, and Magnolia trees). 2. Damage to privately owned sewer laterals. 3. Damage to sidewalk, driveways, curbs and lawns. 4. Aesthetically unpleasant due to unusual growth, poor pruning or topping of the tree. The City's current guideline is to remove trees in the right -of -way only under the following conditions: • The tree is determined to be clinically dead, or dying by an arborist. • The tree is determined to be terminally diseased (i.e. Dutch Elm Disease) — supported by a detailed arborist report. • Poses a potential safety hazard, as determined by the PWSD. • Approval by the Development Services Department as part of a major renovation or development project. • The tree is causing significant documented damage to a private sewer lateral. (in this case the existing policy provides for removal and replacement at the property owners expense.) • Any tree that is removed must be replaced with another tree, not necessarily of the same size or species. Rather than providing shade and relaxation for residents, unsightly, unkempt trees can become a neighborhood nuisance. Many aesthetic issues related to trees in the right - of -way can be resolved by incorporating a degree of flexibility into the City's existing Tree Removal Guideline. Staff has developed a series of proposed modifications to the existing tree removal guideline that focuses on two types of removals, routine and corrective tree removal. The proposed modifications will allow for greater flexibility in the removal and replacement of undesirable trees, but may be hindered due to budgetary constraints. 15 4.3.1 Routine Tree Removal (Existing Guideline) 1. The City will remove any tree in the right -of -way that is clinically dead, diseased or posing a potential hazard to public safety. Following removal, the tree will be replaced with a preferred species. In most cases, the replacement tree will be a standard 24" box tree and will be removed /replaced at the City's expense. Currently, due to budgetary constraints, the tree replacement program is limited to 40 trees a year. 2. The City will consider replacing a tree at the owner's expense if it is properly documented that the tree is causing extensive damage to a resident's sewer lateral, utility conveyances and /or other private property such as driveways and private sidewalks. 3. The City may consider removing a tree at the owner's expense if it is determined to be an undesirable tree, or is aesthetically incompatible with other trees in the neighborhood or the community's surrounding environment. Because the Arcadia Municipal code (AMC) is not explicit on the removal of trees in the right -of -way as related to their impact on sewer laterals and other utility conveyances located on private property, the City has developed and maintained a standard operating procedure on this issue that has remained operative for nearly 20 years. Recently, this procedure has been incorporated into the official PWSD Guidelines Manual (Tree Removal Guidelines). The detailed process for carrying out the guideline as it relates to utility conveyances (sewer, water, gas, electric, telephone, cable etc...) on private property is outlined below. A. For staff to consider the issue of removing a tree that is alleged to be obstructing, or damaging a utility line located on private property, the property owner must provide tangible and credible evidence to this effect. Necessary evidence must include; work invoices from a licensed contractor; and can include photographs of damaged lines, or closed circuit television tapes of the sewer laterals. The rationale for the verification process is to prevent residents from using utility line damage as justification to facilitate removal of unwanted trees. This has occurred on a number of occasions. B. Once the City has reviewed the evidence and determined it to be credible and compelling, a staff member will visit the site to conduct a field survey. The staff member reviews appropriate utility line maps and visually inspects the tree in question to determine its proximity to the utility line. The staff member will also inspect the tree to determine species, age, size and condition. C. If the tree in question is determined to be dead, dying, diseased, or poses a hazard to public safety, the City will remove the tree without expense to the property owner. If the tree is determined to be healthy and viable, any and all expense for removal will be borne by the property owner. 16 If the tree is healthy and viable, the City makes every effort to encourage the property owner to mitigate the sewer lateral problem through means other than removal. Certain species of tree, such as Oak, cannot be removed without securing a City permit. Some Homeowner's Associations (HOA) also prohibit the removal of certain species of trees. D. Once the City and property owner have determined that removal is necessary, staff calculates the cost for removal based on size, condition etc... The property owner can also use a private contractor as long as the removal is done properly and the contractor has been duly approved by staff and licensed by the City. E. Any tree that is removed must be replaced with another tree, not necessarily of the same size or species. The City typically replants a 24" box tree in the vicinity of the previous tree, taking care to not plant it in a location that may again impact the nearby utility line. If the property owner chooses to use an authorized private contractor, the contractor is also required to replant a tree (size and species to be determined by the City) in place of the tree that was removed at the property owner's expense. In either case, the cost of removal is the responsibility of the property owner. The only exception to this guideline would be the removal of Oak Trees. This species is explicitly protected by Sections 9700 -9708 of the AMC regarding Oak Tree Preservation. 4.3.2 Systematic, Incremental Undesirable Tree Removal Program (Proposed Years of field observation by staff coupled with new information available from the arboriculture industry indicates that many local tree species that were originally thought to be preferable are now determined to be undesirable. These species are operationally and aesthetically incompatible for planting along the public right -of -way and should be systematically and incrementally phased out of the City's Urban Forest. Staff is proposing a systematic, incremental removal program for undesirable trees in Section 4.1 that describes the guideline elements in detail. 4.3.3 Removal of Protected Oak All Oak species are locally protected either through provisions in the Arcadia Municipal Code (AMC) or through Conditions, Covenants and Restrictions (CCR's) imposed by various Homeowner's Associations (HOA's). These trees are prohibited from being removed without a special permit. The protected species classification applies to all trees within the City boundaries, despite public or private ownership. 17 Section 9, Chapter 7 of the Arcadia Municipal code and under Arcadia City Council Resolutions 5288 -5290 inclusive, Oak trees and several other species are specifically separated as being special and unique. The Arcadia City Council has resolved and codified that oak trees are valuable assets to the Urban Forest in terms of environmental and aesthetic benefits. There are1,957 Oak trees in Arcadia, many of which are at least 100 years old. The AMC effectively prohibits anyone from removing, damaging or encroaching on the protected zone of an Oak tree without obtaining a permit from the City. Oak trees may only be removed without a permit under the following conditions: 1. Combine Permit (Section 9701 a) — an Oak tree permit is not required where tree removal has been specifically approved as part of a development permit (i.e., tentative parcel map, conditional use permit, modification, etc.) 2. Emergency (Section 9701 b) — if an Oak tree poses an imminent threat to the public safety or general welfare. 3. Visual Barriers (Section 9701 c) — the public right -of -way is obstructed or prevents an adequate line of sight. 4. Public Utility Damage (Section 9701 d) — action may be taken to protect public utility lines or property. 5. City Property (Section 9701 e) — an Oak tree will cause damage to existing public improvements or is in an area, which prevents the development of a site for public improvement. 6. Arcadia Redevelopment Agency (Section 9701 f) — an Oak tree may be removed if in the opinion of the Executive Director, the tree prevents the development of the site. Under normal circumstances, residents may file for a permit with the Development Services Department to have a living healthy Oak tree removed. If the applicant lives within one of the four HOA's with tree regulations (Highland Oaks, Santa Anita Village, Santa Anita Oaks, and Upper Rancho), the resident must submit their tree removal or encroachment plans to the Architectural Review Board (ARB) of their association, prior to filing an application with the City. The ARB may choose not to review such a request by filing a letter with the Development Services Department. If the ARB declines to review the application or the applicant lives outside one of the above mentioned HOA's, it is then the decision of the Planning Commission — Modification Committee to approve or deny the permit. The applicant may then appeal to the Planning Commission and /or City Council. W 4.4 Maintenance of the Urban Forest This subsection addresses the day -to -day requirements for the care and maintenance of the Urban Forest. Several pertinent maintenance issues will be discussed and guidelines and recommendations for routine and emergency maintenance procedures will also be addressed. 4.4.1 Routine Maintenance 4.4.1.1 Past Maintenance Practices During the last five (5) years, the PWSD has moved the tree trimming program from reactive and unmethodical, to a systematic and proactive program. Various trees, often in random locations throughout the City, were trimmed, or otherwise maintained in response to individual requests for service. City crews were tasked to trim and maintain trees in various neighborhoods of the City without the guidance of a systematic trimming program. While this method was responsive to the immediate needs of individual residents, it was not efficient or effective in serving the long -term maintenance requirements of the Urban Forest. The number of trees trimmed, maintained, removed and planted each year was historically dictated by citizen requests for service rather than planned operational considerations. 4.4.1.2 Current Practices Currently, the PWSD follows a systematic multi -year routine maintenance program. The key elements of this program include: • Four -year trim cycle based on predetermined geographic maintenance grids (please refer to Appendix Two for the City's current tree trimming schedule). • Annual trim cycle for select, fast - growing species in high visibility areas (primarily Ficus trees in the business districts). • Use of contract tree trimming services primarily for grid maintenance. • Use of City crews for service request (750 -1000 requests annually), immediate response to potential hazards, and non -grid trimming. • Removal of trees that have been previously identified as clinically dead or that pose an imminent safety hazard (approximately 100 trees annually). • Planting of 70 replacement trees. • Property owner notification of neighborhood trim schedules (usually done by door hangers through contractor. 19 • The current practice by the City does not release the property owner from the responsibilities to water and maintain trees in the right -of -way. 4.4.2 Emergency Maintenance The routine program of a four -year tree trimming cycle greatly reduces the need for emergency trimming or removal. However, when emergencies occur as a result of high winds, unanticipated structural damage and decay of trees in the right -of -way, the City is prepared to respond to these types of issues. In nearly all cases of emergency tree maintenance the City crew is responsible for responding. The contractor's emergency crews are dispatched from areas outside the City resulting in much slower response times than City crews. The tree trimming contractor is usually only used in emergency cases were extremely large trees require removal or during /following significant storms. Typical emergency maintenance issues include: • Hanging limbs. • Structural decay resulting in an imminent safety hazard. • Severely raised walkways or other public right -of -way creating a safety hazard. • Storm damage clean up. t 4.4.3 Vehicle and Sign /Signal Clearance Vehicles such as fire engines, ambulances, and street sweepers must be able to quickly and easily access all areas of the City, especially in the event of an emergency. Currently, the Arcadia Fire Department's tallest fire suppression vehicle is an aerial ladder truck with a height of 11 feet. The Fire and Public Works Services Departments work together to identify specific trees within the City that present a potential hazard and work to shape the trees to allow for improved access. 4.4.4 Utility Line Interference Mitigation In certain cases the City does not have full control over the maintenance practices in the Urban Forest. Electric and telephone companies are entitled to trim any tree encroaching on utility lines. Typically, this type of utility line trimming occurs hastily and with complete disregard for local trimming standards. The standard practice for utility line mitigation trimming is to simply cut off the top limbs and branches of a tree that is interfering with a utility line without shaping or pruning the rest of the tree. This practice, referred to as "topping ", is extremely detrimental to the growth pattern of the tree and is aesthetically incompatible with local trimming standards. Over the years, this has resulted in many severely damaged trees located under these lines. 20 The utility company's line clearing /tree trimming program is very expensive and labor intensive. The key elements of the tree trimming program that the City should seek to develop are: • Build a sustainable partnership with the various utilities to share the cost of removing and replacing trees encroaching on utility lines. • Focus on the removal and replacement of trees in certain areas that have been severely damaged by "topping ". • Prohibit the future planting of inappropriate species under utility lines. 4.4.5 Tree Trimming Methods and Techniques Destructive trimming practices such as "topping" are a major concern for the City. This method is harmful for trees and results in stunted and uneven growth. It also makes the tree more susceptible to damage during storms because it becomes structurally unstable, resulting in a potential safety hazard, as well as degrading established neighborhood aesthetics. The current tree trimming guideline prohibits the practice of "topping" by City crews or City contractors. However, in addition to the utility companies trimming practices, the City has experienced a significant problem with property owners or local property management firms and private businesses also engaging in illicit and improper trimming of trees in the right -of -way. Staff believes this is occurring because the City is creating a "canopy" effect for the business districts with the Ficus trees, instead of hedge trimming them into the shape of a "lollipop ". The City does understand that all of the signs in these areas may not be completely visible during this period, but has made every effort to thin the Ficus trees, improving the storefront visibility, without disfiguring the tree. The City sought and received civil damages for trees in the right -of -way that were improperly trimmed by the property owner or private tree trimming contractors that were hired without consulting the City. The City has notified all local businesses that have trees in proximity to their property that it is illegal for them to trim the trees without securing authorization from the Public Works Services Department. The American National Standards Institute outlines the general standards and guidelines for tree trimming methods and techniques used by the City and its contractor(s) for tree care operations (Appendix Nine). 4.4.6 Pruning of Trees in t he Right -of -Way in the Business Districts Trees (FICUS, SYCAMORE, etc.) located in front of businesses shall be trimmed in a manner to allow the structure of the tree to develop a canopy above existing buildings 21 and signs. The owners of the adjacent properties shall not cut any part of the tree without written permission from the Public Works Services Director or his designee. 4.5 Tree Waste Disposal and Recycling The City's tree trimming contractor is required to assume responsibility for diverting any green and wood waste that is generated from trimming or removing trees in Arcadia to a recycling facility. This requirement is pursuant to the California Integrated Waste Management Act of 1989 (AB 939), mandating the City to divert 50% of its generated waste by the year 2000. The City's tree trimming contractor is required to provide detailed reports to the City outlining the amount of green waste they are composting, mulching or otherwise diverting away from landfills. City records indicate that in 1999, over 590 tons of materials were recycled. This equates to about 80% of all tree trimming material that was generated. 4.6 Information Management An integral component of a multi -year Urban Forest Master Plan is to develop a comprehensive inventory of the tree stock in the City of Arcadia. The inventory is stored in a conventional database that includes the following basic data; number of trees in the right -of -way, species, geographic location, size, approximate age, date of the most recent trimming or maintenance, tree vacancies and general condition of the tree (i.e., excellent, good, fair, poor). The City's current tree trimming contractor, has conducted this inventory and provided it to the PWSD. 22 An important secondary component of the Urban Forest Master Plan is a concerted public education effort. The Urban Forest public information will incorporate a variety of media including special event, print media, publications, public notifications /service announcements, and internet website information. This Section is intended to provide an outline of the key elements of an Urban Forest Public Education Program as a tool to reach out to Arcadia residents and businesses to encourage their assistance in the care and maintenance of the Urban Forest. 5.1 Current Activities The City is currently involved in the following public education programs to actively promote and enhance the City's Urban Forest: 1. Arbor Day Activities — The Arbor Day Foundation has named Arcadia Tree City USA. One requirement of this award is that the City sponsor an Arbor Day. This event is jointly sponsored by the City and the Arcadia Unified School District. Over the last six (6) years, this event has been held at various local schools and other public facilities. The culmination of each event is the planting of a new tree at the host school. 2. Annual Holiday Tree Recycling Program — Each year the City, in cooperation with its residential waste hauler and the Sanitation District of Los Angeles County, provides free collection and recycling of holiday trees from residential neighborhoods. 3. Master Composter Program — The Los Angeles County Department of Public Works in Cooperation with the Los Angeles County Arboretum, provides periodic composting workshops with basic information on lawn and tree care for area residents. 4. Compost Sin Purchase Program — The City of Arcadia Public Works Services Department offers reduced price compost bins to local residents. Residents may call the PWSD to make arrangements for pick -up. 5. Tree Trimming Door Hangers — The City's tree trimming contractor places door hangers in residential properties informing them of when trees will be trimmed in their neighborhood. The hangers provide a phone number than can be called to receive additional information regarding tree care and maintenance (Appendix Three). 23 5.2 Proposed Public Information Activities i 1. Notification to Local Business Districts — The Public Works Services Department has a message for local business districts regarding City policies related to maintenance and trimming of trees in the right -of -way. 2. Print Publications — A series of print publications such as brochures, periodic newsletter articles and press releases will be developed and distributed by City staff and its tree trimming contractor. 3. Internet Website — Tree trimming schedules and general information on tree care and maintenance will be made available on the PWSD website. 4. Grant Funding — Staff will be exploring state and federal grant funding opportunities for public education efforts related to the Urban Forest. 24 Section 6. — Overview of Current Budget and Issues .for Consideration The City has spent an annual average of $416,000 (for FY 95/96- 99/00) of General Fund dollars to maintain and improve its Urban Forest and. Annual expenditures for the existing Urban Forest and Maintenance Program are split into two primary cost centers: 1. Contracted tree trimming services representing approximately $200,000 (48% of the Trees and Right -of -Way budget) 2. In -house general maintenance and tree trimming services represents approximately $216,000 (52% of the Trees and Right -of -Way budget). The Contract Tree Trimming Service portion of the budget is used primarily for: • Four -year grid trim cycle —this equates to approximately 4,400 trees annually. • Major tree removal and replacement — approximately 70 trees are removed and 40 trees are replaced annually. • Service requests — the contractor responds to roughly 75 service requests annually. The in -house Trees and Right -of -Way Unit portion of the budget is used primarily for: • Minor tree removal and replacement (30 trees annually). • Tree well maintenance. • Unscheduled tree trimming. • Service requests —average of 750 -1000 annually. • Trees in the right -of -way watering. • Tree root removal. • Weed spraying and abatement at public facilities, and right -of -way. • Right -of -Way and alley clean -up /brush removal. • Vegetation clearance for right -of -way and sign obstruction. • Periodic assistance of other street maintenance crews. 25 6.1 Budget Issues for Consideration The City's current priorities regarding the Urban Forest are centered around a rigorous and systematic maintenance schedule. The majority of the trees are scheduled to be trimmed at least once every four years. However in some instances, depending on the desired appearance, trees that are fast growing (such as Ficus trees) may require trimming as frequently as twice a year. The systematic, cyclical trimming schedule carried out primarily by the City's trimming contractor is combined with the work of City crews that will respond to service requests and perform daily upkeep of public property. The daily upkeep of private property within the right -of -way is the responsibility of the property owner pursuant to the Arcadia Municipal Code. This maintenance based program is extremely effective in ensuring that the existing Urban Forest stock remains relatively healthy, prosperous and aesthetically appealing. However, to achieve an optimal Urban Forest Program in the City of Arcadia, staff recommends continuing the additional aspects that are discussed below. Expanding Tree Stock The current program does not place emphasis on increasing the local tree stock by populating areas of the City that are barren of tree stock. In arborist's terms, these barren areas are referred to as "vacancies ". A "vacancy' is an area of the right -of -way where a tree belongs, but does not exist. City staff and the tree trimming contractor, have developed detailed criteria of what constitutes a vacancy based on the composition of numerous Urban Forest's located throughout Southern California. The criteria is based primarily on established spacing from other trees and local monuments such as fire hydrants, street light standards, utility lines, curbs, sidewalks, driveway approaches and the right -of -way. As mentioned in Section 3.1, a significant amount of the Urban Forest stock is reaching its average life expectancy and will soon be finalizing its life cycle. In light of this fact, the current tree replacement program, roughly 70 trees a year, is not sufficient to sustain the existing tree stock, much less expand the stock to fill identified vacancies. Removal /Replacement of Undesired Trees in the Right -of -Way Another issue that is not emphasized in the current program is the systematic removal /replacement of undesirable tree species. These types of trees effectively serve as a nuisance rather than an asset to the community. Undesirable trees frequently require additional maintenance and are incompatible with the aesthetic character of the community. 26 This Urban Forest Master Plan (UFMP) has been prepared to serve as a guideline to assist the City Council and the staff in planning and implementing a long -term management and care program for all trees in the right -of -way. The UFMP is a comprehensive strategy to assist the City in the integration and standardization of all aspects of tree infrastructure maintenance. This approach to tree maintenance and infrastructure needs will allow for continuity, consistency, and equity with regard to planning, budgeting, and day -to -day tree related issues, The City of Arcadia's Urban Forest consists of over 17,800 trees in the right -of -way. The tree population is extremely diverse consisting of over 50 different species. Trees soften the hard lines of the urban infrastructure and are an integral part of our community's aesthetic appeal. The existing tree program is proactive and provides excellent care and maintenance of the Urban Forest. However, there are a number of concerns about the aging and deterioration of large majestic trees, undesirable trees and root damage to hardscape, and tree vacancies. To address these issues, staff recommends the implementation of a 20 -year program that would remove and replace aging and undesirable trees and add new trees in the - right -of -way. Staff recently completed a tree inventory of all trees in the right -of -way; this inventory identified 5,055 trees that should be scheduled for replacement and 4,400 locations that are missing trees in the right -of -way. The addition of new trees and replacement of undesirable trees is estimated at approximately $4.4 million. To accomplish this large task, staff recommends replacing 250 trees identified for removal in addition to planting 220 trees each year as part of the normal annual maintenance program. The annual cost for a 20 -year program is approximately $220,000. Staff also recognizes that not all 4,400 locations that were identified as missing a tree will require the planting of a new tree. Staff will continue to recommend the planting of an additional 220 trees each year until no longer needed. The previously appropriated funds for new trees at that time would be diverted to the removal and replacement of undesirable trees. This program will mitigate public safety hazards, through a proactive and predictive approach to the replacement of older trees, improve aesthetics, minimize long -term liability and facilitate the long -term sustainability of a vibrant Urban Forest in the City of Arcadia. 27