RPVCCA_CC_SR_2013_03_19_02_PV_Nature_Preserve_Trail_User_Conflicts('C
CITY OF
MEMORANDUM
..
TO:
FROM:
DATE:
SUBJECT:
REVIEWED:
HONORABLE MAYOR AND MEMBERS OF CITY COUNCIL
CAROLYNN PETRU,DEPUTY CITY MANAGERIINTERI~
DIRECTOR OF RECREATION AND PARKS
JOEL ROJAS;,COMMUNITY DEVEL~r¢'D1RECTOR
MARCH 19,2013 UV
PALOS VERDES NATURE PRESERVE -MINIMIZING TRAIL USER
CONFLICTS (SUPPORTS 2013 CITY COUNCIL GOAL -TRAIL
SYSTEM ENHANCEMENT)
CAROLYN LEHR,CITY MANAGER ~
Staff Coordinator:Ara Mihranian,Deputy Community Development Director
Katie Howe,Administrative Analyst 11-Recreation and Parks Dept.
RECOMMENDATION
1.Receive and file an update report on the management tools used in the Palos Verdes
Nature Preserve to minimize trail user conflicts;
2.Affirm the proposed Volunteer Trail Patrol Program for the Preserve by directing staff
to implement the Program in cooperation with the Palos Verdes Peninsula Land
Conservancy;
3.Direct staff to convert un-programmed interpretive hours'fn the Mountains Recreation
and Conservation Authority Contract to Preserve patrol hours;and
4.Authorize staff to augment the PVPLCls trail signage responsibilities by including
$10,500 of City monies in FY 13-14 toward improving trail signage in the Preserve.
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BACKGROUND
On October 2,2012,the City Council adopted certain trail route and trail use
amendments to the 2008 Council-adopted Preserve Trails Plan (PTP)for the Palos
Verdes Nature Preserve (Preserve).During the Council's discussion that evening,
concerns were raised regarding reported trail user conflicts adversely impacting biological
resources and trail users'experiences in the Preserve.The concerns expressed
generally pertained to violations of the Preserve rules (as codified in the City's Municipal
Code),including extreme downhill mountain bike speed,and hikers,equestrians and
mountain bikers off designated trails;as well as poor trail etiquette between the different
user groups.In response to these concerns,the City Council directed staff to bring back
a report on management tools that could be used in the Preserve to minimize trail user
conflicts.As such,the Council is being asked to receive and file a report on such
management tools,as well as affirm a Volunteer Trail Patrol (VTP)Program developed
by City and PVPLC staff to assist)Nith the enforcement of City regulations in the
Preserve,and to convert un-programmed interpretive hours to patrol hours for the MRCA
Rangers.
DISCUSSION
The Council-adopted PTP identifies designated trail routes and trail uses for each of the
eleven Reserves that make up the entire 1,400 acre Preserve.Existing trails that are not
identified in the Council-adopted PTP are considered unauthorized trails,and in the interest
of habitat preservation,are closed to the public as required in the City's Natural Communities
Conservation Plan (NCCP).Since the adoption of the PTP,ongoing efforts have been
employed to change Preserve user behavior to comply with designated trail routes and uses,
and to discontinue the use of unauthorized trails.Examples include creating trail map
brochures,providing maps on the City and PVPLC websites,and installing signs,such as
welcome signs at the Preserve entry points and trail markers along designated trails
specifying the allowable uses on each trail.Additionally,the Preserve is patrolled by
Rangers,a City service provided by the Mountains Recreation &Conservation Authority
(MRCA),who enforce the City's ordinances.However,it has become evident that improved
efforts are needed to address trail user issues that continue to arise.Moreover,an
occurrence,not unique to the City's Preserve,is trail user conflicts.Trail user conflicts are a
more common source of contention throughout open space areas when multiple users share
the use of trails.Research has revealed techniques to address trail user conflicts that have
been successful for other agencies.
In order to minimize the potential for trail user conflicts from occurring in the Preserve,City
and PVPLC staff have worked closely to identify certain management tools that can be
implemented to minimize or avoid such conflicts,as discussed below.
1.Management Tools to Reduce Trail User Conflicts
The following are management tools intended to reduce trail user conflicts that the City and
the PVPLC have either implemented or are planning to implement within the very near
future.
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Installation of Preserve Rules Signs
In order to better achieve compliance with the Preserve rules specified in the City's Municipal
Code,signs that concisely cite the City's regulations will help educate visitors and reduce
any ambiguity or confusion about permitted and prohibited activities in the Preserve.
Additionally,adequate signs also strengthen the ability for Ranger-issued citations to stand
up in court.Therefore,the City will install newly-designed "Preserve Rules"signs at
approximately 58 entry points to the Preserve in the coming weeks.The "Preserve Rules"
signs are approximately 30"x 36"in size and will be installed at eye-level to maintain a
human scale and to minimize view impacts.The signs list the permitted and prohibited
activities in a concise and modern style.
It should be noted that manufacturing and installing the "Preserve Rules"sign at the 58 entry
points is estimated to cost approximately $14,000.According to Public Works,this cost will
be absorbed by an existing FY13-14 budget line item for Parks,Trails and Open Space
Maintenance.
Updating Trail Markers
Pursuant to the 2011 Council-adopted Management Agreement between the City and the
PVPLC,the City is responsible for installing entry regulatory signage (as noted above)and
the PVPLC is responsible for installing trail markers (up to 25 per year).Upon approval of
the trails plan for Filiorum,trail signage was installed in this Reserve.PVPLC installed
additional signage and revised some trail signage to better delineate authorized trails at the
Abalone Cove,Portuguese Bend,and Forrestal Reserves.The PVPLC has also embarked
on an update to the existing trail markers in key areas of the Preserve.Updates to the
Portuguese Bend Reserve have begun,and include re-ordering trail marker decals so that
the name of the trail is followed by a directional arrow and then a list of the designated uses
for each trail segment.
It should be noted that the PVPLC has limited funding and is not able to update all the trail
markers in the Preserve,but are initially focusing on Portuguese Bend Reserve because of
its higher levels of use and availability of funding through a grant.If the City Council
identifies this management tool as a high priority,the Council may wish to consider
expediting the process by funding the updating of existing trail marker signs at a cost of $70
per sign.Using the same Parks,Trail and Open Space Maintenance budget line item in the
FY13-14 budget referenced above for the "Preserve Rules"signs,staff recommends
allocating $10,500 to update the trail markers.
Trail Closures
To effectively deter Preserve visitors from accessing unauthorized trails or areas,a
commonly used management tool is to close the trail or area in a way that makes it an
unattractive option.Such methods include effective and well placed signs,disguising or
blocking access to the trail through barriers (posts and cable)or brush,and screening the
area from a Preserve visitor's line of sight.These management tools are currently being
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used by the PVPLC at various locations in the Preserve.It should be noted that this
management tool has a tendency to require on-going monitoring because of disobedient trail
users and can be costly to the PVPLC if improvements have to be continuously replaced or
repaired.However,to counter such behavior,City and PVPLC staff are working closely with
the Rangers to strategically monitor key areas ofthe Preserve and ensure that unauthorized
spur trails remain unattractive through the use of the described trail closure management
tools,such as replacing brush and repairing signs if removed or vandalized.
Adopt a Trail Program
The PVPLC will be implementing an "Adopt a Trail Program"within the next few months.
This program will allow PVPLC volunteers to adopt a specific trail segment to assist the
PVPLC in.maintaining the condition of a trail,closing and monitoring any unauthorized spur
trails,replacing signs,and addressing vandalism associated with trail closure measures,
among other things.This program will also help to augment the trail closure management
tools described above.
Installation of Temporary Security Cameras
In the past,the City has asked the Sheriff's Department to install a hidden temporary camera
that can be used to monitor locations,particularly for vandalism.The camera has been
successfully used to capture destruction of trail closure mechanisms.It should be noted that
it is unlikely that the camera will be able to capture information that will allow the City to issue
a citation;however,the camera is helpful to determine certain trends,such as what time
damage tends to occur,so that law enforcement may better target the area in question.The
Lomita Sheriff's Station currently has two such cameras available to the City on a limited
basis,if not already being used by the Sheriffs for other criminal investigations.
Volunteer Trail Patrol Program
Many agencies have success with volunteer trail patrol programs used to educate the public
on proper open space use.Through such programs,volunteers educate the public,provide
valuable information to law enforcement personnel on incident trends and the condition of an
open space area,and provide a uniformed presence to deter misuse.Most agencies recruit
volunteers from the multiple user groups that are active in an area to promote cooperation
between the user groups,and so that volunteers can effectively reach out within their own
user group to correct behavior.
With this mind,City staff and PVPLC began to develop a Volunteer Trails Patrol Program for
the Palos Verdes Nature Preserve.In order to ensure that the various user groups (hikers,
mountain bikers,and equestrians)were engaged,an informal advisory team was assembled
with representation from each of these user groups to assist in the development of the
Program.Since the October 2 nd City Council meeting,the team has met on several
occasions to discuss the Program and to exchange information gleaned from several
agencies'existing volunteer programs.
The Volunteer Trails Program has been developed into a handbook that is attached for the
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Council's review (see attachment).Essentially,the approving agencies for the Program
would be the City and PVPLC.A Volunteer Coordinator would be selected by the PVPLC,
with input from the City to administer the Program.At this time,Barbara Ailor has been
selected as the Volunteer Coordinator because of her knowledge of the Preserve and her
commitment to perform the roles and responsibilities of the Volunteer Coordinator. The
Volunteer Coordinator would serve as liaison between the City and PVPLC,and the
volunteers.The volunteers themselves would consist of hikers,mountain bikers,and
equestrians.The City and PVPLC would ultimately approve the program before its
implementation,and would remain the approving entities because of their roles as land
owner and habitat manager/conservation easement holder,respectively,and would work
cooperatively to make sure the Program is balanced and in line with the agencies'goals.
Staff recommends that the volunteers be covered through the City's insurance provider,the
California'Joint Powers Insurance Authority (CJPIA),for general liability and Workers'
Compensation.The cost of this c,Qverage would likely be covered under the City's existing
policy with CJPIA.However,depending on the Program's actual claims experience and
other factors,the additional coverage could have an estimated annual cost of $1,000 for 30
volunteers.
Converting Un-programmed Interpretive Hours to Preserve Patrol Hours
In order to increase Ranger patrols of the Preserve without increasing the City's contract
cost,staff recommends converting the Ranger's un-programmed interpretive hours to
Preserve patrol hours.There are currently 500 interpretive hours that staff does not
anticipate using through the duration of the current MRCA contract.As such,staff seeks
Council concurrence to convert these interpretive hours to patrol hours,which would equate
to approximately 6 additional patrol hours per week.Even with the conversion,the City
would still be able to offer the popular Junior Ranger and Night Hikes programs at their
current levels.
2.Potential Methods to Further Reduce Trail Use Conflicts
In addition to the management tools described in the previous section that are either being
currently implemented or will be implemented in the near future,the following are additional
management tools that have been identified and could potentially help to further reduce trail
user conflicts,but have certain limitations that prevent them from being implemented at this
time.
Increasing the Ranger Patrol Hours
As previously noted,the City contracts with the Mountains Recreation and Conservation
Authority for enforcement services in the Preserve.The current 3-year contract is for 7,680
patrol hours and 1,335 interpretive hours.This averages to 46 patrol hours and 8
interpretive hours per week.The MRCA Rangers also patrol 70,000 acres in the Santa
Monica Mountains Conservancy (SMMC),and have shared that the level of patrol time in the
Palos Verdes Nature Preserve is similar to what is provided in the SMMC when considering
the ratio of ranger hours and Preserve acreage.However,all open space areas are unique
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and present their own management and enforcement challenges.
The Rangers have a varied schedule in order to monitor activity during different times,and
so that their schedule is not predictable.They typically patrol five days each week,and this
almost always includes both Saturday and Sunday,when Preserve use is heaviest.Many
factors determine how and where a Ranger patrols during a specific shift,including weather,
time of day,input received on Preserve issues,types of violations the Rangers are targeting,
and ocean tides.While Rangers patrol all eleven Reserves that comprise the Palos Verdes
Nature Preserve,they spend most of their time in areas with higher levels of use,or where
violations are anticipated.Rangers patrol on foot and by vehicle,depending on the violation
they are addressing.
The Rangers'primary goals are to patrol the Preserve to achieve rule compliance through
education and enforcement and to keep the City apprised of the conditions and types of
activities taking place in the PreseAfe.They promote public safety,are wild land firefighters,
are in communication with emergency response agencies,and make valuable
recommendations to the City on enforcement and the safety of Preserve visitors.
Rangers receive direction from the City,and several tools and information sources are used
to prioritize their patrols,including public input,issues reported to the City (via email,
voicemail,or the Ranger Hotline),Ranger observations,and City and PVPLC observations.
Calls to the Ranger Hotline (310-491-5775)and other reports from the public are especially
helpful to prioritize patrols,because public and Ranger observations make it possible to
understand trends in the Preserve,so that patrols can be designed to most effectively
encounter and correct Preserve misuse.The Ranger Hotline is not intended to address
violations reported in real time.Rather, it allows the City to establish violation and use
trends,and it also provides the public with an opportunity to speak directly with a Ranger for
Preserve information.
If the City Council believes that additional Ranger patrol time is needed in the Preserve,
beyond the proposed conversion of un-programmed interpretive hours discussed previously,
the City Council may choose to increase the current contract with MRCA for additional patrol
hours.In this case,the contract cost increase would be negotiated with MRCA,but would
include scheduled increases in the Rangers'fully burdened hourly rate that are included in
the current contract.The current rate is $58.80 per hour through June 30,2013,which will
increase to $60.56 per hour for the period between July 1,2013 and June 30,2014.It
should be noted that one of the reasons that led to the formation of the Volunteer Trail Patrol
Program,as previously discussed,was to assist the Rangers in observing certain activities
and behaviors in the Preserve,through the added presence of volunteers,without
significantly increasing City costs.
The Sheriff's regular Deputies (crime cars)do not patrol the Preserve,but will respond to
particular violations as appropriate,including illegal parking,illegal drugs,and violence.The
CORE Team Deputies do patrol the Preserve,but on a limited basis,as their schedules and
other duties allow.A significant increase in the amount of time spent in the Preserve would
not be available without reprioritizing the work of the CORE Deputies,or adding another
member to the team.The current annual cost for a grant deputy is $175,000.However,the
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Western Avenue/PVDS Bicycle Patrol included in the FY13-14 budget has allowed the
CORE Team to spend additional time patrolling the coastal portions of the Preserve on an
overtime basis.Through this special program,which has a total budget of $30,500,the
CORE Team has been spending between 2 to 6 hours per week in the Preserve.The
majority of the time has been spent in Abalone Cove,Sacred Cove and the area around the
archery range,although the Team also travels on Burma Road through the Portuguese Bend
Reserve,since they access the coastal area on all-terrain vehicles from Del Cerro Park.
Increasing the City's Violation Fines
At the October 2nd City Council meeting,the PVPLC and some members of the public
suggested that the City consider increasing its fines to further deter illegal activity in the
Preserve ..
With the exception of fires/open flames or aircraft (such as paragliders),which are classified
as misdemeanors,all other violations of RPVMC Chapter 12.16 (Streets,Parks and
Recreational Facilities)are identified as infractions in the City's adopted Bail Schedule
(Resolution No.2010-20).The City's established fine for an infraction (such as dogs off-
leash,after hours use,littering,nudity,etc.)is $50 for the first offense,$100 for the second
offense within 12 months,and $200 for the third or more offense within 12 months.The
City's fine for a misdemeanor is $100 for the first offense,$200 for the second offense within
12 months,and $500 for the third or more offenses within 12 months.
At this time,staff does not recommend increasing the City's fines for several reasons:
•Based on staff's research,City fines are comparable to those charged by other local
agencies.
•Many of the violations are not unique to the Preserve and also apply to other public
property and parks within the City.
•In order for citations to be effective and the fines collected,adequate signage must
be in place to reduce the likelihood of citations being dismissed or the fines being
significantly reduced in court..
Rather,staff recommends first using the Volunteer Trail Patrol Program to increase public
education and awareness of activities taking place in the Preserve;and,improving Preserve
signage and trail closures.
Nonetheless,if these methods do not prove to be effective,the City Council could consider
amending the City's Bail Schedule to increase fine amounts and/or reclassifying some
violations.However,staff would strongly advise caution in reclassifying an infraction to a
misdemeanor,as a misdemeanor is a more serious offence that goes on a person's record.
People receiving a misdemeanor may be more likely to vigorously challenge it and the court
may be less inclined to uphold the citation if it is perceived to be disproportionate to the
offence.
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Implementation of a Bicycle Bell Program
At the October 2 nd Council meeting,CORBA representative,Troy Braswell,informed the City
Council that CORBA had applied to the California Trails and Greenways Foundation for a
grant to implement a bell program within the Preserve.Essentially,this program would
provide mountain bikers with bells to help alert equestrians and hikers of the mountain
bikers'presence.Since that meeting,Mr.Braswell informed staff that CORBA did not
receive the grant.Additionally,staff's research has shown that ringing a bell may spook a
horse,and that bell programs are not advised in the Preserve for that reason.
ADDITIONAL INFORMATION
Ishibashi Trail Update
At the October 2 nd Council Meeting,based on public testimony and Council comments,
Councilman Knight asked staff to monitor the Ishibashi Trail in the Portuguese Bend Reserve
and to provide the City Council with a follow up report on trail user conflicts,reckless trail
use,and habitat damage.Since October 2 n ,PVPLC Keepers,while performing
maintenance in the Reserve,witnessed bikes traveling down Paintbrush Trail,and
Paintbrush spur trails very fast and continuing onto Ishibashi Trail in an unsafe manner on
three separate occasions (October 3,2012;January 4,2013;and,February 3,2013).One
of these instances nearly resulted in a Keeper being hit by a mountain bike.In addition,on
October 3,2012,the City received a call through the Ranger Hotline reporting a mountain
bike jump located on Ishibashi Trail.Rangers have reported limited misuse of Ishibashi Trail
since October 2012,and attribute the improved behavior to increased Ranger presence in
the area,heightened awareness of concerns on Ishibashi Trail,and PVPLC installation of
measures to slow bicycles on the trail and close off spur trails.
Trails Oversight Committee and Public Input
At the October 2 nd meeting,there was some Council discussion on the possibility offorming
a committee to oversee the Preserve.At this time,City staff does not feel that such a
committee is necessary.This is because,as described in the PUMP document that was
transmitted to the Council on March 5th (see Section S.c);a process has been defined to
engage the public by the City and the PVPLC.Specifically,when public use issues are
brought to the PVPLC's attention,the PVPLC will either take the appropriate action to
address the issue in accordance with its mandatory or permissive obligations under the
Preserve Management Agreement or request the City to take certain action if the issue falls
under the City's Preserve responsibilities described above or in the Preserve Management
Agreement.If issues brought to the City's attention directly fall under the City's Preserve
responsibilities,staff will take appropriate action.These issues will be addressed at the
monthly team meetings between the City and the PVPLC.
In addition,the PVPLC will use reasonable efforts to ensure public involvement and
participation in the management and periodic evaluation of the Preserve.Such efforts may
include,but are not limited to,PVPLC's participation in the Annual Report presentation to the
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City Council;involving members of the community as "keepers"to provide regular monitoring
of the Preserve;soliciting public comments through outreach such as comment boxes,
mailings,events and workshops;and inclusion of members of the public on committees that
the PVPLC may from time to time establish.
In summary,staff believes that the present system of soliciting public input on City/PVPLC
Preserve management activities and Preserve enforcement issues from Preserve users and
adjacent residents via the City's website,Ranger Hotline and the PVPLC Keepers program
provides more opportunity for public input than periodic committee meetings that may only
be attended by a few.Furthermore,staff believes that instituting the Volunteer Trail Patrol
Program described earlier in this Staff Report will provide additional public input to staff via
the reports of the Program's volunteers.It should also be noted from past experiences,a
formal oversight committee would require a significant amount of added staff time and/or
diversion from other assignments.
CONCLUSION
To reduce trail use conflicts within the Preserve,staff recommends a combined effort
between the City and PVPLC that includes implementing a Volunteer Trail Patrol Program,
improved signage and spur trail closures within the Preserve,and converting un-
programmed MRCA interpretive hours to patrol hours.Staff proposes updating the Council
on the success of this team effort in 2014 when the Council reviews the PVPLC's annual
Preserve Management report.
FISCAL IMPACT
Based on the discussion herein,staff has identified the following costs that may be incurred
by the City for implementation of certain management tools to reduce trail user conflicts.
Additional Signage
The cost for the City to install "Preserve Rules"signs at the 58 entry points is estimated to be
approximately $14,000.This cost will be absorbed by an existing budget line item for Parks,
Trails and Open Space Maintenance.Further,if the City Council believes that the City
should augment the PVPLC's efforts to update the trail markers,an additional $10,500 could
be allocated from the FY13-14 budget,through the Parks,Trails and Open Space
Maintenance Fund.
Volunteer Trail Patrol Program
Annual costs are anticipated to be $10,140 for a Volunteer Trail Patrol Program with 30
volunteers.Costs include training,background checks,general liability and Workers'
Compensation coverage through the City/CJPIA,printing costs,miscellaneous costs (i.e.
food for quarterly volunteer meetings),and uniforms.Costs do not include staff time.To off-
set a portion of the program's cost,the City Council may wish to consider requiring
individuals to pay a one-time set fee to participate in the Volunteer Trail Patrol Program in
the amount of $50-$100 per individual.A lower annual fee may also be considered
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thereafter to cover the cost of continuing training,replacement uniforms,etc.
Attachments
•Draft Volunteer Trail Patrol Program Handbook
•PVPLC Correspondence dated March 11,2013
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Attachment #1
Draft Volunteer Trail Patrol Program Handbook
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Palos Verdes Nature Preserve
Volunteer Trail Patrol
PROGRAM DESGRI",.ION
BACKGROUND
MISSION
GOALS AND OBJEeTIVI!S
OVERSIGHT
VOLUNTEEITRAII.I!.A'SOL ACTIVITIES
-:-:-:::,':-::
VOLUNTEERI'8J'ILI'ATROL MEMBER REQUIREMENTS
ORIENTATION ANDI'RAINING
SUPPLIES
RULES OF CONDUCT
Adopted by City of Rancho Palos Verdes:
Revision dates:N/A
_,2013
2-12
Palos Verdes Nat1.u"e Preserve
Volunteer Trail Patrol
PROGRAM DESCRIPTION
BACKGROUND
The City of Rancho Palos Verdes (the City)created the Palos Verdes Nature Preserve (the
Preserve)with the aid offederal,state and local government funding,as well as substantial
private contributions organized by the Palos Verdes Peninsula Land Conservancy (PVPLC),to
set aside scenic open space lands to be dedicated to the preservation of threatened and
endangered species indigenous to the Palos Verdes Peninsul~l:>ut at risk of loss due to
development and other human activity,as well as to proteckUnique scenic vistas,natural
landscape and cultural resources.Use of the Preserve fQrid",cation and science,and
enjoyment of the Preserve for recreation,are encour8:g$(fbufar~permitted only as they are
consistent with the conservation mandate of the Pr~il'Ve.In additipn to the rules created by
the Preserve's governing documents,several sp~Qies of flora andfaQna in the Preserve are
protected by federal and state laws....................
..........
The Preserve consists of approximately 1tf(QQacresOfppen-space lands all located in the City
of Rancho Palos Verdes,and divided amdt'tg11qiffereritR~serves:Abalone Cove,Agua
Amarga,Filiorum,Forrestal,Ocean Trails,Alta vroim~,Poft9guese Bend,.San Ramon,Three
Sisters,Vicente Bluffs and Vistad~kNorte...
PVPLC,which since 1988 ha$l~dthec()mmunit¥"based effort to protect open space lands on
the Peninsula,is named as the~b~bit~tl'tl~{lli:lger'!tJnder the Preserve organizational documents
and as such oversees th~~Qn~erVatiQnmaridat$ofthe Preserve,while principal responsibility
for public safety an<i~nforcerrie...tpfrij~~s in the Preserve falls to the City.In furtherance of
protecting the Prese~~,the CityCqJ'ltraGt~<l with the Mountains Recreation and Conservation
Authority (MRCA)tohav~its rangens patrol the Preserve and if necessary issue citations andmakearrests...
MISSION
The mission of the Palos Verdes Nature Preserve Volunteer Trail Patrol Program is to serve as
eyes and ears of the City of Rancho Palos Verdes and the Palos Verdes Peninsula Land
Conservancy with a view to 1)protect the natural resources of the Palos Verdes Nature
Preserve,including the flora and fauna as well as the geology,topography and scenic
landscape,and 2)enhance the safety of,and promote an enjoyable experience for all Preserve
visitors.
GOALS AND OBJECTIVES
•Foster volunteerism in support of the mission.
•Increase compliance with laws,rules and policies governing the Preserve (the Rules)by
visitors in the Preserve.
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Palos Verdes Nature Preserve
Volunteer Trail Patrol
PROGRAM DESCRIPTION
•Obtain information to assist the City,PVPLC and enforcement personnel,including the
MRCA rangers in prioritizing their focus.
OVERSIGHT
The VTP Program is overseen by the City,PVPLC and a Volunteer Trail Patrol Coordinator.
Volunteer Trail Patrol Coordinator
•Serves as the liaison between the City,PVPLC and VTP members.
•Signs Volunteer liability waiver and release form.
•Develops recruitment procedures and assists the City anqPVPLC with recruitment,
screening,and selection of volunteer trail patrol applic~pt$.
•Schedules volunteers and instructors for requireqtraining,wryich may include field
programs,and documents completion of trainipg.
•Maintains volunteer record system.
•Conducts periodic field evaluations of V"[Pm~mbers.
•Working with the City,PVPLQlitt(:lMRCArllingers,ICfentifies volunteer needs and places
volunteers where neededlilod evaf~tes wttitfler more volunteers are required to provide
adequate coverage of plaCij$and times.Also helps to identify patterns with respect to
Rules violations thatrTlight n1a~~pla~t'r'l~nt9fresources more effective.
•Identifies suppl¥~eeds of v6IQl"lteer$E;:md handles distribution and inventory of supplies.
.'."'.'...:"',.
•Makes recommendatipns for futQre modifications to the VTP program.
City of Rancho Palos Verdi$
•Monitors and evaluates the effectiveness of the VTP Program in protecting Preserve
resources and compliance with Preserve rules.
•Provides fingerprinting and background checks.
•Works with PVPLC,MRCA,and the VTP Coordinator to focus places and times for
volunteer patrols.
•Hosts a web portal for tracking Volunteer Trail Patrol member work hours and reports.
•Shares reports of Incidents (defined later in this Description)and information reports with
PVPLC and the VTP Coordinator via the City's web portal.
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Palos Verdes Nature Preserve
Volunteer Trail Patrol
Palos Verdes Peninsula Land Conservancy
PROGRAM DESCRIPTION
•Provides input to City regarding effectiveness of the VTP Program.
•Selects the VTP coordinator with input from the City.
•Helps the VTP Coordinator recruit volunteers.
•Works with the City and the VTP Coordinator to focus places and times for volunteer patrols.
•Receives copies of Incident and information reports.
VOLUNTEER TRAIL PATROL ACTIVITIES
The Volunteer Trail Patrol patrols the Preserve under the dir~(}tion of the MRCA rangers,the
City and PVPLC and observes and reports various types()f~¢tivities and conditions,such as
the following (as used in this document,Incidents):.
•Violations of Rules within the Preserve,includit1$/fbut not Iimitsc:ft9:
o off trail and unauthorized trail use/failuret()followp~rmitted tr'afl\,Jses and right of way
rules;...
o use of motorized vehicles;.
o damage to or vandalism of propertY/in~ll,Jcfinggraffiti and damaged or removed signs or
post..;and-rope and other barricades;....
o dogs off-leash and ownersJ{;ljling to pi9k upWast~;ahd
o smoking,and lighting offi~.
•Needs for medical attentiOf'l~fire protection,law enforcement or other emergency services
within the Preserve,and
•Hazardous trail conditions withinthePresal"Ve.
.",'.".
When a Volunteer Trail Patrol mernberancounters an Incident,the member:
•Communicates withe;Qforcement personnel via the ranger hotline or other first responders
as necessary.
•Where appropriate and consistent with the member's training,documents the Incident with
photos that are then included with reports.
•If the VTP member has received necessary training and certification,assists visitors who
require first aid or other forms of help during patrol.
•Where appropriate and consistent with the member's training,uses the Incident as an
opportunity to provide education to the visitor about the Preserve and its rules.
The Volunteer Trail Patrol members also:
•Submit reports of each patrol to the VTP Coordinator via an online report form on the City
website.
3
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Palos Verdes Nature Preserve
Volun.teer Trail Patrol
PROGRAM DESCRIPTION
•Meet once each quarter.Meetings will include general updates and current trends and
developments as well as educational presentations on a variety of topics.Topics may
include post-fire ecology,local flora and fauna,geology,and PVPLC activities.Quarterly
meetings will contribute to the program's total number of volunteer hours.
•Follow procedures established for the VTP Program by the City and PVPLC,as
implemented by enforcement personnel and the VTP Coordinator.
•Set the tone for visitors to the Preserve by complying with the Rules at all times,both during
volunteer times and when using the Preserve outside of volunteer hours.
•Gain a working familiarity with PVPLC's mission and vision statement,the Rules and any
educational materials provided in the course of VTP training.
The Volunteer Trail Patrol is NOT:
•Authorized to issue citations,chase or detain visitor~,threa~n prosecution (other than to
advise visitors whether a particular behavior or a9tiOl1 could$Mbject the visitor to citation),
use physical force or otherwise engage in any activity generalfytli:lserved enforcement
personnel.....
• A substitute for first responders (e.g.,Jirli:l,parameqi¢g,law enforcement)-the Volunteer
Trail Patrol reports incidents and proviqesa~sistandiQnly to the extent the VTP member
has appropriate and specialized training,.
VOLUNTEER TRAIL PATROLMEftlf8ER REQUIREMENTS
•Minimum eighteen years oNllge.
•Commits to patrqliaffiil1imuF'rloff6yr hours per month,which may include weekends and/or
holidays,for notJ~ss than orl$¥ear.
•Completes a Volunte~rApplicati(m and interview process.
•Signs a Volunteer Agreem$of,Waiver and Release form and completes fingerprinting and a
background check.
•Successfully completes a Volunteer Trail Patrol training program and field evaluation.
•Is willing to be assigned to patrol specific areas.
•Is in adequate physical condition for their assigned activity.
•While on patrol,wears the proper uniform or other appropriate clothing and safety gear and
carries the appropriate supplies.
•Maintains own supplies except as set forth later in this Program Description.
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Palos Verdes Nature Preserve
Volunteer Trail Patrol
•Provides own method of patrolling Preserve.
PROGRAM DESCRIPTION
•Able to provide own transportation to and from the Preserve.
ORIENTATION AND TRAINING
Training is an integral part of the Volunteer Trail Patrol program.Training will be completed as
part of the induction of volunteers into the program,and on an as-needed basis to disseminate
new information and improve and expand patrol capabilities.New volunteer training provides
the VTP member with an overview of the Preserve,the Rules,patrol procedures and routes,
and other information.Special situation training for medical emergencies and personal safety
may also be provided.Additional classes may be offered,such as biological,historical and
cultural aspects of the Preserve.
Initial training consists of a classroom session conducted bypne or more representatives of
RPV staff,PVPLC,the MRCA ranger, and qualified volunt~~rinstructors.Thereafter,each
volunteer must complete a field evatuation performed bythErV"["P Coordinator or designee to
evaluate the following:
•Soundness of the volunteer's supplies;
•The volunteer's knowledge of the Pre§~.l"Ve trailsY$fem and the Rules;and
•The volunteer's ability to meet the requit~ment§9f thEfVTP Program commitment.
SUPPLIES
Volunteers will be required to Carry certlillin supplies to ensure they are prepared for a variety of
situations.These include:
•Supplies provid~athrough tn~VTPQ90rdinator:
o Open spacett~it maps andbrochUl'"es
o Communication~rd with pfl(;jne numbers for enforcement personnel and emergency
support
o Patrol log forms
•Supplies provided by the volunteer:
o Pack for supplies and water
o Uniform (t-shirt or vest and cap)
o Camera
o Cell phone
o Adequate water for patrol
o Note pad or other form of recording I ncidents,information and other activities
o Own means of patrolling the Preserve if by horse or mountain bike
RULES OF CONDUCT
All VTP members must comply with the following rules of conduct at all times:
5
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Palos Verdes Nature Preserve
Volunteer Trail Pa.trol.
PROGRAM DESCRIPTION
•Volunteers will not accept any compensation,gift,payment of expenses or any other item of
monetary value which may create the appearance of private gain in connection with their
work as members of the Volunteer Trail Patrol Program.
•Volunteers will contact the VTP Coordinator with suggestions,comments or problems.
•Volunteers will follow instructions given by the VTP Coordinator or employee of PVPLC,
RPV,or the MRCA Ranger.If instructions conflict,notify the VTP Coordinator.
•Volunteers will be courteous,respectful,and tactful when interacting with others.No form of
discrimination will be tolerated.
•Volunteers will not patrol while in possession of or under the influence of alcohol,illegal
drugs,or any other intoxicating or mind-altering substance..', ,.
•Volunteers will not use offensive language.
•Volunteers will observe precautions for personaLsifety,poste:cirules,signs and safety
instructions.
•Volunteers will not abuse access to information,fi9i{ities,equipment or materials.
•If a volunteer displays inappropriate IIIOlrtllle CitY~rtd/or PVPLC reserves the right to
dismiss the volunteer without warning ft'lr <:1InMt',l:lff,o;,O
6
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Attachment #2
Palos Verdes Peninsula Land Conservancy Correspondence dated March 11,2013
2-19
PRESERVING LAND AND RESTORING HABITAT FOR THE EDUCATION AND ENJOYMENT OF ALL
March 11,2013
Dear Honorable Mayor Brooks and City of Rancho Palos Verdes City Council Members,
The Palos Verdes Peninsula Land Conservancy would like to express concern about the impact of
unauthorized trail use on the Preserve.The mission of the Land Conservancy is to "preserve land
restore habitat for the enjoyment and education of all."The land set aside as the Palos Verdes Nature
Preserve was acquired with the generQJ;;.!S support of the community as well as governmental sources to..
preserve and increase the conservation values that are supported by these lands.Our commitment to
the City of Rancho Palos Verdes in our management agreement,and specifically to complete successful
habitat restoration over a 50-year time span,is significant and requires great resources and community
involvement in order to be successful.
Both the Land Conservancy and many community constituents are disappointed regarding the habitat
impacts and visual/aesthetic impacts of unauthorized trails on the Preserve,and concerned about visitor
safety and reduced enjoyment of the Preserve due to vandalism and improper use of the Preserve.As
our constituency sees less value placed on addressing these issues,and by implication less value placed
on protecting this community asset,it may impact the ability of the Conservancy to raise funds which
are vital to meeting the conservation goals ofthe Preserve.
Improper use,and vandalism to the Conservancy's efforts to address the effects of improper use,has
continued since the October 2,2012 City Council meeting.Our volunteer KEEPERs have observed,and
while in the field received reports of,bicyclists coming down Paintbrush and Paintbrush unauthorized
trails very fast,and continuing onto Ishibashi trail,in an unsafe manner.We also have received reports
of people almost being hit by bicyclists.
An appropriate system of encouraging compliance in the Preserve requires three legs for support:good
signage,education and an active law enforcement presence.
The Land Conservancy actively supports education about the Preserve in multiple ways,including our
volunteer training and stewardship work days,development of production of trail and informative
brochures,hosting an informative website,particip~tion in community outreach events,hosting
regularly scheduled interpretive nature walks,the operation oftwo nature centers which provides the
community access to interpretive staff and hosting all Peninsula third graders through a nature
education program.All of these educational outreach activities allow us to raise awareness about the
Preserve and the conservation values of the Preserve.
916 SILVER SPUR ROAD #207.ROLLING HILLS ESTATES.CA 90274-3826 T 310.541.7613 WWW.PVPLC.ORG
2-20
The Land Conservancy is collaborating with the City of RPV to develop regulatory signs that will be
posted at all trailheads.One ofthe goals of improving signage is to provide the rangers with a better
ability to cite people who are not following posted regulations.We are very pleased to be a part of this
process and look forward to the installation of the trailhead regulatory signage.
The Land Conservancy is also focusing on reducing unauthorized trail use by improving sign age,
including placing "Area Closed"signage on non-authorized trails and adding signage to improve trail
delineation.In addition,a new volunteer program ("Adopt-a-trail")creates a group of volunteers
committed to assisting with closure of key unauthorized trails by assisting staff in maintaining
unauthorized trail closures by replacing brush or repairing broken cables and signage.
We feel that we are developing a positive foundation toward compliance through present and future
educational efforts and signage.However,we are not in a position to provide active law enforcement.
That is something the City must do,as without the threat of consequences,the other efforts do not
succeed.
The Land Conservancy relies on the City for law enforcement,both to protect the Preserve and to
protect the investment that the community,through its contributions of time and money,has made to
the Preserve.The Volunteer Trail Patrol is a useful tool to provide eyes and ears to support the Ranger's
activities and to provide better information about uses in the Preserve,but they lack
enforcement/citation power.
The size of the Preserve,its proximity to homes,and the complex schedule of infractions that occur,
require a greater ranger presence.One option would be increasing ranger presence in a given area for
limited periods of time to focus on problem areas.Another option is using other law enforcement,such
as the Los Angeles County Sheriff,to provide enhanced,short-term enforcement.The City also has the
power to increase fines in the Preserve as a deterrent to rule breaking.Also,given that the Land
Conservancy and other community-based groups,such as the Los Serenos docents,already provide
nature based interpretation,converting some of the Ranger's interpretive hours to enforcement time
might provide a good solution.
The Land Conservancy urges City Council to increase enforcement on the Preserve.If a decrease in
unauthorized activities and/or reckless activity cannot be achieve through these types of proposed
measures (including the Volunteer Trail Patrol),it may become necessary to look at alternatives to the
current user designations for the existing trail system or other,more strict rules governing Preserve use.
Sincerely,
Andrea Vona
Executive Director
Ken Swenson
PVPLC Board member and Stewardship Committee Chair
916 SILVER SPUR ROAD #207.ROLLING HILLS ESTATES.CA 90274-3826 T 310.541.7623 WWW.PVPLC.ORG
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