CITY OF FULLERTON
_________________________________________________________________________________________________________________________________________________________ Community and Economic Development Department
Item No. 3
March 12, 2025
6:30 p.m.
Public Hearing
TO: Chair Dino and
Members of the Planning Commission
APPLICATION
LRP-2024-0008
APPLICANT
City of Fullerton
LOCATION
Citywide
SUMMARY AND APPLICATIONS REQUESTED
A request to consider amendments to T he Fullerton Plan (i.e., the General Plan) which updates the Safety Element as required by state law.
CEQA DETERMINATION
The proposed Safety Element (SE) update has been determined to be exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15061(b)(3) (“general rule” or “common sense”) as it can be seen with certainty that there is no possibility that the S E would have a significant effect on the environment.
AUTHORIZATION / GUIDELINES
Fullerton Municipal Code (FMC) Sections 15.72.040 and 15.72.050 authorize the Planning Commission to hold a public hearing to consider amendment s to The Fullerton Plan and FMC and make a recommendation to City Council based on findings that the proposed amendments are consistent with state requirements.
Government Code Section 65302 requires every city in California to have a General Plan which contains mandatory sections or “elements” including but not limited to the Housing Element, the Safety Element, and the Open Space Element . Subsequently, Senate Bill (SB) 379 states that upon the next revision of The General Plan, cities are required to update the SE. The City completed the process of updating the H ousing Element and received its letter of compliance from the Department of Housing and Community Development on February 27, 2025.
Planning Commission Staff Report – Fullerton Safety Element March 12, 2025
Item No. 3 Page 2 LRP-2024-0008
Lastly, SB 1241 revises the Safety Element requirements for state responsibility areas and very high fire hazard severity zones, as specified, and require the S afety Element, upon the next revision of the H ousing Element on or after January 1, 2014, to be reviewed and updated as necessary to address the risk of fire in state responsibility areas and very high fire hazard severity zones, taking into account specified considerations, including, among others, the most recent version of the Office of Planning and Research’s “Fire Hazard Planning” document. The bill also requires cities to, at the next update of its General Plan guidelines, include these provisions, or a reference to these provisions and any other materials related to fire hazards or fire safety it deems appropriate.
PUBLIC OUTREACH
A Public Hearing Notice was published in the Fullerton News Tribune on February 27, 2025. The notice was also posted on the City’s website and at the Maintenance Services Department, Main Library, Museum Center, and City Hall on the Public Notice Boards. Lastly, an email blast was sent to over 400 individuals on a Community Development interest list. Attached are public comments received as of the date of this report (Attachment 2). Responses to these public comments are provided and did not necessitate modification of any of the proposed update materials (Attachment 3).
PROJECT BACKGROUND
The S afety Element focuses on understanding the hazards and safety issues that affect the community and ensures public safety concerns are adequately addressed. The quality of life in Fullerton is directly impacted by the sense of security of its residents and businesses. Addressing and reducing the risks associated with natural and human- induced hazards would further the City’s overall goal to provide a safe and enjoyable environment for its citizens. .
The SE meets the requirements of California Government Code Section 65302(g) by setting forth goals and policies to protect and safeguard Fullerton residents from various disasters (further described below).
The Fullerton Plan uses a unique format and therefore the Safety Element update is contained over several sections of The Fullerton Plan and within related documents. This includes:
- Revised Goals (found throughout The Fullerton Plan)
- Fullerton Safety Element Supplement
- Local Hazard Mitigation Plan (updated in 2020)
Each item will be further described below.
ANALYSIS
Fullerton SE Update (Appendix I – Fullerton Safety Element Supplement) State law requires that a city's General Plan include a Safety Element to address protection of its people from unreasonable risks associated with disasters, including earthquakes, floods, fires, landslides, and other hazards identified by the local community. Goals and policies of the Safety Element address issues associated with hazard mitigation planning, disaster preparedness, emergency response, wildfires, geologic and seismic hazards, flooding, climate change, hazardous materials, law enforcement, and airport hazards.
Planning Commission Staff Report – Fullerton Safety Element March 12, 2025
Item No. 3 Page 3 LRP-2024-0008
The Fullerton Safety Element Supplement (to be Appendix I of The Fullerton Plan) addresses the aforementioned issues and provides additional text and mapping to ensure compliance with SB 1241 requirements (Attachment 1). This document is new and does not replace any pre-existing document. Disaster information, based on updated surveys and analysis, include the following:
- Evacuation routes
- Areas of liquefaction potential
- Areas of deep-seated landslide potential
- Fire hazard severity zones
- Areas of wildland urban interface
- FEMA identified flood zones
- Climate vulnerability assessment and adaptation framework As previously mentioned, this document was updated to comply with state law.
Fullerton SE Update (Revised Goals)
The Fullerton Plan, as Fullerton’s General Plan, is the City’s fundamental governance document that guides decision-making, actions, programs, and crafting of more specific policies. It embodies community values and sets general direction for achieving The Fullerton Vision. The topics it addresses are wide-ranging, influencing many aspects of Fullerton.
Each Chapter, or Element, addresses a particular topic and contains at least one goal and multiple policies. Actions related to the goals are identified in Part III of The Fullerton Plan – The Fullerton Implementation Strategy.
Safety-related goals and policies are spread throughout the document. The majority of those can remain as is because they meet state requirements. There are also some being updated as necessary, and some new policies being added to fill in missing requirements to meet state law (see Attachment 5). The policies within the following Goals are being updated:
- Goal 7 - Growth and development aligned with infrastructure capabilities - Goal 12 - Proactively addressing public safety concerns - Goal 13 - Responsive to public safety needs
- Goal 18 - Citizens that are actively involved in shaping the community’s future and overall quality of life
- Goal 19 - An adequate, safe, and reliable water supply - Goal 20 - A healthy watershed and clean urban runoff
- Goal 24 - Responsible management of open spaces balanced with the healthy functioning of environmental systems
- Goal 26 - Protection of people, natural and built environments and economy from natural hazards
In summary, this action is being done to ensure compliance with SB 1241 requirements.
Local Hazard Mitigation Plan
The Fullerton Local Hazard Mitigation Plan (LHMP) is both a reference document and an action plan. It has information and resources to educate readers and decision makers about hazard events and related issues, and a comprehensive strategy that the City and community members can follow to improve resiliency in Fullerton. The LHMP was developed to broadly increase resiliency in Fullerton and has the five following goals:
- Reduce and isolate threats to public safety and property in Fullerton.
Planning Commission Staff Report – Fullerton Safety Element March 12, 2025
Item No. 3 Page 4 LRP-2024-0008
- Maintain government operations and provisions of essential services to residents and stakeholders during and after a hazard event.
- Protect the natural environment through responsible stewardship of air, water, and open spaces in Fullerton.
- Promote resiliency and climate action in Fullerton through resilient infrastructure, responsive governance, and vibrant civic participation. - Partner with surrounding local, regional, state, and federal jurisdictions in hazard mitigation efforts.
The City’s LHMP was updated in 2020 and includes relevant content for addressing the state’s SB 1241 requirements. No changes are proposed to the document at this time and is provided for reference (Attachment 4).
GENERAL PLAN CONSISTENCY
The request is consistent with the following Fullerton Plan goals and policies:
Goal 12: Proactively addressing public safety concerns.
P12.3 Community Confidence Building: Support policies and programs that bolster productive communication and problem-solving between public safety personnel and the Fullerton community.
Goal 26: Protection of people, natural and built environment and economy from natural hazards.
P26.1 Regional Coordination: Support projects, programs, policies, and regulations to coordinate planning for and response to natural disasters with other agencies within the region.
P26.3 Focus Area Planning: Support projects, programs, policies and regulations to consider natural hazard risks and mitigation as part of community-based planning of Focus Areas.
REQUIRED FINDINGS
General Plan Amendment
FMC Section 15.72.050 authorizes the Planning Commission to make a recommendation to City Council to approve a request for a General Plan Amendment upon making certain findings.
1. Will the requested Amendment be consistent with the objectives of the General Plan? The 2024 Safety Element Update is consistent with the other Elements of the City’s General Plan.
2. Will adoption of the requested Amendment be consistent with the goals and policies of The Fullerton Plan?
The 2024 Safety Element Update is an update of the City’s General Plan as was prepared as required by and in accordance with state law (65302(g)) of the California Government Code).
LRP-2024-0008 – GENERAL PLAN AMENDMENTS – SAFETY ELEMENT
Attachment No. 1
Draft Planning Commission Resolution No. PC-2025-02
RESOLUTION NO. PC-2025-02
A RESOLUTION OF THE PLANNING COMMISSION OF THE CITY OF
FULLERTON, CALIFORNIA, RECOMMENDING THAT THE CITY COUNCIL
AMEND THE FULLERTON PLAN BY ADOPTING THE SAFETY ELEMENT (APPENDIX I) AND REPLACING GOALS 7, 12, 13, 18, 19, 20, 24 AND 26 OF THE
FULLERTON PLAN AS PER EXHIBITS A AND B
LRP-2024-0008
APPLICANT: CITY OF FULLERTON
WHEREAS, the City of Fullerton desires to amend its General Plan to update the Safety Element as required by State law (Section 65302(g) of the California Government Code); and
WHEREAS, the 2025 Safety Element Update contains new and expanded policies and implementation actions surrounding evacuation and wildfire, based on the results of the analysis conducted in compliance with Government Code Section 65302 (g) requirements. T he Safety Element addresses a wide range of natural and human-caused hazards and consists of goals and policies aimed to reduce the risk associated with these hazards, such as loss of life, injuries, property damage, and economic and social dislocation. The update consists of a comprehensive update to the existing element, which was adopted on May 1, 2012. Since 2012, a number of revisions to the California Government Code have been enacted, which require an update of the Safety Element to be in compliance with SB 1241, SB 379 and SB 99 defined under State law (Section 65302(g) of the California Government Code) (the “Project”); and WHEREAS, California Government Code Section 65302(g) requires an update to the Safety Element of the General Plan; and
WHEREAS, as part of the update, SB 379 compliance relies on the LHMP Update and the Climate Adaptation Vulnerability Assessment developed as part of this project, which ensures consistency with California Government Code Section 65302(g)(4); and
WHEREAS, the Safety Element Update, was initially submitted to the California Department of Forestry and Fire Protection (Cal Fire) on June 24, 2024, for preliminary review and comments, and on July 9, 2024, Cal Fire confirmed the Safety Element met Cal Fire requirements and allowed for the Safety Element Update to be submitted to the State Board of Forestry for certification; and
WHEREAS, the Safety Element Update, was submitted to the California Board of Forestry and Fire Protection Resource Protection Committee on July 9, 2024, and received approval by the Committee on July 23, 2024, allowing for the Safety Element Update to be adopted by the City; and
WHEREAS, pursuant to the provisions of the California Environmental Quality Act (Public Resources Code section 21000 et seq.; “CEQA”) and the CEQA Guidelines (Title 14 California Code of Regulations section 15000 et seq.) an Exemption was prepared for the 2024 General Plan Safety Element update, which determined adoption of said General Plan Update will not result in significant impacts to the environment requiring mitigation measures; and
WHEREAS, the City of Fullerton has incorporated the 2020 Fullerton Local Hazard Mitigation Plan by reference, effectively integrating the plan into the General Plan Safety Element in conformance with Assembly Bill 2140 (Government Code 65302.6) making the City eligible for cost share assistance under the California Disaster Assistance Act; and
WHEREAS, the Planning Commission has had the opportunity to review this Resolution and finds it accurately sets forth the intentions of the City Safety Element Update; and
(Continued)
Resolution No. PC-2025-02
2 WHEREAS, in accordance with applicable provisions of law, the Fullerton Planning Commission held a public hearing on March 12, 2025, at which time the Fullerton Planning Commission heard and received all relevant testimony and evidence presented orally or in writing regarding the Project. All interested persons were given an opportunity to hear and be heard regarding the Project.
NOW, THEREFORE, BE IT RESOLVED that the Fullerton Planning Commission based on the evidence contained in the record for this matter, by the Fullerton Planning Commission as follows:
1. The foregoing recitals are true and correct and incorporated herein by this reference.
2. The 2024 Safety Element Update was deemed exempt from the requirements of CEQA and the CEQA Guidelines.
3. The 2024 Safety Element Update is an update of the City’s General Plan as was prepared as required by and in accordance with State law (65302(g) of the California Government Code).
4. The 2024 Safety Element Update is consistent with the other Elements of the City’s General Plan.
NOW, THEREFORE, the Planning Commission of the City of Fullerton, California recommends that the City Council adopt the Safety Element (Appendix I) and replace Goals 7, 12, 13, 18, 19, 20, 24 and 26 of the Fullerton Plan as per Exhibits A and B.
ADOPTED BY THE FULLERTON PLANNING COMMISSION ON MARCH 12, 2025.
Arnel Dino, Chairman
Attachments
Exhibit A – Safety Element (Appendix I of The Fullerton Plan) Exhibit B – Goals 7, 12, 13, 18, 19, 20, 24 and 26 of The Fullerton Plan LRP-2024-0008 – GENERAL PLAN AMENDMENTS – SAFETY ELEMENT
Attachment No. 1
Exhibit A
Safety Element (Appendix I of The Fullerton Plan)
Appendix I:
Fullerton Safety
Element
Supplement
The following document is intended to support the City’s ongoing compliance with California Government Code 65302 (g) requirements requiring update to the General Plan Safety Element. In addition to this document, the City has prepared a Climate Adaptation Vulnerability Assessment (Attachment A) and a series of updated Goals, Policies, and Actions that have been incorporated into the General Plan.
The following link provides access to this document: LINK 5-15-2024
Appendix X Fullerton Safety Element Supplement
pg. 1
Fullerton Safety Element Supplement
Emergency Preparedness/Evacuation
The ability to anticipate, evaluate, and mitigate potential risks posed by natural and human - caused hazards is paramount to a city 's longevity. Although this element specifically addresses natural and human- caused hazards, emergency preparedness involves many more considerations beyond identifying them. The Emergency Preparedness section consolidates and briefly describes the City of Fullerton's hazard prevention and response strategies.
Police Service
The Fullerton Police Department is comprised of two divisions : an Operations Division and a Support Services Division. Within the department , officers and civilians manage the daily tasks necessary to operate and provide a high level of service to the citizens of Fullerton. With approximately 180 employees (approximately 70% sworn positions), the Fullerton Police Department manages close to 50,000 calls for service annually.
Fire Service
Fire protection and emergency service for the city is provided by the Fullerton Fire Department (FFD). Services provided include fire protection, emergency response, medical aid, fire prevention and inspections, hazardous materials control, and community education programs. The department has approximately 80 full -time employees spread amongst 3 divisions :
Administration, Prevention, and Operations. Operating from six stations throughout the city, the FFD covers an area of approximately 22.5 square miles.
These facilities, in conjunction with Police facilities, provide adequate emergency/disaster response capabilities for the City. Exhibit 15: Police and Fire Protection Facilities, found in the Public Safety Tables and Exhibits chapter of the Fullerton Plan, depicts the locations of these facilities in Fullerton. The FFD is responsible for community outreach and education regarding fire awareness and prevention information. This information focuses on at-risk populations, especially those portions of the population located within fire-prone areas.
Emergency Management
Emergency management is provided by the Office of Emergency Management (OEM), led by the Emergency Manager . OEM is tasked with helping our community and City organizations anticipate hazards and vulnerabilities and take measures to better plan and prepare for natural and human -caused disasters. OEM ensures City employees, residents, and businesses are prepared for disasters. The OEM is also responsible for the oversight and management of disaster and preparedness grants, the Community Emergency Response Team (CERT) and Radio Amateur Civil Emergency Services (RACES) volunteer programs, community outreach and engagement, training, and ensuring the City is meeting local, state, and federal requirements.
Preparedness
The Emergency Operations Plan (EOP) is primarily responsible for informing the City' s emergency management strategies. The EOP incorporates detailed response plans for emergency events such as fires, earthquakes, floods, pandemics, and terrorist activities. These strategies are typically organized under four categories: mitigation, preparedness, response, and recovery. Preparedness activities ensure City Departments are adequately trained and prepared Appendix X Fullerton Safety Element Supplement
pg. 2
for future hazard events. City preparedness activities focus on ensuring the City 's Emergency Operations Center (EOC) is adequately supplied and staffed by trained personnel in the event of an emergency.
Response
Emergency response activities typically focus on actions necessary to save lives and prevent further property damage during an emergency/disaster. Many of these activities are conducted in tandem with the Fullerton Police and Fire Departments' standard emergency response procedures. To guide response activities, the City will rely on the EOP and work closely with volunteer organizations such as CERT, which helps orchestrate internal and external communications, logistics, and assistance during large- scale e mergencies. If City resources become overwhelmed, the City will request support through the Operational Area using automatic aid and mutual aid agreements currently in place with the State, County, and neighboring jurisdictions. However, the City recognizes that mutual aid resources depend on availability and may be limited during a large regional incident. Therefore, consideration for strengthening self - sufficiency is a priority.
Recovery
Recovery activities typically occur after an emergency/disaster event. These activities focus on reestablishing services to any impacted areas, repairing and/or reconstructing damaged buildings and infrastructure, and aiding residents and businesses with permitting and approvals of building plans as part of the reconstruction process. Depending on the scale and type of incident, recovery could occur in specific community locations and/or require specialized expertise to address the issues created. Cleanup of hazardous wastes shall be considered part of the recovery from a major disaster event (fire, flood, landslide, or earthquake).
Mitigation
The EOP , in conjunction with the Fullerton Local Hazard Mitigation Plan, identifies and assesses the natural and human-caused hazards that threaten the City and recommends proactive policy and procedural actions that reduce the risks associated with these hazards. This preemptive planning is intended to decrease the probability of emergency situations and minimize the effects should one occur. The Local Hazard Mitigation Plan (LHMP) was developed in accordance with the Disaster Mitigation Act of 2000 (DMA 2000) and followed FEMA 's Local Hazard Mitigation Plan guidance. The LHMP incorporates a process where hazards are identified and profiled, the people and facilities at risk are analyzed, and mitigation actions are developed to reduce or eliminate hazard risk. Implementing these mitigation actions, which include short- and long-term strategies, involves planning, policy changes, programs, projects, and other activities.
As part of the City's preparedness initiatives, an e vacuation analysis has been prepared that identifies the routes used for evacuation purposes. Exhibit 1 depicts the potential evacuation routes that could be used during a hazard event. These roadways are intended to meet evacuation needs; however, the City recognizes that some constraints may affect evacuation, namely narrow roadways, bridges, and railroad crossings. These locations may be vulnerable if failure or blockage occurs. Exhibit 2 identifies constrained roadways (single ingress/egress conditions) and parcel s that use these roadways (constrained parcels). These constrained locations are required to be identified by California Government Code Section 65302(g)(5) [SB99].
The mapping depicts both constrained access parcels (identified in orange) , which are parcel groups of more than 30 individual parcels located on a constrained roadway. The map also depicts parcel groups of concern (identified in green) , which are groups of between 20- 29 individual parcels located along a constrained roadway. These parcel groups of concern are identified because of the potential to become constrained access parcels should new development or Appendix X Fullerton Safety Element Supplement
pg. 3
redevelopment (construction of additional dwelling units, subdivision, etc.) occur in these areas.
In the event of a natural hazard or other emergency , these areas of constrained access can potentially become much more difficult to evacuate should it become necessary.
Appendix X Fullerton Safety Element Supplement
pg. 4
Exhibit 1- Potential Evacuation Routes in Fullerton
Appendix X Fullerton Safety Element Supplement
pg. 5
Exhibit 2 – Constrained Roadways, Constrained Access Parcels, and Parcels of Concern Appendix X Fullerton Safety Element Supplement
pg. 6
Seismic Hazards: Fault Rupture, Seismic Shaking, Liquefaction Seismic Hazards
Southern California is a seismically active region that experiences earthquakes regularly.
Fullerton is prone to seismic hazards due to its location and proximity to active earthquake faults.
Seismic hazards that can potentially affect the city are characterized as follows:
Fault Rupture
The Earth is covered in tectonic plates, which are large sections of the Earth's crust constantly shifting and moving closer together, further apart, or past one another. The movement of two plates past one another frequently causes friction, resulting in plates that "stick." When this occurs, the same forces that push the plates past each other are now concentrated in certain areas. In time, friction can no longer hold the plates together, and the plates suddenly shift, releasing a massive build-up of ener gy (i.e., earthquake). This rapid movement and release of energy can cause the Earth to fracture and displace the land around it, resulting in an earthquake fault. Some faults are buried beneath the surface, while others are located on the surface of the Earth. Surface rupture of a fault is especially dangerous if structures are built on top of the fault or infrastructure crosses the fault, as fault movement could damage these facilities . If a surface rupture occurs, the movement could break pipelines and damage roads and bridges, rendering them useless after the event. Areas of known surface rupture hazard in California are identified in Alquist-Priolo Special Study Zones. Fullerton has no Alquist-Priolo Special Study Zones within the city, reducing the concern associated with surface rupture.
Seismic Shaking
Seismic shaking is the recognizable movement caused by the energy released from an earthquake. The same mechanism that creates a surface rupture is also responsible for seismic shaking and can produce an equally devastating effect. Earthquakes may occur wi thout surface rupture, which can still cause significant damage to buildings and other structures. Infrastructure such as roads, railways, pipelines, and power lines are also susceptible to damage and pose additional safety concerns. Unlike surface rupture, seismic shaking consequences are not restricted to the area immediately surrounding the fault. Energy resonating through the ground can travel hundreds of miles and simultaneously cause damage in many locations. The closer to the earthquake's source (epicenter), the stronger the shaking will be. Seismic shaking is of particular concern for the City due to the proximity to active faults that can generate significant earthquakes. The Puente Hills Fault is the closest fault to the city and is capable of generating a magnitude 6. 7 to 7. 5+ earthquake that could potentially damage buildings and infrastructure.
Other notable faults include the San Andreas, Newport-Inglewood, and Whittier Fault zones.
Exhibit 26: Earthquake Hazards in the Fullerton Plan (Page 207) depicts the locations of the local and regional faults in and near the city.
Liquefaction
Liquefaction is a phenomenon that occurs when intense vibrations from an earthquake cause saturated soil to lose stability and act more like a liquid than a solid. This poses significant problems for buildings and other structures in areas where liquefaction can occur, as the ground may give way under the weight of the structure and its foundation. In addition, underground structures are vulnerable to liquefaction. Most of the City lies within a low liquefaction risk zone; however, the Coyote Creek Floodplain in the northwest section of Fullerton contains areas susceptible to liquefaction based on the presence of saturated, loose sandy soils at depths less than 40 feet. Exhibit 3 depicts the areas of the city potentially susceptible to liquefaction. Although the Carbon Creek alluvial fan is composed of loose, sandy material, susceptibility is considered low since groundwater is deeper than 50 feet below the surface. Since liquefaction occurs in areas Appendix X Fullerton Safety Element Supplement
pg. 7
with saturated soils, areas of liquefaction with slopes are also known to trigger events known as "deep-seated landslides," which are landslides that occur when water accumulates in the soil underneath the slope' s surface. The areas of West Coyote Hills and East Coyote Hills are susceptible to deep -seated landslides. Exhibit 4 depicts the areas of the city potentially susceptible to landslides.
Appendix X Fullerton Safety Element Supplement
pg. 8
Exhibit 3 – Areas of Liquefaction Potential in Fullerton Appendix X Fullerton Safety Element Supplement
pg. 9
Exhibit 4 – Areas of Deep-Seated Landslide Potential in Fullerton Appendix X Fullerton Safety Element Supplement
pg. 10
Fire Hazards
Wildfires
The most common type of natural hazard in California is wildfire, which can quickly burn large areas of undeveloped or natural land. They often begin as smaller fires caused by lightning strikes, downed power lines, mechanical equipment use, or unattended campfires but may rapidly expand in size if conditions are dry and/or windy. The recent trend toward more prolonged periods of drought increases the likelihood of a wildfire. Typically, wildfires pose minimal threat to people and buildings in urban areas, but increasing human encroachment and development into natural areas increases the likelihood of bodily harm or structural damage. This encroachment occurs in areas called the wildland-urban interface (WUI), which is considered an area within a fire hazard severity zone, as defined by the California Department of Forestry and Fire Protection (CAL FIRE).
Significant wildfires have occurred in Orange County and neighboring communities in the past and pose a significant threat to people and property. Based on the current Fire Hazard Severity Zones mapping prepared by the CAL FIRE Fire and Resource Assessment Program (FRAP), the city's northwest area is identified within a Very High Fire Hazard Severity Zone. These areas are depicted in Exhibit 5. Properties located here and in some other smaller areas are susceptible to the threat of wildfires as they are loc ated near open space areas and hillsides containing dense vegetation. These areas are located within the Local Responsibility Area (LRA), which is under the Fullerton Fire Department's (FFD) authority. The City has no State Responsibility Areas (SRA) or Federal Responsibility Areas (FRA), which fall under the authority of CAL FIRE and the U.S.
Forest Service, respectively. However, the FFD does have multiple mutual aid agreements with neighboring jurisdictions in place, and the call for aid during large wildfires has been answered by the FFD throughout California. The most recent wildfires to affect the city occurred on October 30, 2019, including a brush fire near the Brea Dam, which was contained quickly. Later that same day, the Ca stlewood Fire broke out on the northeast corner of Castlewood Dr and Gilbert ; approximately eleven acres were consumed before the fire was contained. Exhibit 6 identifies the WUI areas and the locations of historic fires in Fullerton and the surrounding area.
Current and future development in the areas identified with fire hazard potential should be guided by prevention requirements, such as fire-resistant building construction and materials, adequate space between structures, available water supply, fire -resistant plant materials, quality of year - round firefighting service, available evacuation routes, access routes level enough for fire equipment use, and the creation and maintenance of fire breaks especially in areas of increased fire hazard.
Urban Fires
The possibility of an urban fire confronts every city. Many urban fires begin as isolated incidents caused by faulty electrical appliances, cooking mishaps , improper storage of chemicals, or industrial malfunction but can spread to other buildings if conditions permit. Many factors contribute to an urban fire's severity and extent, but modern building codes and practices have helped reduce their effects. Despite these improvements, it is important to acknowledge the risks associated with fires in urban areas. No matter its size, any fire can be fatal or cause severe harm to people and damage buildings and other structures.
Appendix X Fullerton Safety Element Supplement
pg. 11
Exhibit 5 – Fire Hazard Severity Zones in Fullerton
Appendix X Fullerton Safety Element Supplement
pg. 12
Exhibit 6 – Wildland Urban Interface in Fullerton
Appendix X Fullerton Safety Element Supplement
pg. 13
Drought
A drought is a long period during which precipitation levels are significantly below normal. The most common effect is that plants dry out and become more susceptible to agricultural pests or diseases. An abundance of dry plant matter may also increase the risk of wildfires or cause fires to be more intense. In severe cases, droughts can affect urban areas. A significant drought can lead to water shortages, which may force local water suppliers to institute mandatory restrictions on nonessential water use. In extreme cases, there may be insufficient water to meet basic health and hygienic needs, requiring communities to find alternative water supplies. Since many communities receive their water from far-away sources, such as the Sierra Nevada or Colorado River, it is common in California to experience "long-distance droughts," where precipitation levels may be normal in the community itself but low at the source of the community 's water. Droughts are large-scale events, so drought risks and conditions are generally equal across all of Fullerton.
Water Service
Fullerton is a retail water supplier that provides water to its residents and other customers using the imported potable water supply obtained from its regional wholesaler, Metropolitan Water District of Southern California (MET) , and local groundwater from the Orange County Groundwater Basin (OC Basin), which is managed by the Orange County Water District (OCWD).
The City meets all its demands with a combination of imported water and local groundwater. The City works with two primary agencies, MET and OCWD, to ensure a safe and reliable water supply that will continue serving the community in drought and shortage periods.
The city's main water source is groundwater from the Orange County Groundwater Basin. Even under the assumption of a drought over the next five years, MET' s 2020 UWMP concludes a surplus of water supplies would be available to all its Member Agencies, including the City. The City has a purchase agreement with MET that allows it to purchase significantly more MET water should the need arise. MET's 2020 UWMP concludes that they can meet full service demands of their member agencies starting 2025 through 2045 during normal years, single dry year, and multiple dry years. Consequently, the City is projected to meet full service demands through 2045 for the same scenarios.
Severe Weather: Heat, Wind, Rain
Extreme Heat
An extreme heat event is a day when temperatures reach levels that are significantly higher than normal. In California, extreme heat has been defined as any day when the maximum temperature surpasses 98 percent of all prior historic high temperatures for the area, using the time between April and October from 1961 to 1990 as the baseline. Extreme heat events differ from region to region based on the area's climate. An extreme heat event in the Central Coast area of California will likely have a lower threshold than an extreme heat event in the Central Valley. A succession of extreme heat events is generally called a heat wave.
Windstorm
Wind is simply the movement of air caused by differences in atmospheric temperature. High- pressure air will naturally move to areas of low air pressure. Usually, the distance between these high- and low -pressure zones is far. However, these low - and high- pressure zones may occasionally be near one another. When this happens, air will flow dramatically, creating high- speed winds. When winds are fast enough, they can cause property damage to homes, public facilities, utilities, and other infrastructure. They can also uproot or topple mature trees or pick up debris and send it careening through the air. This debris can injure or even kill bystanders who Appendix X Fullerton Safety Element Supplement
pg. 14
may find themselves stranded outside. High-speed winds can also deposit this debris in the middle of rights-of-way, such as roads, freeways, and railways, blocking exit routes for would-be evacuees or impeding access to first responders trying to reach wounded people.
Rainstorm
During severe weather events such as strong storms, rain can fall at such a high rate that it cannot drain away fast enough. The resulting heavy rain can cause flooding, leading to inundation and potential damage to buildings, road networks, public areas, utilities, and other critical pieces of infrastructure. In California, heavy rainfall events are often short, intense bursts of rain, but heavy rain can sometimes persist for multiple days.
Flood
Heavy rains in Fullerton generally occur during the winter season when El Niño weather conditions or atmospheric rivers bring rain from other parts of the world to Southern California.
Severe or prolonged heavy rain can lead to flooding in the city, particularly in areas with high amounts of pavement and other impervious surfaces. Floods are measured by their likelihood of occurrence. A 100-year flood has a 1 in 100 chance of occurring during any given year , while a 500-year flood has a 1 in 500 chance . Fullerton has 100- and 500-year floodplains designated and mapped by FEMA as flood zones. These FEMA flood zones are displayed in Exhibit 7.
Dam Failure
A dam failure occurs when a dam holding back the water of a reservoir can no longer control the collection of the water. A dam failure could result from a dam breach in which a section of the dam disintegrates, allowing the reservoir 's waters to escape. A flood caused by a dam breach can move swiftly and be very powerful. Other hazardous situations, such as a major flash flood or strong earthquake, can trigger a dam failure, especially if the dam is aging or deteriorating. A mechanical malfunction can also cause a dam failure if the dam is not maintained or operated correctly. When assessing dam failure hazards, it is assumed that impacts occur based on a full reservoir.
Dam inundation maps show areas downstream that would be inundated by water from an unintentional release of water from a dam 's reservoir. Five dams potentially threaten Fullerton:
Fullerton Dam, Prado Dam, Carbon Canyon Dam, Orange County Reservoir, and Brea Dam. The areas at risk of inundation are located primarily in the southern areas of the city, along the eastern border and from the center of the city, and they all flow toward the southern edge of the city limits.
These areas are depicted in Exhibit 29 Dam Inundation Risks in The Fullerton Plan (page 213).
Appendix X Fullerton Safety Element Supplement
pg. 15
Exhibit 7- FEMA Identified Flood Zones in Fullerton
Appendix X Fullerton Safety Element Supplement
pg. 16
Geologic Hazards: Landslide/Mudflows, Subsidence
Although seismic events like earthquakes often trigger geologic hazards, this is not always the case. Therefore, understanding and preparing for these hazards as standalone events is equally important.
Landslides and Mudslides
A landslide is the movement of earth material down slopes and areas of steep topography.
Although earthquakes often cause them, landslides can occur when a sloped surface can no longer support the material contained within or sitting above it. The sheer weight of the material can cause instability or can be rendered unstable by other events, such as heavy rain. When rain causes a slope to fail, the movement of earth materials is typically referred to as a mudslide.
Both landslides and mudslides can move with great force and pose a significant danger to buildings and other structures. In some circumstances, these events may cause bodily harm if bystanders cannot move out of their path in time. Anticipating the risk of landslides in the areas identified in Exhibit 4 will be essential for protecting the community members who reside there.
Due to the sloping topography, there is the potential for landslides in the steeper portions of the East and West Coyote Hills area. E ven these areas, however, are designated as having a moderately low risk of landslides due to seismic conditions and a low likelihood of a landslide under other conditions.
Subsidence
Subsidence occurs when the ground level decreases as if the surface is sinking. Subsidence can either be sudden (as in a sinkhole) or happen gradually over time. It can be caused by mining, groundwater pumping, or fossil fuel extraction, creating empty underground spaces that can collapse and cause the soil above to drop. Erosion, natural cave collapses, and seismic activity can also cause subsidence. The City has identified that the most likely locations for subsidence in Fullerton are the northern and central portions of the city. Other sections of the city are potentially subject to subsidence in the event of a major earthquake (Mw 5.0 or greater); however, Fullerton does not have a history of seismically induced subsidence.
Hazardous Materials Release
Natural hazards are not the only threat to a community's safety. Human-caused dangers, such as various hazardous materials and wastes, are often found throughout a community and can pose significant risks. Some of these materials may be transported through the City via SR-57, SR-90, SR-91, and I -5. Generally speaking, hazardous materials are identified as toxic, flammable, explosive, corrosive, infectious, radioactive, or a combination of these characteristics. Hazardous wastes are categorized similarly but are identified separately from materials because they no longer serve a meaningful use.
In the Community
Although common household chemicals pose little threat to the community, hazardous materials and wastes used by busines ses and industr ies present greater risks . Mechanical dealerships, repair shops, gasoline and diesel fuel stations, and dry cleaners are examples of businesses that regularly use and store chemicals or other hazardous materials. Pipelines and tanks within the city also transport and store chemicals that could pose a risk if a failure occurs. These releases are anticipated to be isolated to p roperties where storage occurs. Releases also tend to involve transporting raw materials and their byproducts by pipeline, rail, or truck. Regulation of the use, Appendix X Fullerton Safety Element Supplement
pg. 17
storage, and transportation of hazardous materials and wastes rests on state and federal agencies; however, cities play a large role in minimizing the risks and impacts of exposure through careful planning and preparation. The city's primary risk to hazardous material spills comes from the various highways, a railroad right of way, the airport, the active oil wells in East Coyote Hills, and a major natural gas transmission pipeline that passes through the community and allows for the transport of potentially harmful chemicals and materials into and out of Fullerton.
In the Home
Exposure to hazardous materials is not uncommon, as many household cleaning products contain chemicals that can harm both humans and the environment. However, proper use can largely avoid the health risks associated with these hazardous materials. Properly storing household cleaning products and other common hazardous materials, such as those used in automotive and home repair, is also an important component of responsible management. Following the manufacturer's instructions on the packaging and keeping pr oducts out of the reach of children are two simple steps that can help reduce the risk of exposure.
Air Pollution
Air pollutants are substances in the atmosphere that affect our health. They include smoke, particles, and gases from human -made and natural sources. People generate air pollution in many ways — through the cars they drive, the stoves they cook on, and the fuel burned to produce heat and electricity. Air pollution from these sources may harm our hearts or lungs and reduce disease resistance. Air pollutants may cause diseases, especially those in the respiratory system.
When certain air pollutants are breathed in, the airways to the lungs can become irritated.
Continued exposure to air pollution may also cause a decrease in lung function. This is especially a problem in children whose lungs are still growing.
Climate Related Hazards
Although climate change is not a hazard, variations in environmental conditions can impact some of the natural hazards affecting Fullerton. Projections of future conditions include increased temperatures, increased extreme heat days, changes in precipitation, more prolonged droughts, and changes in the size and frequency of wildfire incidents. Table 1 identifies the current/historical conditions and projected future conditions associated with climate change that could occur in Fullerton. Additional details regarding potential climate change effects are located in the City of Fullerton Climate Vulnerability Assessment (Attachment A).
Table 1: Potential Climate Change Effects for Fullerton Historic/ Current Conditions Future Conditions
Annual Mean Temperature (1961-1990) Annual Mean Temperature (2070-2099)
76.4° F 81.5 ° to 84.5° F
Extreme Heat Days (98.6° F) Extreme Heat Days (2070-2099) 4 days per year (observed) 13 to 27 days per year
Annual Mean Precipitation Annual Mean Precipitation (2070-2099)
13.8 inches (observed) 13.2 to 13.6inches
Annual Average Area Burned Annual Average Area Burned (2070-2099)
65.4 acres 11.4 to 12.7 acres
Source: https://cal-adapt.org/tools/local-climate-change-snapshot
Appendix X Fullerton Safety Element Supplement
pg. 18
Temperature
Increasing temperatures associated with climate change can act as a hazard multiplier. By the end of the century, annual mean temperatures are projected to increase between 5.1 and 8.1 degrees, impacting city residents and businesses. These increases are also anticipated to increase the number of extreme heat days from two days to between 13-27 days per year. These potential temperature increases may impact residents living in poorly insulated structures or structures that do not have air conditioning. For residents living in these structures, temperatures above 85 may cause discomfort. By the end of the century , the number of days over this temperature threshold could be nearly six times more than the city typically experiences.
While climate change is projected to exacerbate many of the hazards already affecting the city , many of these hazards may interact with each other. Increased temperatures can affect both water supplies and vegetation growth. With drier conditions, vegetation growth may be reduced, which can reduce wildfire vulnerability; however, if dry conditions persist for long periods, the reduced vegetation may be drier than normal. These two conditions may change the wildfire risks within and around the city or cause areas that have not burned historically to be at greater risk of ignition.
Precipitation
While temperatures are anticipated to increase in the coming decades, climate change projections suggest that annual mean precipitation may decrease slightly. While an annual decrease is projected, it is anticipated that future rain events may be more intense than what is currently experienced within the city, which could increase flooding. With changes in future precipitation, it is expected that changes to local vegetation may also occur, which could impact drainages and increase the need for slope stabilization management , wildfire management activities , and drainage infrastructure in some areas.
Increased rainfall could increase the amount of flooding within the community or introduce flooding into areas that have not experienced flooding before. The city could also experience increased landslides/mudslides with greater and more intense precipitation. Extreme precipitation events could destabilize hillsides, bluffs, and drainages, resulting in more erosion along drainage courses and landslides/mudslides. This could especially be true in areas where vegetation has been reduced or impacted by drought conditions.
With future temperature increases coupled with relatively similar precipitation amounts experienced today, future wildfire impact is projected to decrease by the end of the century. This projection is based on the overall reduction in small and moderate precipitation events instead of large or extreme events, suggesting that vegetation growth will experience an overall reduction.
A reduction in vegetation could reduce future wildfire vulnerability due to reduced fuel loads and changes in fuel types and densities. Based on the historical fires, the city has experienced an annual average of 65.4 acres burned (total acreage burned divided by the number of years analyzed), which is projected to decrease to 12.7 acres or less by the end of the century.
Appendix X Fullerton Safety Element Supplement
pg. 19
Attachment A – Climate Adaptation
Vulnerability Assessment
CITY OF FULLERTON
CLIMATE VULNERABILITY ASSESSMENT
& ADAPTATION FRAMEWORK
Prepared for
City of Fullerton Department of Planning and Zoning
303 W. Commonwealth Ave.
Fullerton, CA 92832
Prepared by
Atlas Planning Solutions
1 This document includes the following chapters:
Chapter 1 – Introduction
This chapter describes climate adaptation planning and the applicable State requirements as they relate to this Vulnerability Assessment and Adaptation Framework.
Chapter 2 – Community Profile
This chapter provides a description of the City of Fullerton’s general environment and demographics.
Special emphasis is made to discuss climate vulnerable populations.
Chapter 3 – Vulnerability Assessment
This chapter includes forecasts of each of the five climate-related hazards. It also maps where those hazards are most likely to affect the City of Fullerton.
This chapter evaluates the City’s current capacity to address the five climate-related hazards. This includes an assessment of the City’s current policies and programs and how they address the ability to respond to hazard events.
Chapter 4 – Adaptation Framework: Recommendations to Improve Resilience This chapter includes potential strategies and policy recommendations to increase the City’s ability to adapt to hazards and meet the needs of its vulnerable communities.
The City of Fullerton’s Climate Vulnerability Assessment and Adaptation Framework is intended to inform the community about climate hazard exposure, sensitivity, and capacity to adapt to projected changes to the climate. The data collected and analyzed within this assessment represent a snapshot in time as of the date of this document and should be used as a guide, not a final determinant. Data collected from external, publicly available sources will have varying degrees of uncertainty and may contain some nonconformities, defects, inaccuracies, or errors that existed from the primary source.
Although reasonable effort is made to present accurate information, the City of Fullerton makes no guarantee or warranty with respect to the information provided. The City, its employees, officers, content providers, affiliates, or other representatives are not liable for damages of any kind (including, without limitation, lost profits, direct, indirect, compensatory, consequential, exemplary, special, incidental, or punitive damages) arising out of your use of, your inability to use, or the content of this document, whether or not we have been advised of the possibility of such damages. 2 CONTENTS
Executive Summary ................................ ................................ ................................ ................................ .. 3 Chapter 1. Introduction ................................ ................................ ................................ ............................ 4 Chapter 2. Community Profile ................................ ................................ ................................ .................. 8
2.1 Vulnerable Populations ................................ ................................ ................................ ......... 12
2.2 Major Community Elements ................................ ................................ ................................ . 14 Chapter 3. Vulnerability Assessment ................................ ................................ ................................ ...... 20
3.1 Existing Hazards ................................ ................................ ................................ ................... 21
3.2 Analyzing Climate Change ................................ ................................ ................................ .... 21
3.2.1 Impacts of Climate Change ................................ ................................ ............................... 22
3.2.1.1 Changes in Temperature ................................ ................................ .......................... 22
3.2.1.2 Changes in Precipitation ................................ ................................ .......................... 23
3.2.1.3 Extreme Heat Events ................................ ................................ ................................ 24
3.2.1.4 Drought + Water Supply ................................ ................................ .......................... 32
3.2.1.5 Wildfire + Smoke ................................ ................................ ................................ ...... 39
3.2.1.6 Flooding ................................ ................................ ................................ ................... 50
3.2.1.7 Geologic and Seismic Hazards ................................ ................................ .................. 55 Chapter 4. Climate Adaptation Framework ................................ ................................ ............................ 62 3 EXECUTIVE SUMMARY
The City of Fullerton (City) recognizes that climate conditions are changing and will have profound effects on the community, ecosystem, and economy. Climate change may be a global phenomenon, but the impacts are felt locally. If greenhouse gas emissions continue at current levels globally, the City’s average temperatures are expected to warm by 5-9° F by the end of the century, potentially leading to extreme heat events and drought and exacerbating wildfire conditions.
The City is addressing greenhouse gas emissions reductions through Green Projects to meet the City’s Climate Action Plan goals. These sustainability initiatives outline actions the City and partners will take to reduce greenhouse gas emissions. In a parallel effort, the City is evaluating climate vulnerabilities and planning climate adaptation strategies to help the economy and environment, as well as the health of its residents, become more resilient. The City recognizes that the hazards influenced by climate change will not affect all residents and assets evenly, as vulnerability depends on existing stressors, potential climate impacts, and existing adaptive capacity. In creating this assessment and adaptation framework, the existing exposure and adaptive capacity were considered in evaluating climate vulnerability.
The vulnerability assessment revealed the following hazards have, and will continue, to impact the region:
• Wildfire risk to forests, affecting wildlife, natural areas, recreation, and public health • Flooding that displaces residents, damages critical infrastructure, and disrupts the economy • Extreme heat events that cause public health emergencies for vulnerable populations • Drought that limits water supply and can exacerbate wildfire and landslide conditions Additionally, all climate-induced hazards have the potential to:
• Risk lives, property, and homes
• Increase mental health impacts and associated trauma
• Overburden emergency services
• Overburdened infrastructure (e.g., electrical blackouts and damage to electrical infrastructure) • Increase utility and insurance costs
• Overburden non-profit organizations from the increasing demand for services • Limit outdoor recreation, potentially lowering revenue from tourism Preparing for the impacts of climate change requires significant investment in time and resources across the region, including emergency services, infrastructure improvements, and expanded social and environmental programs. New, bold, and adaptable approaches to how people live, move, and manage vital resources are needed. Assessing climate vulnerabilities and developing an adaptation framework is the first step towards greater climate resilience for the City of Fullerton. 4 CHAPTER 1. INTRODUCTION
According to the State of California’s Legislative Analyst’s Office:
“Addressing the widespread impacts of climate change represents a significant challenge for the State.
A changing climate presents California with five key climate hazards: (1) higher temperatures and extreme heat events, (2) more severe wildfires, (3) more frequent and intense droughts, (4) flooding due to extreme precipitation events, and (5) coastal flooding and erosion from sea-level rise. These hazards will threaten public health, safety, and well-being—including from life-threatening events, damage to public and private property and infrastructure, and impaired natural resources.”1 To address the potential impacts from these hazardous events on the community, the City is expanding upon its climate action and hazard mitigation planning efforts to: 1) focus on climate change adaptation by understanding the community’s vulnerabilities to climate hazards; and 2) explore strategies to reduce the vulnerability to projected climate change effects, increase the local capacity to adapt, and build resilience.
Note the data, policies, guidance, and regulations discussed herein may become out of date over time as climate change and hazard data is updated and new policies, guidance, and regulations pertaining to climate change hazards are released.
Regulatory Drivers and Guidance for Climate Adaptation Planning The report includes a Climate Vulnerability Assessment and Adaptation Framework, which will be incorporated into the City’s General Plan Safety Element, in compliance with SB 379, Government Code section 65302(g)(4)2 and the Office of Planning & Research’s (OPR) General Plan Guidelines.
According to SB 379, General Plan Safety Elements must address climate change vulnerability, adaptation strategies, and emergency response strategies. SB 379 states:
“This bill would, upon the next revision of a local hazard mitigation plan on or after January 1, 2017, or, if the local jurisdiction has not adopted a local hazard mitigation plan, beginning on or before January 1, 2022, require the Safety Element to be reviewed and updated as necessary to address climate adaptation and resiliency strategies applicable to that City or city. The bill would require the update to include a set of goals, policies, and objectives based on a Vulnerability Assessment, identifying the risks that climate change poses to the local jurisdiction and the geographic areas at risk from climate change impacts, and specified information from federal, State, regional, and local agencies.” As specified in Government Code section 65302(g)(4)(A) Vulnerability Assessments must identify the risks that climate change poses to the local jurisdiction and the geographic areas at risk from climate change impacts, utilizing federal, state, regional, and local climate vulnerability documentation such as the California Adaptation Planning Guide and the Cal-Adapt climate tool created by the California Energy Commission (CEC) and University of California, Berkeley Geospatial Innovation Facility. Other sources of information include data from local agencies regarding their adaptive capacity and historical data on natural events and hazards. Per Government Code section 65302(g)(4)(B), adaptation policies, goals, and objectives are to be developed based on findings from the Vulnerability Assessment. 1 Legislative Analyst’s Office (LAO). 2022. Budget and Policy Post. Climate Change Impacts Across California Crosscutting Issues. April 5, 2022. https://lao.ca.gov/Publications/Report/4575. Accessed December 11, 2023. 2 SB 379 was enacted to integrate climate change adaptation into California’s general plan process. 5 Additionally, Government Code section 65302(g)(4)(C) requires jurisdictions to create a set of feasible implementation measures to reduce climate change impacts on new or proposed land uses.
AB 162 (2007) Gov Code 65302(g)(2)
AB 162 requires that, upon the next revision of the housing element on or after January 1, 2009, cities and counties address flood hazards and safety in the land use, conservation, safety, and housing elements of their general plans.
SB 1241 (2012) Gov Code 65302(g)(3)
SB 1241 revised the Safety Element requirements to require all cities and counties whose planning area is within the State responsibility area (SRA) or very high fire hazard severity zones (VHFHSZs), as defined by California Department of Forestry and Fire Protection (CAL FIRE), to address and incorporate specific information regarding wildfire hazards and risk, and policies and programs to address and reduce unreasonable risks associated with wildfire. Upon the next revision of the Housing Element on or after January 1, 2014, the bill requires those cities and counties to review and update the Safety Element to consider the advice in the Office of Planning and Research’s most recent publication of “Fire Hazard Planning, General Plan Technical Advice Series” as well as: information regarding fire hazards, a set of goals, policies, and objectives based on identified fire hazards, and a set of feasible implementation measures designed to carry out those goals, policies, and objectives.
SB 1000 (2016) Gov Code 65302(h)
SB 1000 stipulates those cities and counties with Disadvantaged Communities, as defined by SB 1000 in Government Code Section 65302(h), incorporate environmental justice policies in their general plans through either a stand-alone element, or by integrating relevant goals, policies, and objectives throughout other elements. The bill requires cities and counties to identify Disadvantaged Communities (as defined in SB 1000), include policies and objectives to reduce unique or compounded health risks in Disadvantaged Communities, promote civic engagement in the public decision-making process, and address the needs of Disadvantaged Communities. Compliance with SB 1000 is triggered when two or more elements in a general plan are revised after January 1, 2018.
SB 1035 (2018) Gov Code 65302(g)(5)
SB 1035 requires regular updates to the Safety Element chapter of the General Plan. The latest information regarding flood and fire hazards must be included and climate change adaptation and resilience must be addressed as part of the update. After 2022, Safety Elements must be updated upon each revision of the housing element or local hazard mitigation plan, but no less often than once every 8 years. Housing element revisions are typically on 4–8-year cycles and LHMP revisions are on 5- year cycles.
SB 99 (2019) Gov Code 65302(g)(5)
SB 99 requires that, upon the next revision of the housing element on or after January 1, 2020, the Safety Element must be updated to include information identifying residential developments in hazard areas that do not have at least two emergency evacuation routes (i.e., points of ingress and egress).
AB 747 (2019) Gov Code 65302.15
AB 747 requires that, upon the next revision of a LHMP on or after January 1, 2022, or beginning on or before January 1, 2022, if a local jurisdiction has not adopted a LHMP, the Safety Element must be reviewed and updated as necessary to identify evacuation routes and their Capacity, safety, and 6 viability under a range of emergency scenarios. If a LHMP, emergency operations plan, or other document that fulfills commensurate goals and objectives, a local agency may use that information in the Safety Element to comply with this requirement by summarizing and incorporating by reference such a plan or other document into the Safety Element.
Consistent with Government Code 65302(g)(4)(A), the following Vulnerability Assessment and adaptation framework also takes guidance from:
California’s Fourth Climate Assessment (2018)
California Natural Resources Agency (CNRA), OPR, and CEC prepared California’s Fourth Climate Assessment in 2018. The Climate Assessment was designed to present findings in the context of existing climate science, including strategies to adapt to climate impacts and key research gaps needed to spur additional progress on safeguarding California from climate change.
Safeguarding California Plan (2018)
CNRA released an update to the Safeguarding California Plan in 2018, providing a roadmap for State government action to build climate resiliency. The Safeguarding California Plan presents overarching strategies and outlines ongoing actions and cost-effective and achievable next steps to make California more resilient to climate change.
California Adaptation Planning Guide (2020)
The California Office of Emergency Services (Cal OES) released the second version of the Adaptation Planning Guide in 2020 - APG 2.0 - which includes updated guidance, an increased focus on equity and outreach, and best practices. The APG is designed to help local government, regional entities, and climate organizations incorporate best practices and current science and research into their adaptation plans.3
California Office of Planning and Research Fire Hazard Planning Technical Advisory (2022) The goal of the technical advisory is to provide a robust planning framework for addressing fire hazards, reducing risk, and increasing resilience across California’s diverse communities and landscapes.
LOCAL AND REGIONAL CLIMATE PLANNING
Historical climate or climate-related assessments evaluated under this effort include:
• Fullerton Local Hazard Mitigation Plan (2020)
• Orange County County-Wide Community Wildfire Protection Plan (2017) • California’s Fourth Climate Change Assessment (2018)
• California Governor’s Office of Emergency Services State Hazard Mitigation Plan (2023) • Federal Emergency Management Administration National Risk Index (2023) Methodology and Planning Process
3 California Governor’s Office of Emergency Services (Cal OES). California Adaptation Planning Guide. June 2020. 7 The APG 2.0 provides a four-step process that communities can use to plan for climate change. The APG is designed to be flexible and guide communities in adaptation planning.
Source: California Governor’s Office of Emergency Services, 2020.
Phases of the Adaptation Planning Process include:
• Phase 1, Explore, Define, and Initiate:
This phase includes scoping the process and project, such as identifying the potential climate change effects and important physical, social, and natural assets in the community. • Phase 2, Assess Vulnerability:
This phase includes analysis of exposure to, sensitivity of, and adaptive Capacity to respond to climate effect to determine physical and social vulnerability. • Phase 3, Define Adaptation Framework and Strategies:
This phase focuses on creating an adaptation framework and developing adaptation strategies based on the results of the Vulnerability Assessment. The adaptation strategies are the community’s potential response to the Vulnerability Assessment. • Phase 4, Implement, Monitor, Evaluate, and Adjust:
In this phase, the adaptation framework is implemented, consistently monitored and evaluated, and adjusted based on continual learning, feedback, and triggers.
The purpose of this report is to document Step 1 through Step 3. The Vulnerability Assessment and development of adaptation measures follows the approach recommended by APG 2.0.
The Vulnerability Assessment identifies projected climate change exposures for the City at mid- to late-century timeframes. In addition to identifying the City’s exposure to the effects of climate change, the Vulnerability Assessment evaluates the sensitivity of key population groups and major community elements to climate change and associated hazards.
8 CHAPTER 2. COMMUNITY PROFILE
The region is characterized by a Mediterranean climate with hot, dry summers and cool, wet winters.
This famously pleasant climate influences all aspects of life in the LA region. Countless ecosystems thrive throughout the region’s coasts, mountains, and interior landscapes. Substantial agricultural production occurs here, taking advantage of the bountiful sunshine and generally warm temperatures.
Snow-based water from the Sierra Nevada (and Colorado Rockies) have, to date, largely satisfied the region’s huge residential, industrial, agricultural, and ecological freshwater demands. A complex web of generation and transmission systems has also provided enough energy to power to the region’s vast population.4
Figure 2-1: City of Fullerton
4 Hall, Alex, Neil Berg, Katharine Reich. (University of California, Los Angeles). 2018. Los Angeles Summary Report. California’s Fourth Climate Change Assessment. Publication number: SUM-CCCA4-2018-007.
9 Table 2-1: Demographics displays the population characteristics in the City.5 48.5 percent of the households have a household income of greater than $100,000 per year, with 16.3 percent of households having an income of more than $200,000 per year. A higher income tends to correlate with a greater ability to adapt to climate change (e.g., have and afford air conditioning). However, 11.2 percent of the population is living below poverty (based on national-level data) and almost one-third of the population is over the age of 65. An additional concern for emergency response planning (e.g., evacuation in case of flooding) is that 21.2 percent of households have at least one person living with a disability.
Table 2-1: Demographics City of Fullerton Orange County Total Population** 144,363 3,212,746
Percent of residents that are children (less than 10 years old)*
10.6% 10.4%
Percent of households that have people 65+ years old* 28.2% 30.7% Percentage of households with at least one person living with a disability*
21.2% 20.3%
Median age** 36.3 38.0
Total households** 48,739 1,088,611
Median household income** $96,047 $105,327
Percent of rental households** 49.7% 42.8%
Percent of household income below poverty level* 11.2% 9.6% Source: *US Census Bureau, ACS 2017 – 2021, **ESRI Forecasts 2023 based on US Census Bureau 2020 Summary File 1 Vulnerable Communities
Compared to the region, the City’s population is younger by a little more than 1.5 years (see Table 2-1:
Demographics). While percentage of the population under age 5 or aged 65 years and older is similar between the City and region (see Table 2-2: Age Distribution Comparison) illustrating that the City’s vulnerable population (considering age only) is similar to the region.
Table 2-2: Age Distribution Comparison City of Fullerton Orange County Under 5 5.1% 5.5%
5 - 14 11.3% 12.2%
15 - 24 15.9% 13.2%
25 - 34 16.1% 14.8%
35 - 44 12.7% 13.6%
45 - 54 12.1% 12.5%
55 - 64 11.6% 12.1%
Over 65 15.4% 16.0%
Source: ESRI Forecasts 2023 based on US Census Bureau 2020 Summary File 1 In California, the percentage of persons of retirement age (i.e., 65 years and older) are expected to grow more than twice as fast as the total population, and this growth will vary by region. This means
5 Data for vulnerable populations was extracted from a combination of US Census Bureau American Community Survey 2017 – 2021 estimates and ESRI’s Business Analyst 2023 forecasts. Data sources have been noted in each demographic table. 10 that people are living longer, and the aging population is increasing. This trend is also evident in the City, where the population aged 65 years and older grew by 32 percent from 2010 to 2022.6 The racial and ethnic composition of a population may affect housing needs because of cultural preferences associated with different racial/ethnic groups. Cultural influences may reflect preference for a specific type of housing and household structure. Research has shown that number and share of Americans living in multigenerational family households have continued to rise. In 2016, a record 64 million people, or 20 percent of the U.S. population, lived with multiple generations under one roof.
Figure 2-2: Population Age 65 and Older – City of Fullertion
Table 2-3: Race and Ethnicity and Figure 2-3: Communities of Color in City of Fullerton illustrate that the ethnic distribution of the City’s population was predominantly people identifying as White Alone or Asian Alone with the combined cohorts representing two-thirds of the total. The City differs from the entire region in the proportion of people identifying as Asian Alone and White Alone, with a greater proportion of people identifying as Asian Alone and a smaller proportion identifying as White Alone. Approximately 39.4 percent of the City’s total population was of Hispanic origin compared to
35.2 percent for the region.
6 ESRI Forecasts 2023 based on US Census Bureau 2020 Summary File 1
11 Table 2-3: Race and Ethnicity
City of Fullerton Orange County
White Alone 34.5% 41.5%
Black Alone 2.3% 1.7%
American Indian Alone 1.3% 1.2%
Asian Alone 27.2% 23.1%
Pacific Islander Alone 0.2% 0.3%
Some Other Race Alone 19.2% 17.8%
Two or More Races 15.2% 14.4%
Hispanic Origin (Any Race) 39.4% 35.2%
Source: ESRI Forecasts 2023 based on US Census Bureau 2020 Summary File 1 Figure 2-3: Communities of Color in City of Fullerton
The Fullerton community is diverse with multiple languages spoken. As shown in Table 2-4: English Proficiency and Languages Spoken at Home Among Residents 5 Years and Older – City of Fullerton, the majority of residents aged 5 years and older are fluent in English; however, 7.6 percent of the population identify as not able to speak English “very well” or “well”. There are potential ramifications to vulnerability if emergency preparedness and climate resiliency programs do not provide information or services in languages besides English.
12 Table 2-4: English Proficiency and Languages Spoken at Home Among Residents 5 Years and Older – City of Fullerton
Number of
Speakers
Percent Not
Fluent in English
English Only 73,501 -
Spanish 32,222 18.6%
Other Indo-European Languages (excluding English and
Spanish) 4,116 6.6%
Asian and Pacific Island Languages 22,072 23.0%
Other Languages 1,577 20.0%
Note: Percentage values rounded to nearest tenth decimal.
Source: US Census Bureau, American Community Survey 2017 - 2021, ESRI 2023
2.1 VULNERABLE POPULATIONS
Climate change disproportionately affects those with existing disadvantages. Low-income communities and communities of color often live in areas with conditions that expose them to more severe hazards, such as higher temperatures and worse air quality. These communities also have fewer financial resources to adapt to these hazards. For instance, low-income populations are already disproportionately burdened by energy bills and may reduce air conditioning usage out of concerns about cost. People with chronic medical conditions are often more physiologically susceptible to negative health impacts from extreme heat and poor air quality, and those with mobility issues are particularly at risk. These risk factors are often present in older adults, who are more likely to have a limited income, chronic health conditions, and mobility limitations, and are more likely to experience social isolation.7
Factors such as age, physical and mental condition, socioeconomic status, access to key services (e.g., public or private transportation), and other factors affect the ability of people to prepare for and protect themselves and their property from a climate-related event. Even though hazard events may impact all parts of the City with equal severity, individuals may experience the effects differently.
Social Vulnerability
Social Vulnerability is broadly defined as the susceptibility of social groups to the adverse impacts of natural hazards, including disproportionate death, injury, loss, or disruption of livelihood. Social Vulnerability considers the social, economic, demographic, and housing characteristics of a community that influence its ability to prepare for, respond to, cope with, recover from, and adapt to environmental hazards.
FEMA’s National Risk Index provides Social Vulnerability scores and ratings that represent the relative level of a community’s social vulnerability compared to all other communities at the same level. A community’s Social Vulnerability score measures its national rank or percentile. A higher Social Vulnerability score results in a higher Risk Index score as shown in Figure 2-4: National Risk Index:
Social Vulnerability.8
7 Hall, Alex, Neil Berg, Katharine Reich. (University of California, Los Angeles). 2018. Los Angeles Summary Report. California’s Fourth Climate Change Assessment. Publication number: SUM-CCCA4-2018-007. 8 Federal Emergency Management Administration. 2023. National Risk Index. https://hazards.fema.gov/nri/social- vulnerability. Accessed April 25, 2023.
13 Compared to all census tracts in the State, tracts in the southern portions of the City have a higher social vulnerability rating, meaning the population in these areas have higher vulnerability – with a lower ability to adapt and respond to natural hazards.
Figure 2-4: National Risk Index: Social Vulnerability Rating
Unhoused Population
People experiencing homelessness are highly susceptible to impacts from direct and indirect climate effects including extreme heat events, air pollution from wildfires, and precipitation-driven or coastal flooding. Factors contributing to the rise in people experiencing homelessness include the general lack of housing affordable to lower-income people, increases in the number of people whose incomes fall below the poverty level, reductions in public subsidies, the de-institutionalization of those with mental illness, and increasing substance abuse issues. According to the Orange County Point-In-Time Report on Homelessness, in 2022 there were 272 people experiencing sheltered or unsheltered homelessness in the City, with 74.3 percent unsheltered. The City saw a 34.4 percent decrease in unsheltered homelessness between 2019 and 2022. While the data regarding socio-demographics was not parsed out by geography (therefore the information released was not specific to cities), in the region 66.4 percent of unsheltered individuals identified as White and 6.2 percent identified as Black or African American, whereas the City’s general population was 34.5 percent and 2.3 percent, respectively. Of
14 specific concern to climate vulnerability, 32.2 percent of unsheltered respondents reported having a physical disability and 9.8 percent were ages 62 or older.9 The Fullerton Police Department’s Homeless Liaison Officer (HLO) Unit is comprised of multiple officers dedicated to assisting the homeless population in Fullerton. Utilizing partnerships with various organizations including Orange County Mental Health, the HLO Unit’s mission is to provide homeless individuals with opportunities to get off the streets and into permanent housing. Some of the organizations we are partnered with include the Fullerton Navigation Center (run by Illumination Foundation), Placentia Navigation Center (run by PATH), Buena Park Navigation Center (run by Mercy House), and the Anaheim Bridges Shelter (run by Mercy House).10 In Orange County, homelessness is addressed regionally by the Orange County Continuum of Care (COC), an umbrella organization that brings together government agencies and community-based nonprofit organizations in a coordinated effort to meet the urgent needs of people experiencing homelessness or who are in imminent danger of experiencing homelessness.11 Orange County currently has several existing programs to assist individuals experiencing homelessness. The County also provides interim housing (e.g., including the Yale Navigation Center and Bridges at Kraemer Place), emergency shelters, and transitional housing. Finally, the County addresses homelessness through special initiatives such as CalWORKS, a program to assist families with children who are currently homeless or at risk of homelessness.12
2.2 MAJOR COMMUNITY ELEMENTS
The identification of assets potentially affected by climate change related events are as follows:
Essential Services
Fire and Emergency Services
The Fullerton Fire Department is led by the Fire Chief and supported by the Deputy Chief of Operations and Deputy Chief of Administration and Fire Marshal. The operations division includes emergency dispatch, emergency medical services (e.g., firefighter/paramedic program, EMS paramedic training, paramedic subscription program, and ambulance transportation), the Office of Emergency Services, MetroNet Fire, and is responsible for training. The Fire Department has six stations located throughout the city.
9 County of Orange. 2022. Point-In-Time Report on Homelessness. 10 Fullerton, City of. 2023. Homeless Liaison Officer (HLO) Unit. https://www.cityoffullerton.com/government/departments/police/police-services/homeless-outreach. Accessed December 20, 2023.
11 County of Orange. 2023. Continuum of Care. https://ceo.ocgov.com/care-coordination/homeless-services/2023- continuum-care. Accessed December 9, 2023.
12County of Orange. 2023. Homeless Services. https://www.ocgov.com/residents/health/homeless-services. Accessed December 9, 2023.
15 The Fullerton Fire Department also provides prevention resources (e.g., plan check services and hazardous materials services, weed abatement, and fireworks education) and emergency management services.13
Police Services
The Fullerton Police Department (FPD) is led by the Chief of Police and supported by Captains and Area Commanders. FPD has Specialized Units ranging from investigation to gang suppression; traffic enforcement and community relations to engage with the community. With a compliment of approximately 180 employees, 125 sworn and 55 civilian positions, the Fullerton Police Department handles close to 50,000 calls for service annually.14
Transportation Systems
A system of major and primary arterial highways provides vehicular circulation throughout the city.
The east-west highways providing access to/from and through the city are Imperial Highway (State Route 90), Bastanchury Road, Malvern/Chapman Avenue, Commonwealth Avenue, and Orangethorpe Avenue. Similarly, Beach Boulevard (State Route 39), Euclid Street, Harbor/Brea Boulevard, State College Boulevard, and Placentia Avenue provide the north-south highways. The Orange Freeway (State Route 57) runs along Fullerton’s eastern border and the Riverside Freeway (State Route 91) runs along the southern border of Fullerton, and the Santa Ana Freeway (Interstate 5) runs near the southwest city limits. In the event of an emergency, most community members would likely evacuate in either direction along any of these arterial highways. If any of these routes become inaccessible, the other roadways and local streets could easily become congested. Use of the roadway system as evacuation routes will be based on the incident occurring and areas of the city impacted.
The Orange County Transportation Authority runs bus lines that connect Fullerton with cities in Los Angeles and Orange Counties. Fullerton’s rail station in the downtown area is served by Metrolink commuter trains, Amtrak’s Pacific Surfliner route, and the long-distance Southwest Chief Amtrak train.
Freight rail service is provided by BNSF Railroad and Union Pacific Railroad. The nearest airports with commercial service are John Wayne International Airport and Long Beach Airport. The Fullerton Municipal Airport serves general aviation aircraft.15
Lifeline Utility systems
Infrastructure plays a vital role in mitigating the effects of hazard events. When infrastructure fails, it can exacerbate the extent of certain hazards or create complications for rescue workers trying to reach victims. For example, fallen utility poles due to high winds or seismic activity, can obstruct roadways and prevent emergency vehicles from reaching affected areas. Brief descriptions of major infrastructure in the City that may be affected by climate-related hazards are as follows:
Electricity
Fullerton receives its electricity from Southern California Edison, which is one of California’s four major investor-owned utility companies and the largest electrical supplier in the state. Southern California
13 Fullerton, City of. 2023. Fire Department. https://www.cityoffullerton.com/government/departments/fire. Accessed December 20, 2023.
14 Fullerton, City of. 2023. Fullerton Police. https://www.cityoffullerton.com/government/departments/police/about-fpd.
Accessed December 20, 2023.
15 Fullerton, City of. 2020. Local Hazard Mitigation Plan. 16 Edison sources electricity from power plants throughout California and neighboring states and delivers it through a network of large-scale power lines and substations. The one registered commercial power plant in the city is the CSUF Trigeneration natural gas plant on the CSUF campus. There are also a number of noncommercial plants in Fullerton, including the CSUF State College solar photovoltaic plant, a natural gas plant on the Kimberly-Clark campus in southeastern Fullerton, and a number of small-scale solar panel installations. Fullerton has seven power substations: the Norweld, Gilbert, Sunnyhills, Basta, Fullerton, Paper, and Titans Substations. Southern California Edison operates all of these substations. There are also a number of nearby substations outside the city that are operated by Southern California Edison or by other providers. The major transmission lines in Fullerton run along Walnut Avenue, Orangethorpe Avenue, and Imperial Highway (State Route 90) and connect Fullerton to substations outside of the city. While these are not all of the transmission lines running through the City, these external connections provide Fullerton with some redundancies against power outages in the event that individual power lies are damaged, although damage to a substation or more widespread damage to power lines could result in a greater loss of power.16 Natural Gas and Oil
Natural gas service in Fullerton is provided by the Southern California Gas Company. There is one major transmission line running along S Placentia Avenue as well as a high-pressure distribution line with branches running along Brookhurst Street, W Valencia Drive, S Placentia Avenue, and Nutwood Avenue. No other large pipelines are present. Various facilities in neighboring Placentia, Anaheim, Brea, and other surrounding communities help to keep the natural gas flowing safely and reliably. Oil pipelines run through the neighboring cities of Buena Park and Brea; however no major transmission lines run through the City. Damage to transmission lines in Fullerton or to facilities in surrounding communities could impact services in Fullerton.17
Water Supply
Most of Fullerton’s water is groundwater supplied by the Orange County Water District; the remaining water is imported from the State Water Project and Colorado River and is supplied to Fullerton through regional agencies. According to Fullerton’s 2015 Urban Water Management Plan, the City maintains 15 storage reservoirs with a capacity of 69.5 million gallons. With a daily water demand of 223 gallons per capita per day (GPCD) and using the City’s 2015 population of 138,976 people, the City has enough reserves to supply the community’s needs for roughly two days. This assumes no restrictions are enacted or that GPCD does not decrease. The City maintains connection to a regional pipeline network that allows it to receive water from other Orange County water suppliers in the event of short-term emergencies. Wastewater service in the community is supplied by the Orange County Sanitation District (OCSD).The City operates miles of sewer lines and pump stations that collect wastewater from buildings and facilities in Fullerton and conveys it to regional wastewater treatment facilities. The nearest wastewater treatment facility is the OCSD Plant in Fountain Valley.18 Stormwater Management
Orange County manages stormwater through the National Pollutant Discharge Elimination System (NPDES), which in California is overseen by Regional Water Quality Control Boards (RWQCBs). The Santa Ana RWQCB (Region 8) includes the City of Fullerton. The Water Quality Control Plan for the
16 Fullerton, City of. 2020. Local Hazard Mitigation Plan. 17 Fullerton, City of. 2020. Local Hazard Mitigation Plan. 18 Fullerton, City of. 2020. Local Hazard Mitigation Plan. 17 Santa Ana River Basin (Basin Plan) contains the Region Board's policies for managing the Region's water quality. The Basin Plan includes the water quality standards (water quality objectives, beneficial uses, and anti-degradation policy) for the Region, regionally important water quality management and improvement initiatives, policies and practices for implementing water quality standards, and implementation plans. The Clean Water Act requires review of water quality management plans every three years, and the California Water Code, basin plans are reviewed periodically for areas where improvements or updates are needed.
The Basin Plan for the Santa Ana Region includes the upper and lower Santa Ana River watersheds, the San Jacinto River watershed, and several other small drainage areas. The Santa Ana Region covers parts of southwestern San Bernardino County, western Riverside County, and northwestern Orange County. The Basin Plan establishes water quality standards for the ground and surface waters of the region. The Basin Plan includes an implementation plan describing the actions by the Regional Board and others that are necessary to achieve and maintain the water quality standards.19,20 Hazardous Materials
The threat that hazardous materials pose to human health depends on the type of material, frequency, and duration of exposure, and whether chemicals are inhaled, penetrate skin, or are ingested, among other factors. Exposure to hazardous materials can result in short- or long-term effects, including major damage to organs and systems in the body, or death. Hazardous waste is any material with properties that make it dangerous or potentially harmful to human health or the environment. Hazardous materials can also cause health risks if they contaminate soil, groundwater, and air, potentially posing a threat long after the initial release.
Hazardous materials can cause damage to physical assets in the City if they are released into the environment. Corrosive hazardous materials can damage the exteriors of any buildings or structures designated as a critical facility or facility of concern by the City. Flammable hazardous materials can potentially start fires and may cause any nearby critical facilities to flashover. Sites that are closer to the origin for the release of the hazardous materials are more threatened than those that are farther away.
The Cities of Anaheim and Huntington Beach have entered into a Joint Powers Agreement (JPA) to form the Orange County-City Hazardous Materials Emergency Response Authority (OCCHMERA).
Anaheim and Huntington Beach provide 2 hazardous materials response teams, which in turn, provide hazmat emergency service for Subscribing Cities, including Fullerton.21 Passage of SB 1082 in 1993 required consolidation of State-mandated hazardous waste and hazardous materials management programs within a single Unified Program, to be administered by a Certified Unified Program Agency (CUPA). These programs are:
• Hazardous Waste Generator Program
• Tiered Permitting Program
• Hazardous Materials Business Plan (HMBP)
19 County of Orange Public Works. 2023. Regional Stormwater Program. https://ocerws.ocpublicworks.com/service-areas/oc- environmental-resources/oc-watersheds/regional-stormwater-program. Accessed December 12. 2023 20 California, State of Water Boards. Santa Ana River Basin Plan. https://www.waterboards.ca.gov/santaana/water_issues/programs/basin_plan. Accessed December 12, 2023. 21 Fullerton, City of. 2023. Orange County-City Hazardous Materials Emergency Response Authority (OCCHMERA). https://www.cityoffullerton.com/government/departments/fire/prevention/occhmera. Accessed December 20, 2023. 18 • Aboveground Storage Tank Program
• Underground Storage Tank Program (UST)
• California Accidental Release Program (CalARP)
County and City Fire Agencies within Orange County have joined in partnership with the CUPA as Participating Agencies (PAs). In most Orange County cities, the Environmental Health Division administers all programs, with the exception of La Habra, Fullerton, Huntington Beach, Orange and Fountain Valley in which case the local Fire Agencies are responsible for the Hazardous Materials and Business Emergency Plan Programs. The Fire Agencies in the cities of Orange and Fullerton also administer the Underground Storage Tank Program and LA County Fire administers the CalARP and HMD/BEP programs for the City of La Habra.22
Fullerton Adaptive Capacity to Climate-Related Hazards
Fullerton has implemented programs or partnered with external agencies to prepare for, respond to, and help the community recover from human-caused and natural hazards, including those that are climate related. The following programs improve the overall adaptive capacity of the City:
AlertOC
AlertOC is Orange County’s official emergency alert and warning system. Information provided by AlertOC in addition to local, State, and Federal alert and warning systems provides the most up-to- date information on emergencies and disasters happening in Orange County.23 AB 38 Gov Code 1102.19
As of July 1, 2021, a seller of a property that is in a high or very high fire hazard severity zone as identified by the Director of Forestry and Fire Protection must provide to the buyer documentation stating that the property is in compliance with local vegetation management ordinances.24 Community Emergency Response Team (CERT) Program
In the event of an area wide disaster, critical infrastructure and emergency services will be impacted.
The Community Emergency Response Team (CERT) academy trains residents to prepare for and respond to life-threatening events in their community. CERT members can mobilize neighborhood resources, deliver immediate assistance to victims, organize emergency communications and provide support to first responders.25
Fullerton Local Hazard Mitigation Plan (2020)
The 2020 LHMP includes goals to decrease the risks associated with the hazards, including:
• Reduce and isolate threats to public safety and property in Fullerton. • Maintain government operations and provisions of essential services to residents and stakeholders during and after a hazard event.
22 County of Orange Health Care Agency. CUPA. https://www.ochealthinfo.com/about-hca/public-health- services/environmental-health-division/hazardous-materials. Accessed December 20, 2023. 23 AlertOC. 2023. https://www.ocgov.com/about-county/emergency. Accessed December 10, 2023. 24 State of California. 2019. AB38, Wood. Fire safety: low-cost retrofits: regional Capacity review: wildfire mitigation. https://leginfo.legislature.ca.gov/faces/billTextClient.xhtml?bill_id=201920200AB38. Accessed December 3, 2023. 25 Fullerton, City of. 2023. https://www.cityoffullerton.com/government/departments/fire/emergency- management/certAccessed December 10, 2023.
19 • Protect the natural environment through responsible stewardship of air, water, and open spaces in Fullerton.
• Promote resiliency and climate action in Fullerton through resilient infrastructure, responsive governance, and vibrant civic participation.
• Partner with surrounding local, regional, state, and federal jurisdictions in hazard mitigation efforts.26
26 Fullerton, City of. 2020. Local Hazard Mitigation Plan. 20 CHAPTER 3. VULNERABILITY ASSESSMENT
Addressing the widespread impacts of climate change represents a significant challenge for the State.
A changing climate presents California with five key climate hazards: (1) higher temperatures and extreme heat events, (2) more severe wildfires, (3) more frequent and intense droughts, (4) flooding due to extreme precipitation events and coastal flooding and erosion from sea‑level rise, and (5) increased potential for geologic (landslides) and seismic (earthquake-induced liquefaction) hazards.
These hazards will threaten public health, safety, and well‑being—including from life‑threatening events, damage to public and private property and infrastructure, and impaired natural resources.27 Notable examples of climate impacts in Fullerton and the broader Orange County include:
• Across the region, average maximum temperatures are projected to increase around 4-5 degrees °F by the mid-century, and 5-8 degrees °F by the late century. • Despite small changes in average precipitation, dry and wet extremes are both expected to increase. By the late-21st century, the wettest day of the year is expected to increase across most of the region, with some locations experiencing 25-30 percent increases under RCP8.5.
Increased frequency and severity of atmospheric river events are also projected to occur for this region.
• Projections indicate that wildfire may increase over southern California, but there remains uncertainty in quantifying future changes of burned area over the region.28 Following State guidance, this report provides an assessment of the City’s vulnerabilities to climate change. It identifies and describes the climate hazards and other climate effects that may affect the City in the future. The Vulnerability Assessment follows the process outlined in Phase 2 of APG 2.0 and is composed of the following three steps:
• Exposure: The purpose of this step is to characterize the City’s exposure to current and projected climate hazards. Existing hazards that can be worsened by the effects of climate change are identified and described, based on historical data, including the City’s Local Hazard Mitigation Plan (LHMP) adopted in 2020. Climate data are used to develop projections for how existing hazards are expected to change by mid- and late century from future climate change. • Sensitivity: This step will characterize potential future climate impacts to community populations and assets. Using historical data and research from regional and State reports on climate impacts, this step explores how sensitive vulnerable populations and assets may be affected by the projected impacts of climate change hazards. • Adaptive Capacity: The purpose of this step is to characterize the City’s current capability to cope with the projected impacts from climate hazards to vulnerable populations and assets.
The adaptive capacity of the City to adapt to each of the identified climate impacts is determined through a review of existing plans and programs.
27 California Legislative Analyst’s Office (LAO). 2022. Budget and Policy Post. Climate Change Impacts Across California Crosscutting Issues. April 5, 2022. https://lao.ca.gov/Publications/Report/4575. Accessed December 1, 2023. 28 Hall, Alex, Neil Berg, Katharine Reich. (University of California, Los Angeles). 2018. Los Angeles Summary Report. California’s Fourth Climate Change Assessment. Publication number: SUM-CCCA4-2018-007.
21 3.1 EXISTING HAZARDS
Orange County has a history of major hazard events. Presidential disaster declarations are typically issued for hazard events that cause more damage than State and local governments can handle without assistance from the federal government, although no specific dollar loss threshold has been established for these declarations. The following table illustrates examples of past hazard events:
Table 3-1: FEMA-Declared Disasters in Orange County
Name of Event FEMA Disaster Number* Date
Bond Fire FM-5383 2021
Blue Ridge Fire FM-5381 2021
Silverado Fire FM-5830 2021
California Covid-19 Emergency DR-4482 2020
Wildfires (Holy Fire) FM-5268 2018
Canyon 2 Fire DR-4344 2018
Canyon Fire FM-5213 2017
Severe Winter Storms, Flooding,
and Mudslides
DR-4305 2017
Severe Winter Storms, Flooding,
And Debris And Mud Flows
DR-1952 2011
Freeway Complex Fire FM-2792 2008
Wildfires DR-1810 2008
Santiago Fire FM-2737 2007
241 Fire FM-2863 2007
Wildfires, Flooding, Mud Flows,
And Debris Flows
DR-1731 2007
* DR = Disaster Declaration; EM = Emergency Declaration; FM = Fire Management; FS = Fire Suppression Source: FEMA, 2023
3.2 ANALYZING CLIMATE CHANGE
The effects of projected climate change include changes in temperature and precipitation contributing to hazards such as extreme heat events, drought, wildfires (and associated decreases in air quality), flooding associated with large precipitation events, landslides, and coastal flooding and inundation resulting from sea level rise. It is important to note that hazardous events may result from isolated changes, or a combination of changes, in temperature and precipitation.
To assess the potential direct and indirect effects from climate change, APG 2.0 recommends using Cal-Adapt, a global climate simulation model data. Cal-Adapt addresses uncertainty surrounding potential GHG emissions with the use of Representative Concentration Pathways (RCP). The RCPs in this Vulnerability Assessment rely upon two future emissions scenarios: RCP 4.5 and RCP 8.5. RCP 4.5 represents a medium emissions scenario of GHG emissions and assumes emissions will rise, then even out near the middle of the century, and decrease to below 1990 levels by the end of the 21st century. 22 RCP 8.5 is a high emissions scenario where GHG emissions continue to increase through the end of the 21st century.29
Cal-Adapt also includes ten global climate models, downscaled to local and regional resolution using the Localized Constructed Analogs statistical technique. Four of these models were selected by California’s Climate Action Team Research Working Group as priority models for research contributing to California’s Fourth Climate Change Assessment. Projected future climate from these four models can be described as producing:
• A warm/dry simulation (HadGEM2-ES),
• A cooler/wetter simulation (CNRM-CM5),
• An average simulation (CanESM2), and
• A dynamic simulation with greater variability (MIROC5).
3.2.1 IMPACTS OF CLIMATE CHANGE
The projected outcomes of climate change include increases or decreases in temperature and precipitation as they relate to the frequency, duration, and intensity of changes. Combined, these changes in the historical patterns of temperature and precipitation contribute to changes in the frequency, duration, and intensity of climate hazard events such as extreme heat events, drought, wildfires (and associated decreases in air quality), flooding associated with large precipitation events, landslides, and coastal flooding and inundation resulting from sea level rise.
3.2.1.1 CHANGES IN TEMPERATURE
Observations over the past century indicate that temperature has increased across southern California. Based on 1896-2015 temperature records for the California South Coast NOAA Climate Division, which encompasses Orange County, there were significant trends in annual average, maximum, and minimum temperature around 0.16°C per decade.30 According to Cal-Adapt, the historic, observed annual average maximum temperature (1961-1990) for the City was 76.4°F, and the historic, observed annual average minimum temperature was 52.3°F.31 As shown in Table 3-2: Projected Change in Annual Average Temperature: City of Fullerton, both are projected to increase by mid-century and further increase by the end of the century.
The increase in minimum temperatures over time should also be considered as it can have a substantial impact on the community and the economy. Higher minimum temperatures equate to warmer nights that may impact those susceptible to heat effects.
29 Bedsworth et al. 2018. Statewide Summary Report. California’s Fourth Climate Change Assessment. Publication number:
SUMCCCA4-2018-013.
30 Hall, Alex, Neil Berg, Katharine Reich. (University of California, Los Angeles). 2018. Los Angeles Summary Report. California’s Fourth Climate Change Assessment. Publication number: SUM-CCCA4-2018-007. 31 California Energy Commission. 2023. CalAdapt. Local Climate Change Snapshot for Fullerton: Annual Average Maximum and Minimum Temperature. https://cal-adapt.org/tools/local-climate-change-snapshot. Accessed November 19, 2023. 23 Table 3-2: Projected Change in Annual Average Temperature: City of Fullerton Annual
Average
Temperature
Historic Annual
Average Temperature
(1961 - 1990)
Medium Emissions (RCP 4.5) High Emissions (RCP 8.5)
Mid-Century End-Century Mid-Century End-Century
Maximum 76.4°F 80.4°F 81.5°F 81.3°F 84.5°F
Minimum 52.3°F 55.9°F 57.0°F 56.9°F 60.1°F
°F = degrees Fahrenheit
California Energy Commission. 2023. CalAdapt. Local Climate Change Snapshot for City of Fullerton: Annual Average Maximum and Minimum Temperature. https://cal-adapt.org/tools/local-climate-change-snapshot. Accessed November 1, 2023.
3.2.1.2 CHANGES IN PRECIPITATION
Precipitation over the region is highly variable from year to year and only about five storms each year make up 50 percent of the annual precipitation total. Natural climate variability phenomena, such as the El Niño-Southern Oscillation, can influence the amount of precipitation that the region receives, but there are no clear trends in historical precipitation for this region. Despite small changes in average precipitation, dry and wet extremes are both expected to increase in the future. By the late- 21st century, the wettest day of the year is expected to increase across most of the region, with some locations experiencing 25-30 percent increases under RCP8.5. Extreme precipitation often arrives via “atmospheric rivers,” and possible changes to these and other extreme storms are discussed further in the subsequent section. Extremely dry years are also projected to increase over southern California, potentially a doubling or more in frequency by the late-21st century.32 Annual Average Precipitation Levels
According to Cal-Adapt, annual projected precipitation levels in the City are expected to experience minimal to no change by the end of the century. Table 3-3: Projected Change in Annual Average Precipitation: City of Fullerton identifies estimated annual average precipitation levels. The results of these projections suggest that during average years at mid-century, precipitation levels will be similar to conditions currently experienced within the City, with a potential increase in average annual rain at the end of the century under the RCP 8.5 scenario.
Table 3-3: Projected Change in Annual Average Precipitation: City of Fullerton Average
Annual
Precipitation
(Inches)
Historic Annual
Average Precipitation
(1961 - 1990)
Medium Emissions (RCP 4.5) High Emissions (RCP 8.5)
Mid-Century End-Century Mid-Century End-Century
13.6 Inches 13.2 Inches 13.6 Inches 13.3 Inches 13.2 Inches CalAdapt. Local Climate Change Snapshot for Fullerton: Annual Average Precipitation. https://cal-adapt.org/tools/local- climate-change-snapshot. Accessed November 1, 2023.
This Vulnerability Assessment addresses relevant natural hazards for the City influenced by a changing climate and includes Extreme heat events, drought, wildfire and smoke, flooding, landslides and liquefaction. Swings in extreme weather, such as extremely dry and hot conditions followed by extremely wet conditions and back again, can also exacerbate wildfires and flooding for certain land uses.
32 Hall, Alex, Neil Berg, Katharine Reich. (University of California, Los Angeles). 2018. Los Angeles Summary Report. California’s Fourth Climate Change Assessment. Publication number: SUM-CCCA4-2018-007. 24 Mental Health
The impacts from climate change such as fires and floods can have acute mental health impacts. As reported in the State’s 4th Climate Change Assessment, there are potential links between extreme weather events and anxiety and depression, post-traumatic stress disorder, and suicide.33
3.2.1.3 EXTREME HEAT EVENTS
Extreme heat events are a period when temperatures are abnormally high relative to a designated location’s normal temperature range. Extreme heat events are one of the leading weather-related causes of death in the United States from 1999 through 2009, extreme heat exposure caused more than 7,800 deaths.34 There are generally three types of extreme heat events:
• Extreme Heat Days: a day during which the maximum temperature surpasses 98 percent of all historic high temperatures for the area, using the time between April and October from 1961 to 1990 as the baseline.
• Warm Nights: a day between April and October when the minimum temperature exceeds 98 percent of all historic minimum daytime temperatures observed between 1961 and 1990. • Extreme Heatwaves: a successive series of extreme heat days and warm nights where extreme temperatures do not abate. While no universally accepted minimum length of time for a heatwave event exists, Cal-Adapt considers 4 successive extreme heat days and warm nights to be the minimum threshold for an extreme heatwave.
Extreme heat events will feel different from region to region since different areas have different historic high temperatures. For example, an extreme heat day on the coast will feel different than an extreme heat day in the high desert. This is because humidity plays a factor in the perceived heat that people feel. Humid conditions will make a day feel hotter than non-humid conditions, even though the temperature may be the same. The difference between the perceived temperature and the actual temperature is known as the “heat index.” To illustrate the effect of the heat index, a 90°F day with 50 percent humidity feels like 95°F, whereas a 90°F day with 90 percent humidity feels like 122°F. Figure 3-1: National Weather Service Heat Index shows the National Oceanic and Atmospheric Administration (NOAA)’s National Weather Service (NWS) Heat Index.35
33 Hall, Alex, Neil Berg, Katharine Reich. (University of California, Los Angeles). 2018. Los Angeles Summary Report. California’s Fourth Climate Change Assessment. Publication number: SUM-CCCA4-2018-007. 34 United States Global Change Research Program, 2016: The Impacts of Climate Change on Human Health in the United States: A Scientific Assessment. A. Crimmins, J. Balbus, J. L. Gamble, C. B. Beard, J. E. Bell, D. Dodgen, R. J. Eisen, N. Fann, M.
D. Hawkins, S. C. Herring, L. Jantarasami, D. M. Mills, S. Saha, M. C. Sarofim, J. Trtanj, and L. Ziska, Eds. 35 National Oceanic and Atmospheric Administration (NOAA)’s National Weather Service Heat Index. https://www.weather.gov/safety/heat-index. Accessed November 30, 2023. 25 Figure 3-1: National Weather Service Heat Index
Source: National Oceanic and Atmospheric Administration National Weather Service Heat Index.
Historical Extreme Heat Events
Local data for Fullerton is generally available using the National Weather Service Cooperative Network station at Fullerton Municipal Airport. The data indicates that the average maximum temperature for the area from all years between 1991 and 2020 is 86.7°F, occurring in the month of August.36 Significant historic extreme heat events include:
• October 24, 2017. Daily temperature records were set for all weather monitoring stations in the Orange County including Fullerton at 107°F.37
• September 22, 2021. A heatwave across California set records including temperatures reaching 105°F in Orange County38.
• September 22, 2022. A heatwave across California set records including temperatures reaching 110°F in Fullerton39.
• August 27, 2023. South California reached 100°F plus degrees including areas of inland Orange County.40
Unusually hot days and multi-day heatwaves are a natural part of day-to-day variation in weather. As the Earth’s climate warms, however, hotter-than-usual days and nights are becoming more common, and heatwaves are expected to become more frequent and intense. Increases in these extreme heat events can lead to more heat-related illnesses and deaths, especially if people and communities do not take steps to adapt.41
36 Western Regional Climate Center. 2023. Fullerton Municipal Airport, California. https://wrcc.dri.edu. Accessed December 8, 2023.
37 Henson, Bob. 2017. Record-melting Fall Heat Wave Bakes Southern California. www.wunderground.com. Accessed December 1, 2023.
38 Los Angeles Daily News. Triple-Digit Heat Wave Continues in Southern California. Accessed December 1, 2023. 39 Daily Titan. Heat waves: What students should know. Accessed December 1, 2023. 40 Darwish, Mona. 2023. Heat Wave Blasts Southern California. Los Angeles Times. August 27. 41 Sarofim, M.C., S. Saha, M.D. Hawkins, D.M. Mills, J. Hess, R. Horton, P. Kinney, J. Schwartz, and A. St. Juliana. 2016. Chapter 2: Temperature-related death and illness. In: The impacts of climate change on human health in the United States: A scientific assessment. U.S. Global Change Research Program.
26 VULNERABILITY TO EXTREME HEAT EVENTS
Exposure
More frequent, larger magnitude, and longer duration heatwaves are already emerging as an important aspect of climate change in the Orange County.42 Annual mean maximum temperature could increase by 4.1°F by 2100 (see Table 3-2: Projected Change in Annual Average Temperature: City of Fullerton.43 As illustrated in Table 3-4: Projected Change in Number of Extreme Heat Days: City of Fullerton (98.6°F) the annual number of extreme heat days (over 98.6°F, the 98th percentile) in the City could increase up to 17 days by 2100 under the high emissions scenario.44
Table 3-4: Projected Change in Number of Extreme Heat Days: City of Fullerton (98.6°F) Number of
Extreme Heat
Days*
Historic Annual Average
Extreme Heat Days
(1961 - 1990)
Medium Emissions (RCP 4.5) High Emissions (RCP 8.5)
Mid-Century End-Century Mid-Century End-Century
2 10 13 12 27
*Number of days in a year when daily maximum temperature is above a threshold temperature of 98.6 °F.
Note: Threshold temperature used in this tool is location specific. It is defined as the 98th percentile value of historical daily maximum/minimum temperatures (from 1961–1990, between April and October) observed at a location.
However, when evaluating temperatures 85°F and above, the annual number of extreme heat days in the City could double by mid-century under the medium emissions scenario and more by end of century under the high emissions scenario. Table 3-5: Projected Change in Number of Extreme Heat Days: City of Fullerton (85°F)
Table 3-5: Projected Change in Number of Extreme Heat Days: City of Fullerton (85°F) Number of
Extreme Heat
Days*
Historic Annual Average
Extreme Heat Days
(1961 - 1990)
Medium Emissions (RCP 4.5) High Emissions (RCP 8.5)
Mid-Century End-Century Mid-Century End-Century
71 128 149 142 183
*Number of days in a year when daily maximum temperature is above a threshold temperature of 85 °F. Note:
Threshold temperature used in this tool is location specific.
Source: California Energy Commission. CalAdapt. Local Climate Change Snapshot for Fullerton: Extreme Heat Days. https://cal-adapt.org/tools/local-climate-change-snapshot. Accessed December 1, 2023.
42 Hall, Alex, Neil Berg, Katharine Reich. (University of California, Los Angeles). 2018. Los Angeles Summary Report. California’s Fourth Climate Change Assessment. Publication number: SUM-CCCA4-2018-007. 43California Energy Commission. 2022. CalAdapt. Local Climate Change Snapshot for Fullerton: Annual Average Maximum Temperature. https://cal-adapt.org/tools/local-climate-change-snapshot. Accessed December 1, 2023. 44California Energy Commission. 2022. CalAdapt. Local Climate Change Snapshot for Fullerton: Extreme Heat Days. https://cal-adapt.org/tools/local-climate-change-snapshot. Accessed December 1, 2023. 27 Warm Nights
Warm night temperatures affect the ability of a community and its residents to effectively cool down from extreme heat days. If temperatures remain higher than normal during the night, the compounding impacts from high daytime temperatures can be highly detrimental to public health.
According to Cal-Adapt, a warm night event in the City is a night when the evening temperature exceeds 67.9°F. Table 3-6: Projected Change in Number of Warm Nights: City of Fullerton identifies the projected average number of warm nights that would occur each year under the RCP 4.5 and RCP
8.5 scenarios. By 2100, an average of 75 warm nights (RCP 8.5) could be experienced compared to current conditions of 7 days annually based on observed historical conditions. Based on these projections, the City can anticipate increased demand towards the end of the century - for overnight cooling centers and calls for service from vulnerable populations, which are expected to be disproportionately impacted by extreme heat conditions.
Table 3-6: Projected Change in Number of Warm Nights: City of Fullerton Average
Annual
Number of
Warm Nights*
Historic Annual Average
Warm Nights (1961 -
1990)
Medium Emissions (RCP 4.5) High Emissions (RCP 8.5)
Mid-Century End-Century Mid-Century End-Century
7 26 37 35 75
*Number of days in a year when daily minimum temperature is above a threshold temperature of 67.9 °F.
Note: Threshold temperature used in this tool is location specific. It is defined as the 98th percentile value of historical daily maximum/minimum temperatures (from 1961–1990, between April and October) observed at a location.
Source: California Energy Commission. CalAdapt. Local Climate Change Snapshot for Fullerton: Warm Nights. https://cal- adapt.org/tools/local-climate-change-snapshot. Accessed November 1, 2023.
Sensitivity: Major Community Elements
The impacts of extreme heat events will be most severely felt in highly developed areas of the City that are intensely paved and surrounded by buildings constructed of dark (heat absorbing) materials without the cooling benefits of tree shade. Compared with rural communities, urbanized areas can experience higher temperatures, greater pollution, and more negative health effects, especially during summer months. This phenomenon is known as the Urban Heat Island Effect (UHIE). Urban heat islands are created by a combination of heat-absorptive surfaces (e.g., dark pavement and roofing), heat-generating activities (e.g., automobile engines and industrial generators), and the absence of “green spaces” (vegetative surfaces that provide evaporative cooling). During extreme heat days and heatwaves, asphalt and darker surfaces reduce nighttime cooling as these surface types retain more heat to be released at night. The UHIE is known to intensify extreme heat days and heatwaves.
Transportation Systems
High temperatures increase the risk of pavement deterioration, depending on the paving materials and the traffic load of a given road.45,46 The type of pavement used is typically based on historical
45 Daniel, J.S., J.M. Jacobs, E. Douglas, R.B. Mallick, and K. Hayhoe. 2014. Impact of climate change on pavement performance:
Preliminary lessons learned through the Infrastructure and Climate Network (IC Net). dot:10.1061/9780784413326.001. 46 Rowan, E., C. Evans, M. Riley-Gilbert, R. Hyman, R. Kafalenos, B. Beucler, B. Rodehorst, A. Choate, and P. Schultz. 2013.
Assessing the sensitivity of transportation assets to extreme weather events and climate change. Transportation Research Record: Journal of the Transportation Research Board 2326(1):16—23. doi:10.3141/2326-03. 28 climate conditions; the increasing occurrence of frequent and prolonged extreme heat outside of historical norms will present challenges to the roadway system.47 Extreme heat may also cause pavement heave and damage to transportation infrastructure and functioning.48 Extreme heat is also problematic for rail systems, as railroad tracks exposed to high temperatures are at risk of warping or buckling.49
Lifeline Utility Systems
As heatwaves worsen, energy systems will need to adapt to help communities cope with rising temperatures. Access to air conditioning will be vital for vulnerable populations, even life saving for the elderly, young children, and those with pre-existing health conditions. However, increased cooling needs for both air conditioning and refrigeration will place significant stress on the power system during periods of extreme heat. And if that power comes from fossil fuel-fired power plants, there may also be an increase in soot, smog, and other forms of air pollution with associated public health consequences.50 Impacts on electricity resources from climate hazards can include stress and physical damage to the electricity generation, transmission, and distribution system.
Transmission facilities face increasing climate change-related risks because of increased frequency of wildfires, severe wind, and extreme heat. Extreme heat and drought can add stress to transmission systems, resulting in system failure. Electrical infrastructure may fail due to increased electrical loads and stress from longer periods of increased operation. A 2011 study found that just one extra day with temperatures above 90°F increases annual household energy use by 0.4 percent.51 Higher temperatures can reduce the water supply in California from reduced precipitation and snowpack and earlier snowmelt.52
Renewable energy and electricity storage technologies can add flexibility to the electricity grid.
Together with microgrids, renewables can support increased grid resilience and reliability in the face of extreme weather. Electricity storage also has the potential to replace fossil fuel-fired "peaking" power plants, which are called upon in times of high demand for electricity such as during extreme heat events.53
47 Holsinger, H. 2017. Preparing for change. FITWA-HRT-17-002. Public Roads 80(4). McLean, VA: Office of Research, Development, and Technology, Federal High Administration. https://highways.dot.gov/public-roads/januaryfebruary- 2017/preparing-change. Accessed November 11, 2022.
48 Guo Y, Gasparrini A, Li S, Sera F, Vicedo-Cabrera AM, de Sousa Zanotti Stagliorio Coelho M, et al. (2018) Quantifying excess deaths related to heatwaves under climate change scenarios: A multicountry time series modelling study. PLoS Med 15(7):
e1002629.
49Magill, B. 2014. “Sun kinks” in railways join the list of climate change’s toll. Scientific American, June 2. www.scientificamerican.com/article/sun-links-in-railways-Join-the-list-of-climate-change-s-toll. Accessed Novemer 11, 2022. 50 Abel, D.W., T. Holloway, M. Harkey, P. Meter, D. Ahl, V.S. Limaye, and J.A. Patz. 2018. Air-quality-related health impacts from climate change and from adaptation of cooling demand for buildings in the eastern United States: An interdisciplinary modeling study. PLOS Medicine 15(7):1—
27.dot:10.1371/journal.pmed.1002599.
51 Deschênes, Olivier and Michael Greenstone. 2011. Climate Change, Mortality, and Adaptation: Evidence from Annual Fluctuations in Weather in the US. American Economic Journal: Applied Economics Vol. 3 No. 4 October 2011 52 U.S. Environmental Protection Agency. 2016. What Climate Change Means for California. https://www.epa.gov/sites/production/files/2016-09/documents/climate-change-ca.pdf 53 Abel, D.W., T. Holloway, M. Harkey, P. Meter, D. Ahl, V.S. Limaye, and J.A. Patz. 2018. Air-quality-related health impacts from climate change and from adaptation of cooling demand for buildings in the eastern United States: An interdisciplinary modeling study. PLOS Medicine 15(7):1—27. dot:10.1371/journal.pmed.1002599. 29 Economic Elements
Laborers in weather-exposed industries such as construction and agriculture are the most prone to extreme heat impacts, even if they work fewer hours when it is hotter. Workers are less productive when it is hotter out.54 Exposure to high temperatures may affect worker safety by increasing rates of workplace injuries55 and it may also affect the performance and productivity of workers.56 Higher temperatures tend to reduce growth in many industries that involve substantial indoor work, including retail, services, and finance. A 1°F increase in the average summer temperature is associated with a reduction in the annual growth rate of state-level economic output of 0.15 to 0.25 percentage points, and rising temperatures could reduce U.S. economic growth by up to one-third over the next century.57
The increase in electricity usage on hot days stresses electric grids right when people depend on them most, as seen in California during recent heatwaves. Blackouts can be quite costly for the economy, as inventories of food and other goods can be spoiled, and many businesses either must run generators or shut down. For instance, the 2019 California blackouts cost an estimated $10 billion due to business closures.58
Natural Resource Areas
Extreme temperatures — as opposed to warmer average temperatures — are the catalyst for a growing number of extinctions. In 2002, researchers looked at 538 plant and animal species at 581 sites around the world that had been previously surveyed. The goal was to understand what aspects of climate change were the most serious threat to biodiversity. They found that 44 percent of the species at the sites had gone locally extinct, and that the culprit was an increase in the temperature of the hottest days of the year.59
Birds suffer more than other animals as they are diurnal (active in the day) and exposed to the hottest part of the day. Small mammals live underground and are generally nocturnal (active at night). A recent study found that the number of areas that native bumblebees occupy has plummeted 46 percent in North America and 17 percent in Europe compared to surveys taken from 1901 to 1974.
Those bee-less areas were also places with a high degree of climate variation, especially higher temperatures. The study concluded that climate change--specifically hotter and more frequent extremes in temperatures--is related to the growing risk of extinction that animals are facing around the world.60
54 Lemione, Derek. 2021. 4 ways extreme heat hurts the economy. Cornell University Alliance for Science. August 3. https://allianceforscience.cornell.edu/blog/2021/08/4-ways-extreme-heat-hurts-the-economy. Accessed May 6, 2022. 55 Park, J., Pankratz, N., & Behrer, A. (2021). Temperature, Workplace Safety, and Labor Market Inequality. IZA Discussion Paper No. 14560
56 Cui, W., Cao, G., Park, J. H., Ouyang, Q., & Zhu, Y. 2013. Influence of indoor air temperature on human thermal comfort, motivation and performance. Building and environment, 68, 114-122. 57 Colacito, Riccardo; Bridget Hoffmann, Toan Phan. 2018. Temperature and Growth: A Panel Analysis of the United States.
Journal of Money, Credit, and Banking. December 3. https://doi.org/10.1111/jmcb.12574. Accessed May 6, 2022. 58 Wara, Michael. 2019. Impacts of Wildfire on Electric Grid Reliability. Senate Energy and Natural Resources Committee Testimony. December 19.
59 Roman-Palacios, Cristian and John J Wiens. 2020. Recent responses to climate change reveal the drivers of species extinction and survival. Proceedings of the National Academy of Sciences. February 10. https://doi.org/10.1073/pnas.1913007117
60 Soroye, Peter. Tim Newbold, Jeremy Kerr. 2020. Climate change contributes to widespread declines among bumble bees across continents. Science. February 7. Pp. 685-688. DOI: 10.1126/science.aax8591. 30 Water stress induced mortality processes such as hydraulic failure or carbon starvation are caused by extreme heat (and drought). Many trees operate at or near their tolerance limit for water stress and may not be able to acclimate to keep pace with the changing climate.61 Climatic changes alter the range, biogeography, and growth of microbes and the vectors of food, water, and vector-borne illnesses. This includes the changes in aquatic environments that could increase harmful algal blooms and lead to increases in foodborne and waterborne illnesses.62 Sensitivity: Vulnerable Populations
Increased temperatures manifested as heatwaves and sustained high-heat days directly harm human health through heat-related illnesses (mild heat stress to fatal heat stroke) and the exacerbation of pre-existing conditions in the medically fragile, chronically ill, and vulnerable. Increased heat also intensifies the photochemical reactions that produce smog and ground level ozone and fine particulates (PM2.5), which contribute to and exacerbate respiratory disease in children and adults.
Increased heat and carbon dioxide enhance the growth of plants that produce pollen, which are associated with allergies.63
Higher temperatures and extreme heat can lead to heat cramps, heat exhaustion, heat stroke, respiratory illness, and increase the risk of heat-related mortality and expansion of vector-borne disease.64
Whereas a heat event can be relatively harmless for those with a reliable means of staying hydrated and cool, it can be deadly for others. Young children, the elderly, or people suffering from serious medical conditions are physiologically more vulnerable to heatstroke. Some senior citizens also take medicines that can make it harder for their bodies to maintain a safe internal temperature, creating an additional threat from extreme heat events. Young children may not be aware of the signs of dehydration or ways of protecting themselves from heatstroke.
Extreme heat can cause urban surface areas to become 50 to 90°F Fahrenheit warmer than the air temperature. Extreme heat is present at all hours of the day and the night but is most intense during the day and in the summer. Due to changes in the sun’s intensity, its magnitude varies with seasons.
Surface heat contributes to human discomfort during the day and an increase in energy demand for air conditioning.65
Sudden spikes in heat can catch people by surprise. Stores can rapidly sell out of fans, air-conditioning units, or drinking water during a heatwave. Lower-income households or those with limited mobility may be unable to acquire enough insulation or cooling devices without significant advance preparations. This can be further compounded by the threat of Public Safety Power Shutoff events.
During these events, extreme heat impacts may affect larger portions of the City and populations that would not be considered as vulnerable under normal circumstances.
61 Williams I N, Torn M S, Riley W J and Wehner M F 2014 Impacts of climate extremes on gross primary production under global warming Environ. Res. Lett 62 California Department of Public Health. 2017. Climate Change and Health Profile Report Santa Clara County.
63 Maizlish N, English D, Chan J, Dervin K, English P. Climate Change and Health Profile Report: Santa Clara County.
Sacramento, CA: Office of Health Equity, California Department of Public Health; 2017. 64 Southern California Association of Governments. 2020. Extreme Heat & Public Health Report. September. 65 Southern California Association of Governments. 2020. Extreme Heat & Public Health Report. September. 31 While the general population may be less vulnerable to extreme heat events, people have unique and individual thresholds. Extreme heat events including heatwaves can lead to illness and death, particularly among older adults, the very young, and other vulnerable populations. People experiencing homelessness are at a high risk of health complications during heatwaves, especially if they are unsheltered.
Adaptive Capacity
Current research indicates that most people can adapt biologically and physically to incremental increases in average normal temperatures. Children, pregnant women, and older adults are more susceptible to adverse effects because they are less able to regulate their body temperatures. Other at-risk groups include individuals working outdoors, the socially isolated, and those with incomes below the federal poverty level, as well as communities of color. Continuous exposure to increased heat over time will impact how individuals are able to work and play both now and in the future.66 Regulation and Planning
Fullerton has addressed extreme heat in planning and research documents such as the Local Hazard Mitigation Plan, including a mitigation action to “Evaluate the long-term capacity of designated cooling centers and shelters in the City to provide sufficient relief from extreme heat. Assess the need to expand services as the frequency, length, and severity of future heatwaves potentially change as a result of climate change.
State of California: HeatReadyCA
The State of California provides resources and information to help you stay safe, cool and connected include developing a plan, understand warning signs, and provide cooling center location services.67 City of Fullerton: Heat Awareness and Cooling Center Information Fullerton also provides Heat Awareness and Cooling Center Information that provides the protocol for three stages of readiness actions that include a Readiness Phase - Heat Advisory, Heat Alert Phase – Excessive Heat Watch, and Heat Alert Phase – Excessive Heat Warning. The protocols provide direction as to when the Heat Advisory or Heat Alerts are issued following a set criteria and use of standard indices and include the necessary actions such as monitoring, communication, and notifications.
Cooling Centers
To provide respite from extreme heat, Fullerton provides two cooling centers at the Fullerton Community Center at 340 W. Commonwealth and the Fullerton Main Library at 353 Commonwealth Avenue. There are also cooling centers located throughout the region to support vulnerable individuals and families.68
Aging Adults Excessive Heat Resources
The Orange County Office of Aging provides excessive heat resources to older adults and persons with health problems to stay safe during extreme heat.69
66 National Institute of Heath, National Institute of Environmental Health Sciences. 2022. Temperature-related Death and Illness. https://www.niehs.nih.gov/research/programs/climatechange/health_impacts/heat/index.cfm#footnote1 Accessed April 7, 2022.
67 State of California. Office of Community Partnerships and Strategic Communications. 2023. Heat Ready California.
Accessed December 21, 2023.
68 County of Orange. 2023. Cooling Centers. https://ocgov.com/cooling-centers. Accessed December 21, 2023. 69 County of Orange. 2023. Excessive Heat. https://www.officeonaging.ocgov.com/resources/excessive-heat. Accessed December 21, 2023.
32 3.2.1.4 DROUGHT + WATER SUPPLY
Increasing temperatures and changes in precipitation may lead to intensified drought conditions.
Warmer temperatures contribute to more frequent and intense droughts by leading to a decline in and faster melting of winter snowpack, greater rates of evaporation, and drier soils. These conditions decrease the amount of spring and early summer snowmelt runoff upon which the State historically has depended for its annual water supply, while they increase the demand for irrigation water in both agricultural and urban settings. The period of 2012 through 2015 represents the State’s four driest consecutive years on record in terms of Statewide precipitation, and 2021 was the third-driest single year.
Drought may lead to water-related problems. When rainfall is less than normal for weeks, months, or years, the flow of streams and rivers declines, water levels in lakes and reservoirs fall, and the depth of water in wells increases. If dry weather persists and water-supply problems develop, the dry period can become a drought.70
As a result, droughts have widespread impacts across the State, including mandatory water use restrictions, reductions in agricultural crop production, and over-pumping of groundwater, which damages infrastructure from land sinking and dries up and degrades domestic well habitats.71 Historical Drought Events
• The 2007 –2011 California drought marked the beginning of increased restrictions on State Water Project (SWP) pumping from the Bay-Delta due to environmental considerations. In April 2007, Metropolitan Water District of Southern California (MWD) announced that it would implement shortage -related actions consistent with its Water Surplus and Drought Management Plan (WSDMP).
• In January 2014, Governor Brown proclaimed a state of emergency throughout California, calling for increased conservation across the State. In response to the Governor’s drought declaration and call for conservation, the Water Authority activated its WSDMP for the second time since its adoption in 2006, declaring in February 2014 a regional drought response Stage I, Voluntary Supply Management. On April 2, 2017, Governor Brown lifted the drought emergency.72
• On April 21, May 10, and July 8, 2021, Governor Newsom issued proclamations that a state of emergency exists in a total of 50 counties due to severe drought conditions and directed State agencies to take immediate action to preserve critical water supplies , mitigate the effects of drought, and ensure the protection of health, safety, and the environment. On October 19, 2021, Governor Newsom signed a proclamation extending the drought emergency Statewide and further urging Californians to reduce their water use. • On January 4, 2022, the State Water Resources Board passed Resolution No. 2022 -0002 adopting an emergency regulation to supplement voluntary water conservation.73
70 United States Geological Survey. 2022. California Water Sciences Center. California Drought. https://ca.water.usgs.gov/california-drought/what-is-drought.html. Accessed December 12, 2023. 71 State of California, Legislative Analyst’s Office. 2022. Budget and Policy Post. Climate Change Impacts Across California Crosscutting Issues. April 5, 2022. https://lao.ca.gov/Publications/Report/4575. Accessed December 11, 2023. 72 United States Geological Survey. 2022. California Water Sciences Center. California Drought. Comparisons. 2012-2016 California Drought: Historical Perspectives. https://ca.water.usgs.gov/california-drought/california-drought- comparisons.html. Accessed December 13, 2023.
73 California Department of Water Resources. 2022. Resolution no. 2022-0002 to adopt an emergency regulation to supplement voluntary water conservation. January 4.
33 • Excessive rainfall and flooding in late December 2022 and early January 2023 alleviated some of the drought conditions. Governor Newsom officially eased drought restrictions in March 2023. As of November 2023, the City was not considered to be in a state of drought.74
MONITORING DROUGHT
The National Oceanic and Atmospheric Administration (NOAA) has developed several indices to measure drought impacts and severity and to map their extent and locations. The Palmer Drought Index measures the duration and intensity of long-term drought-inducing circulation patterns. Long- term drought is cumulative, so the intensity of drought during a given month depends on current weather plus the cumulative weather of previous months. Figure 3-2: Palmer Hydrological Drought Index Long-Term Hydrologic Conditions For November 2023 shows this index for November 2023.
As the climate continues to change, many historically dry areas like ours are likely to experience less precipitation and increased risk of prolonged droughts, erratic and unseasonal rainfall patterns, flash floods and surface runoff, topsoil erosion, decline in forest canopy, depletion of groundwater supplies, land subsidence, increased dependence on expensive imported water supplies, and subsequent impacts on human health, economy and more. Droughts are among the most expensive weather- related disasters in the world, affecting ecosystems, agriculture, and human society.
Figure 3-2: Palmer Hydrological Drought Index Long-Term Hydrologic Conditions For November 2023
Source: National Oceanic and Atmospheric Administration. Palmer Drought Severity Index. https://www.ncei.noaa.gov/access/monitoring/historical-palmers/. Accessed December 14, 2023.
74 Office of Governor. 2023. https://www.gov.ca.gov/2023/03/24/governor-newsom-eases-drought-restrictions/
34 The Palmer Drought Severity Index (PDSI) uses monthly temperature and precipitation data to calculate a simple soil water balance. The index is a relative measure that typically ranges from -4 (extremely dry) to +4 (extremely wet) and represents how soil moisture availability differs from that expected for a given place and time of year. The PDSI includes a "memory" component that considers past conditions and persistence of soil moisture surplus or deficit.75 While the entire State of California was in severe to extreme drought in the fall of 2022, storms in early 2023 brought much needed precipitation and snowpack that has reduced the impact of the drought. The November 2023 PDSI illustrates the State and Fullerton as having dramatically improved drought conditions with a “mid-range” ranking. The December 12, 2023, Drought Monitor map for California (Figure 3-3: Drought Monitor) shows that localized drought conditions as “none” in the City.
Figure 3-3: Drought Monitor
The Drought Monitor is a joint effort of the National Oceanic and Atmospheric Administration, the U.S. Department of Agriculture, and the National Drought Mitigation Center at the University of Nebraska-Lincoln. A map is released each week with drought conditions across the country, indexing everything from groundwater storage to river levels.
Source: National Drought Mitigation Center — University of Nebraska-Lincoln. https://droughtmonitor.unl.edu/CurrentMap/StateDroughtMonitor.aspx?CA. Accessed December 12, 2023.
75 Carolinas Precipitation Patterns & Probabilities. 2023. https://www.cisa.sc.edu/atlas/glossary.html. Accessed December 20, 2023.
35 VULNERABILITY TO DROUGHT
Exposure
As shown Table 3-3: Change in Annual Average Precipitation: City of Fullerton under both the medium and high emissions scenarios, the City is not expected to experience significant changes in average precipitation. California, and by extension the City, has been experiencing prolonged periods of drought over the last decade. Recent research suggests that extended drought occurrence (a “mega- drought”) could become more pervasive in future decades. An extended drought scenario is predicted for all of California from 2025 to 2075 under the HadGEM2-ES simulation and high emissions scenario.
The extended drought scenario is based on the average annual precipitation between 1961 and 1990 of 13.9 inches. Under the projected drought scenario between 2051 and 2070, Fullerton’s precipitation would decrease by 3.9 inches from the 1961-1990 baseline and the variability in annual precipitation would be between 3.0 and 29.3 inches for the HadGEM 2-ES model.76
Drought and Flooding
According to climate forecasters at NASA, the future of fresh water will be full of extremes in the frequency and magnitude of floods and droughts. Droughts will pose serious challenges to the safety, health, and food and water supplies of plants, and animals and humans in some regions. Forecasts must now focus on predicting where it rains, but also how much, and how frequently heavy rain falls versus light rain. Rainfall amount impacts soils saturation and how high streams and rivers rise, which then changes their capacity to hold more in the event of another storm. Drier conditions from extended drought can exacerbate flooding conditions.77
Sensitivity: Major Community Elements
Drought will continue to be a foreseeable event in the future of California, including the City of Fullerton. Since most droughts are almost entirely contingent on global weather phenomena, which vary from year to year, it is impossible to predict either the frequency or severity of future drought events in the City. Droughts that result from infrastructure failure are equally impossible to predict since the circumstances that lead to infrastructure failure are unique to each situation.
As vegetation changes because of drought conditions, the animal species that depend on certain plant communities for food supply and habitat may be affected. The projected increase in the duration of droughts through the end of the century may threaten ecosystems as species become weak due to limited access to water and become susceptible to disease, pest, and decay.78 An indirect hazard most commonly associated with drought is wildfire. A prolonged lack of precipitation dries out vegetation, which becomes increasingly susceptible to ignition as the duration of the drought extends. Millions of board feet of timber have been lost, and in many cases, erosion has
76 California Energy Commission. Cal-Adapt. 2022. Extended Drought Scenarios, Precipitation by Water Year for Fullerton. https://cal-adapt.org/tools/local-climate-change-snapshot. Accessed November 1, 2023. 77 National Aeronautics and Space Administration. 2019. Earth's Freshwater Future: Extremes of Flood and Drought. https://climate.nasa.gov/news/2881/earths-freshwater-future-extremes-of-flood-and-drought/. Accessed November 1, 2023. 78 California Natural Resources agency, Governor’s Office of Planning and Research, and California Energy Commission. 2019.
California’s Fourth Climate Change Assessment; San Diego Region Report. Available:
https://www.energy.ca.gov/sites/default/files/2019-11/Reg_Report-SUM-CCCA4-2018-009_SanDiego_ADA.pdf. Accessed December 1, 2023.
36 occurred, has caused serious damage to aquatic life, irrigation, and power production due to heavy silting of streams, reservoirs, and rivers.
Drought is also often accompanied by extreme heat, exposing people to the risk of sunstroke, heat cramps and heat exhaustion. Pets and farmed animals are also vulnerable to heat-related injuries.
Crops, already susceptible from drier conditions, can become even more vulnerable to extreme heat events as well.
Lifeline Utility Systems
Climate change is also expected to increase the average temperature and cause more frequent and prolonged heatwaves in California. During these events, water supplies may be diverted for cooling functions in the City. Hotter temperatures may also lead to increased surface water evaporation which could lead to greater water consumption. If a drought were to occur during a future heatwave, it could place the water supply under strain due to increased consumption potentially in combination with reduced supply.
From a regional perspective, warmer overall temperatures in California are anticipated to lead to a reduction in Statewide water supplies. Much of California’s water comes from melted snow in the high sierra. In April 2022, the Sierra snowpack was in decline, at 38 percent of the Statewide average. The snowpack was the lowest it had been since 2015 and registered the sixth lowest April measurement in State history. In January 2023, storms in the Sierra Nevada more than doubled the snowpack for a normal January and surpassed the April annual average.79 Water experts from the California Department of Water Resources were reluctant to signal too much optimism given that in the winter of 2021 California snowpacks accumulated to above-average levels through December, only to see January, February, and March of 2022 register as the driest on record.80 Economic Elements
Drought causes the most significant economic impacts on industries that use or depend on water for their business — most notably, agriculture and related sectors (forestry, fisheries, and waterborne activities). In addition to losses in crop yields and livestock production, drought is associated with increased insect infestations, plant diseases, and wind erosion. As the general drying of the landscape occurs in a drought, there can be a dramatic shift from high moisture to low moisture, prompting nuisance pests to migrate earlier in the year and in a more concentrated manner.81 And for certain insects that thrive in warm, dry weather, like grasshoppers, populations increase dramatically. Left unaddressed, grasshoppers could cause agricultural damage so severe that beef and crop prices would go up.82 Drought can lead to reduced income for farmers and reduced business for retailers and others who provide goods and services to farmers. This can lead to unemployment, increased credit risk for financial institutions, capital shortfalls, and loss of tax revenue. Prices for food, energy, and other products may also increase as supplies decrease. Additionally, removal of dead trees can be costly and challenging, which can add to the financial impacts of drought.
79 California Department of Water Resources. 2023. Snow Water Equivalents. January 20. 80 Sternfield, Marc. 2023. California snowpack soars to nearly 200% of normal. KTLA. https://ktla.com/news/local- news/california-snowpack-200-percent-normal/. Accessed December 21, 2023. 81 Schellman, Anne. 2015. California drought may be causing shifts in pest invasion behavior. UC Division of Agriculture and Natural Resources. https://ucanr.edu/blogs/blogcore/postdetail.cfm?postnum=19008. Accessed December 21, 2023. 82 Brown, Matthew. 2021. Forget cicadas. Drought-stricken West is getting plagued by voracious grasshoppers. Los Angeles Times. June 24.
37 No structures will be directly affected by drought conditions, though some structures may become vulnerable to wildfires, which are more likely following years of drought. Droughts can also have significant impacts on landscapes, which could cause a financial burden to property owners. However, these impacts are not considered critical in planning for impacts from the drought hazard.
The water sector is central to public health and the economy. Water utilities ensure a reliable supply of clean water to communities and ecosystems and contribute significantly to the resilience of many other sectors, including agriculture, energy, and manufacturing. Drought can result in impacts to water utility operations, including:
• Loss of water pressure and water supply
• Poor water quality that may require additional treatment to meet drinking water standards • Inability to access alternative and supplementary water sources because of high demand by and competition from other users
• Increased customer demand
• Increased costs and reduced revenues related to responding to drought impacts.
Prolonged droughts could add stress to the City’s water supplies, potentially putting more stress on existing groundwater resources within the region. Climate change is projected to cause an increase in the frequency and intensity of extreme precipitation events, which includes droughts as well as intensive flooding. Additionally, hotter temperatures are expected to increase demand for water supply for landscape maintenance in urban areas. Fullerton’s natural areas in the Coyote Hills are likely to be at risk of being negatively impacted by more frequent and severe droughts in the future.83 Natural Resource Areas
Climate change threatens biodiversity, as urban development has left species with limited room to migrate. Drier soils may impact the ability of plant species to survive in their native habitats, and riverine ecosystems may experience decreasing populations of aquatic species. Climate change is likely to exacerbate the spread of invasive species and plant diseases that threaten ecosystem health.
Aquatic ecosystems may see a decrease in surface water quality, which would place stress on aquatic life and could result in the spread of invasive species. Climate related ecosystem vulnerabilities may lead to habitat fragmentation, which would impede species migration and threaten the connectivity of regional ecosystems.
When a drought occurs, the existing pressures on the ecosystem’s natural water supplies are amplified. If the ecosystem’s water needs are not considered in water allocation decisions, then this already vulnerable ecosystem may be pushed beyond the threshold at which it can recover. The ecosystem will begin to function differently, leading to a loss in the critical services it once provided humans—such as purifying water and air, preventing erosion, and providing recreation opportunities.84 An exceptionally severe drought could dramatically reduce the amount of water available for landscaping in the City and deprive trees of the irrigation they require for their survival.
Lack of moisture, already at a severe level in California due to a current multi-year drought and decades of fuel accumulation from historical forestry and fire suppression practices, increases the risk of wildfires.
83 Fullerton, City of. 2020. Local Hazard Mitigation Plan. 84 National Integrated Drought Information Systems. Ecosystems. https://www.drought.gov/sectors/ecosystems. Accessed December 5, 2023.
38 Tree mortality is a key secondary impact of drought. Drought can affect a tree’s ability to generate pitch, which it uses to defend itself against infestation by insects such as the bark beetle. Prolonged periods of drought, such as the one just experienced by the State of California, can cause extensive damage to trees. Since May 2016, the U.S. Forest Service has identified 36 million new dead trees, bringing the total estimate of dead trees in California to 62 million. These impacts are not instantaneous, and sometimes are not felt by communities for many years following a drought. Any tree has the potential to be infested by pests that could result in the tree’s death. This means all areas of the City that are landscaped with trees could experience tree mortality. These areas include parks, landscaped parkways and street medians, schools, as well as private homes.
Sensitivity: Vulnerable Populations
The entire population of the City is vulnerable to drought. Drought can affect people’s health and safety, including health problems related to low water flows, poor water quality, or dust. Droughts can also lead to loss of human life. In addition to fire-related injuries, local and regional transport of smoke, ash, and fine particles increases respiratory and cardiovascular risks. Drought may increase exposure to health hazards including wildfires, dust storms, extreme heat events, flash flooding, degraded water quality, and reduced water quantity. Other possible impacts include recreational risks; effects on air quality; diminished living conditions related to energy, air quality, and hygiene; compromised food and nutrition; and increased incidence of illness and disease.
Adaptive Capacity
Fullerton has addressed drought in planning documents such as their LHMP and the Fullerton Urban Water Management Plan. Orange County has regulations and programs in place that are beneficial during drought events by limiting further potential public health impacts.
Orange County
Orange County Water District
The District manages and protects the Orange County Groundwater Basin (Basin), which provides 85% of the water supply to 2.5 million people in north and central Orange County, including Fullerton. The Basin holds water from a variety of sources, including Santa Ana River flows, stormwater, imported water, and recycled water. They get the remaining 15 percent from imported supplies brought in by the Metropolitan Water District of Southern California (MWD) and served through its local subsidiary member agency, the Municipal Water District of Orange County (MWDOC).
Since the previous drought from 2012-2016, OCWD has worked hard to substantially refill our groundwater basin. At this time, the Basin can provide water for two consecutive years at current pumping levels even if drought conditions persist.
The District has increased water recycling at the Groundwater Replenishment System (GWRS), which produces 130 million gallons of water a day, enough to serve nearly one million people. In early 2023, a final expansion of the facility was completed, recycling 100% of local reclaimable wastewater flows, thereby maximizing water recycling efforts in the region.85 Santa Ana Watershed Project Authority
85 Orange County Water District. 2023. Drought in California. https://www.ocwd.com/learning-center/drought/. Accessed December 21, 2023.
39 The Santa Ana Watershed Project Authority (SAWPA), of which the District is a member, has launched a weather modification pilot program to increase precipitation through the use of cloud seeding. The process works by releasing particles of silver iodide into clouds, which increases the chances of droplet condensation.86
Fullerton
Fullerton 2020 Urban Water Management Plan
This 2020 Urban Water Management Plan (UWMP) provides an assessment of the present and future water supply sources and demands within the City’s service area. It presents an update to the 2015 UWMP on the City’s water resource needs, water use efficiency programs, water reliability assessment and strategies to mitigate water shortage conditions. It also presents a new 2020 Water Shortage Contingency Plan (WSCP) designed to prepare for and respond to water shortages. This 2020 UWMP contains all elements to meet compliance of the new requirements of the UWMP Act of 1983 as amended since 2015.
Fullerton Ordinance No. 3299: Water Supply Shortage Conservation Plan Establishes water management requirements necessary to conserve water, enable effective water supply planning, assure reasonable and beneficial use of water, prevent waste of water, prevent unreasonable use of water, prevent unreasonable method of use of water within the City in order to assure adequate supplies of water to meet the needs of the public and further the public health, safety and welfare, recognizing that water is a scarce natural resource that requires careful management not only in times of drought but at all times.
Establishes six levels of Water Shortage Levels most often triggered due to drought conditions to provide defined response actions to implement during times of declared water shortage or declared water shortage emergency with increasing restrictions on water use in response to worsening drought or emergency conditions and decreasing supplies.
Fullerton Landscape Ordinance 15.50.110
The purpose of the Fullerton Landscape Ordinance is to establish standards for the provision of landscaping within the City of Fullerton while promoting conservation and the efficient use of water, prevention of erosion, protection from fire, and restoration of natural systems.87
3.2.1.5 WILDFIRE + SMOKE
According to the State’s Fourth Climate Change Assessment, by 2100, the frequency of extreme wildfires burning over 25,000 acres could increase by nearly 50 percent.88 As with other climate hazards, the State already is beginning to experience an increase in severe wildfires. Most of California’s largest and most destructive wildfires have occurred in recent decades. This pattern has been particularly notable in the last few years, which have seen some of the worst wildfires in the
86 Santa Ana Watershed Project Authority. 2023. Weather Modification (Cloud Seeding) in the Santa Ana River Watershed. https://sawpa.gov/santa-ana-river-watershed-weather-modification. Accessed December 21, 2023. 87 Fullerton Landscape Ordinance. https://codelibrary.amlegal.com/codes/fullerton/latest/fullerton_ca/0-0-0-24090.
Accessed December 21, 2023.
88 State of California Climate Adaptation Strategy. 2023. https://climateresilience.ca.gov/overview/impacts.html.
Accessed December 7, 2023.
40 State’s recorded history. Five of the twenty most destructive wildfires in the state’s history occurred in 2020 alone, with an additional two in 2021.89
Wildfire in southern California is influenced by a multitude of factors: a dry and warm Mediterranean climate with periodic episodes of Santa Ana winds and droughts, the type and spatial distribution of vegetation (along with dead/ dry vegetation caused by pests), varying topography, large urban- wildland interfaces, past fire suppression attempts, and human activities. Hot and dry conditions, combined with offshore winds in autumn create high risk conditions that rapidly spread fires. Fire ignitions in California are primarily due to human activity, and the dry fuels and climate contribute to higher risk of rapid-fire spread Future projections using statistical models indicate that southern California may experience a larger number of wildfires and burned area by the mid-21st century under RCP8.5. Overall burned area is projected to increase over 60 percent for Santa Ana-based fires and over 75 percent for non-Santa Ana fires.90,91
Not only do high-severity wildfires take lives and level homes, public facilities, and community infrastructure, but they also destroy fish and wildlife habitats. Moreover, intense wildfires can also impair air quality throughout the State.
Historical Wildfire Events
Orange County has experienced large and destructive fires. These include:
• 2007 - The Santiago Fire was a wildfire located near Santiago Canyon where twelve homes were destroyed.
• 2017 - Canyon 2 Fire, was a wildfire that burned in the Anaheim Hills area of the city of Anaheim setting fire to several homes. In total, about 16,570 were ordered to evacuate their homes.
• 2018 - Holy Fire was a wildfire that burned in the Cleveland National Forest in Orange and Riverside Counties, California. The blaze burned 23,136 acres and destroyed 18 buildings. • 2020 - Bond Fire. A wildfire burned 6,686 acres (2,706 ha) in the Santiago Canyon area of Orange County, California in December 2020. The fire caused evacuations of 25,000 residents and injured 2 firefighters.
• 2020 - The Silverado Fire was a wildfire that burned in October and November 2020 in southern Orange County, California northeast of Irvine.
VULNERABILITY TO WILDFIRE
Climate change will result in changes in precipitation patterns, increased temperature, and drought conditions. Wetter months may lead to increased vegetative growth, while following periods of drought will allow for the vegetative growth to dry up, creating greater amounts of fuel for fires.
89 State of California, Legislative Analyst’s Office. 2022. Budget and Policy Post. Climate Change Impacts Across California Crosscutting Issues. April 5, 2022. https://lao.ca.gov/Publications/Report/4575. Accessed December 11, 2023. 90 Ackerly, David, Andrew Jones, Mark Stacey, Bruce Riordan. (University of California, Berkeley). 2018. San Francisco Bay Area Summary Report. California’s Fourth Climate Change Assessment. Publication number: CCCA4-SUM-2018-005. 91 Hall, Alex, Neil Berg, Katharine Reich. (University of California, Los Angeles). 2018. Los Angeles Summary Report. California’s Fourth Climate Change Assessment. Publication number: SUM-CCCA4-2018-007. 41 Climate change will also worsen existing severe wind events, which fuel the spread and intensity of wildfires.
Exposure
Wildfires begin in natural, undeveloped land. Wildfires sometimes ignite due to natural circumstances, such as intense heat combined with masses of dead vegetation, or lightning strikes. Dry vegetation is highly combustible when the weather is hot and dry. Fires can also ignite under windy conditions from the friction caused by vegetation rubbing together. Humans can also start wildfires, either intentionally or unintentionally. A downed power line in a wind event, for example, could catch the surrounding landscaping or buildings on fire, or an unextinguished cigarette tossed into dry grass may ignite and cause a wildfire. Sometimes humans intentionally burn wild landscapes, often for land management purposes.
Topography can play a role in influencing the speed and direction of a wildfire. Because heat rises, fires move faster uphill, so a steep slope can make a fire spread faster. Thus, fires are a greater risk in mountainous areas.92
Traditionally, fire season in Southern California lasts from May through September. However, over the past 15 years Orange County has experienced some of its most devastating wildfires between October and April [e.g., Santiago Fire and the Freeway Complex Fire.) An analysis of fires with known start dates recorded in the County show:
• Most fires occurred between June and November.
• Approximately 60 percent of all fires were ignited from June through September but accounted for only 26 percent of the area that burned.
• In contrast, 17 percent of all fires occurred in October/November and consumed 61 percent of the land burned between 1940 and 2008.
• Although most ignitions take place between June-September, ignitions in October tend to be larger.93
Wildland Fire vs. Wildland-Urban Interface Fires
Fire science distinguishes between two types of wildfires: “wildland” fires, which burn predominately in undeveloped areas, and “wildland-urban Interface” (WUI) fires. This distinction is important because mitigation, damage, and actions related to the two types may differ significantly.
Wildland fires that burn in natural settings with little or no development are part of a natural ecological cycle and may be beneficial to the landscape if they burn within the historic range of variability for fire size and intensity. Many species are adapted to California's natural fire regimes and flourish after a low or mixed severity burn. These fires also enhance ecosystem function by creating landscapes that have more variation, are more resilient to other disturbances, and are better able to withstand extremes in precipitation. The wildland fire may result in secondary negative impacts in the form of air pollution, soil erosion (resulting in siltation of streams and lakes), or mudslides, though these impacts tend to be far less than would occur following high severity fires in areas of historic fire suppression. However, unless these fires or their related secondary impacts occur in or near
92 Fullerton, City of. Local Hazard Mitigation Plan. 2020. 93 Orange County County-Wide Community Wildfire Protection Plan. 2017. 42 developed areas they are rarely classified as disasters because they do not affect people or the built environment.
The WUI is characterized by the intersection of the natural and the built environments and has been defined as “the area or zone where structures and other human development meet or intermingle with undeveloped wildland or vegetative fuels” (Society of American Foresters). The WUI can be configured in many ways including a classic “interface” (e.g., a community that abuts a National Forest at a distinct boundary), an “intermix” (e.g., vegetative fuels distributed between buildings throughout a subdivision between buildings), or an “occlusion” (e.g., a community that completely surrounds a designated open space area).
WUI fires represent an increasingly significant concern for the State of California. California has a chronic and destructive WUI fire history with significant losses of life, structures, infrastructure, agriculture, and businesses. Even relatively small-acreage WUI fires may result in disastrous damage.
Most local governments that have submitted Local Hazard Mitigation Plans (LHMPs) have identified fire and WUI fires as specific hazards.94
Fire Hazard Severity Zones
Wildfires are not measured on a specific scale and are usually classified by size (e.g., acres burned) or impact (e.g., buildings destroyed or damaged, injuries or deaths, cost of damage, etc.). The risk of wildfire is classified on a three-tier scale of fire hazard severity zones (FHSZs): very high, high, and moderate. These classes do not correspond to a specific risk or intensity of fire but are qualitative terms that consider many factors. Fire-prone areas are also classified by the agency responsible for fire protection. Federal Responsibility Areas (FRAs) fall to federal agencies such as the US Forest Service, the Bureau of Land Management, and the National Park Service. State Responsibility Areas (SRAs) fall to CAL FIRE, and Local Responsibility Areas (LRAs) fall to local governments.
CAL FIRE data was used to identify Very High Fire Hazard Severity Zones (VHFHSZ) in the City that are included in the LRA (See Figure 3-4: Fire Hazard Severity Zones). Development within these zones is regulated through the Uniform Building Code and Uniform Fire Code. State Minimum Fire Safe Regulations apply to all of the SRA (regardless of risk) and local VHFHSZ. Building code requirements apply to all of the WUI, regardless of whether in LRA or SRA. Requirements imposed as part of the development review process include fire lanes, fuel modification zones, fire retardant building materials, smoke detectors and automatic sprinkler systems, depending on the size and type of development.
Climate models have difficulty projecting exactly where and how fires will burn as the frequency, severity and impacts of wildfire are sensitive to climate change as well as other factors, such as development patterns and pest infestations. Instead, climate models estimate increased risk from wildfires. As shown in Table 3-7: Modeled Annual Area Burned – City of Fullerton, The amount of area within the City at risk of wildfire is projected to decrease substantially by the end of the century (depending on scenario) compared with the historic baseline.
94 California Governor’s Office of Emergency Services. 2023 State Hazard Mitigation Plan. 43 Figure 3-4: Fire Hazard Severity Zones
Source: Office of the State Fire Marshall. 2023. Fire Hazard Severity Zones (FHSZ). https://osfm.fire.ca.gov/divisions/community-wildfire-preparedness-and-mitigation/wildfire-preparedness/fire-hazard- severity-zones/#explorefhsz. Accessed November 2023.
Table 3-7: Modeled Annual Area Burned – City of Fullerton Baseline (hectares)
(1961 - 1990)
Medium Emissions (RCP 4.5) High Emissions (RCP 8.5)
Mid-Century End-Century Mid-Century End-Century
65.4 14.2 12.7 11.1 11.4
Source: California Energy Commission. CalAdapt. Local Climate Change Snapshot for City of Fullerton: Wildfire: Modeled Annual Area Burned. https://cal-adapt.org/tools/local-climate-change-snapshot. Accessed December 9, 2023.
The Annual Average Area Burned can help inform the City if wildfire activity is likely to increase in the study area. These projections are most robust for the Sierra Nevada given model inputs. Much of California can expect an increased risk of wildfire, with a wildfire season that starts earlier, runs longer, and features more extreme fire events.
Based on the RCP 8.5 scenario, the annual average of area burned if forecast to decrease by over 50 acres by the end of the century. While all of Fullerton is potentially at risk of some type of fire hazard.
Since 90 percent of the City’s land is currently built-out, mostly with wooden-frame construction, the potential for wildfires to emerge at any location in the city is more limited.
44 According to Table 3-8: Fire Hazard Severity Zone: Vulnerable Populations, residents living in the VHFHSZ have demographic characteristics dissimilar to the remainder of the City. The median age is 10 years older than in the City as a whole. These are unique challenges for the City, as 33.2 percent of households in the Fire Hazard Severity Zone have at least one individual aged 65 years and older.
Additionally, 10.5 percent of households have at least one person living with a disability. Challenges that these populations face include potential inability to access emergency supplies, evacuate, or receive and understand emergency information. The effects of climate change hazards can result in infrastructure disruptions including power outages. Such events could result in additional health hazards for the elderly or persons with disabilities who rely on power to sustain medical equipment or assistive technology.
Table 3-8: Fire Hazard Severity Zone: Vulnerable Populations VHFHSZ City of
Fullerton
Total Population1 4,458 144,363
Percent of residents who are children (less than 10 years old)2 7.8% 10.6% Percent of households that have people 65+ years old 1 33.2% 28.2% Percentage of households with at least one person living with a disability 1 10.5% 21.2% Median age2 46.4 36.3
Total households1 1,568 48,739
Median household income2 $159,104 $96,047
Percent of rental households2 24.3% 49.7%
Percent of household income below poverty level 1 2.2% 11.2% Source: US Census Bureau, ACS 2017 - 20211, US Census Bureau 2020 Summary File 1, ESRI Forecasts 20232 Wildland Urban Interface
This Vulnerability Assessment evaluates housing density and wildfire hazard attributes (FHSZ) in an effort to capture Wildland Urban Interface (WUI). Figure 3-5: Wildland Urban Interface displays the overall pattern of WUI development for the City and compares counties in terms of development patterns. Three WUI classes are mapped:
1. Wildland Urban Interface — dense housing adjacent to vegetation that can burn in a wildfire;
2. Wildland Urban Intermix — housing development interspersed in an area dominated by wildland vegetation subject to wildfire; and
3. Wildfire Influence Zone — wildfire susceptible vegetation up to 1.5 miles from Wildland Urban Interface or Wildland Urban Intermix.
45 Figure 3-5: Wildland Urban Interface
Note: The WUI dataset is not refined through a field review process; it is not suited for WUI designations for individual houses or neighborhoods.
Table 3-9: Wildland Urban Interface: Vulnerable Populations WUI City of
Fullerton
Total Population1 10,351 144,363
Percent of residents that are children (less than 10 years) 2 7.9% 10.6% Percent of households that have people 65+ years1 45.9% 28.2% Percentage of households with at least one person living with a disability1 20.9% 21.2% Median age2 49.6 36.3
Total households1 3,651 48,739
Median household income2 $152,565 $96,047
Percent of rental households2 21.3% 49.7%
Percent of household income below poverty level 1 2.8% 11.2% Source: US Census Bureau, ACS 2017 - 20211, US Census Bureau 2020 Summary File 1, ESRI Forecasts 20232
46 According to Table 3-9: Wildland Urban Interface: Vulnerable Populations, residents living in the Wildland Urban Interface have demographic characteristics similar to the Very High Fire Hazard Severity Zones as shown in Table 3-8: Fire Hazard Severity Zone: Vulnerable Populations, and therefore the City’s concern would also be similar.
Sensitivity: Major Community Elements
The major fire hazard scenarios of concern to protection agencies are residential fires that start in the home with potential to spread to outlying areas and neighboring structures, and wildfires in natural areas that may pose a threat to life and property. The major limitations upon firefighting capabilities within the rural areas are limited accessibility, long travel distances and response times, and water supply limitations. As described in the 2020 LHMP, there are approximately 44 key facilities located within a Fire Hazard Severity Zone (FHSZ). The majority of these are water pumps or sewage facilities, creating a significant risk to the city’s water infrastructure. Water pumps can fail if they lose power during a fire, hampering firefighting efforts. Additionally, excessive water use from firefighting efforts can lower water pressure in pipes and raise the risk of contamination. Lower water pressure can cause non-potable water to backflow or make it easier for contaminants to be drawn in.
As shown in Table 3-10: Key Facilities Threatened by Wildfire, there are a number of medical-related facilities, such as assisted living and nursing facilities, in the wildfire hazard zone. In the event of a wildfire, these facilities may require specialized evacuation to ensure the safety of their occupants due to the high vulnerability of the persons living in these facilities.
Table 3-10: Key Facilities Threatened by Wildfire
Facility Type
Moderate Fire
Hazard
Severity Zone
High Fire
Hazard
Severity Zone
Very High Fire
Hazard
Severity
Zone Total
Emergency Gathering
Areas 0 1 1 2
Medical 1 2 2 5
Municipal Government 0 0 1 1
Transportation 2 0 1 3
Water and Sewage 3 4 26 33
Total 6 7 31 44
Source: Fullerton LHMP 2020
Transportation Systems
Wildfire could damage roads in several ways. Unsafe conditions and damage could lead to road closures. Difficulties may arise with simultaneous evacuation and fire response due to roads that are narrow, steep, or have a dead end. Typical asphalt mixtures could ignite or melt/excessively soften.
Debris from fires and subsequent landslides could block roads.95,96 Most major roads have sidewalks
95 Carvel, R., & Torero, J. (2006). The Contribution of Asphalt Road Surfaces to Fire Risk in Tunnel Fires:
Preliminary Findings. Proceedings of the International Conference on Risk and Fire Engineering for Tunnels, Stations, and Linked Underground Spaces (pp. 83-87). Hong Kong: Tunnel Management International.
96 Cannon, S., & DeGraff, J. (2009). The Increasing Wildfire and Post-Fire Debris-Flow Threat in Western USA, and Implications for Consequences of Climate Change. In K. Sassa, & P. Canuti, Landslides - 47 that create a small defensible space as well as development of the surrounding areas. Roads can be damaged by increased traffic of heavy vehicles, and vehicles that exceed weight limits, used during emergency response or recovery efforts. Costs associated with transportation infrastructure losses include repair costs, clean-up costs, and costs related to service disruptions.97 Lifeline Utility Systems
Additionally, wildfire can cause direct and indirect damage to electrical infrastructure. Direct exposure to fire can sever transmission lines, and heat and smoke can affect transmission capacity. Other impacts of climate change also threaten electricity infrastructure, including wildfires that can destroy poles and towers carrying transmission lines.98 Additionally, downed powerlines can cause wildfires.99 Wildfire events can physically damage water infrastructure including pipes, water meters, dams, spillways, and other structures and equipment. Costs associated with water infrastructure losses include repair costs, clean-up costs, and costs related to service disruptions. Mitigation actions specifically to reduce water infrastructure losses primarily include infrastructure hardening and defensible space. Water infrastructure damage can also cause contamination of drinking water supplies that can pose a risk to public health.100 Wildfires can damage or destroy gas, electric, and telecommunications infrastructure including poles, towers, lines, pipes, and other physical assets.101 Economic Elements
Wildfire can lead to the loss of buildings and infrastructure that may need to be repaired from damage or replaced if destroyed. Additional economic losses include the value of private property or inventory that is damaged along with a home, costs associated with temporary accommodation or service disruptions, and costs related to toxic material and debris cleanup. When infrastructure losses cause service disruptions, the costs can be borne by customers and communities far from the perimeter of the wildfire.102
Natural Resource Areas
Because of historical forest management trends over the past century, increased temperatures, and more frequent drought, California wildfires are characteristically hotter and more intense as compared to naturally occurring fire regimes. As such, soil structure and moisture retention are damaged,
Disaster Risk Reduction (pp. 177-190). Verlag Berlin Heidelberg: Springer. 97 Feo, Teresa J., Amber J. Mace, Sarah E. Brady, and Brie Lindsey. 2020. The Costs of Wildfire in California An Independent Review of Scientific and Technical Information. California Council on Science and Technology. ISBN Number: 978-1-930117- 66-2.
98 Davis, M., and S. Clemmer. 2014. Power failure: How climate change puts our Electricity at risk—and what we can do.
Cambridge, MA: Union of Concerned Scientists. https://www.ucsusa.org/sites/default/files/2019-10/Power-Failure-How- Climate-Change-Puts-Our-Electricity-at-Risk-and-What-We-Can-Do.pdf. Accessed December 11, 2023. 99 Gonzales, Richard. 2018. PG&E Power Lines Blamed for Northern California Wildfires. National Public Radio. June 8. https://www.npr.org/2018/06/08/618444388/pg-e-power-lines-blamed-for-northern-california-wildfires. Accessed December 3, 2023.
100 Feo, Teresa J., Amber J. Mace, Sarah E. Brady, and Brie Lindsey. 2020. The Costs of Wildfire in California An Independent Review of Scientific and Technical Information. California Council on Science and Technology. ISBN Number: 978-1-930117- 66-2.
101 California Governor’s Office of Emergency Services (Cal OES) 2018. California State Hazard Mitigation Plan.https://www.caloes.ca.gov/HazardMitigationSite/Documents/002-2018%20SHMP_FINAL_ ENTIRE%20PLAN.pdf 102 Feo, Teresa J., Amber J. Mace, Sarah E. Brady, and Brie Lindsey. 2020. The Costs of Wildfire in California An Independent Review of Scientific and Technical Information. California Council on Science and Technology. ISBN Number: 978-1-930117- 66-2.
48 leading to increased susceptibility to erosion or landscapes. If the City’s foothills become covered with dry, overgrown vegetation because of drought conditions, extreme heat events and high winds will increase the threat of wildfires.
Beyond direct damage to physical property and harmful effects on public safety, wildfires also result in secondary impacts: a major consequence of wildfires is post-fire flooding and debris flow. Wildfires can burn away ground cover and vegetation across the landscape, leaving soil exposed and easily erodible by precipitation. In other cases, fires can cause soil surfaces to harden. Instead of the rain soaking into the soil, rainwater and melted snow can rush across these hardened surfaces, gaining enough power to erode loose sediments.103
Wildfires could alter hydrology by changing vegetation, increasing runoff, and resulting in more sediment that could block drainage and damage structures.104 The wildfires are unlikely to directly burn and/or damage outfalls themselves due to construction materials and placement near bodies of water.
Conservation areas and open space in the City provide crucial ecosystem services such as the provisioning of clean air and water and climate regulation. If conservation areas are damaged, endangered species could be at increased risk to species survival. If habitats of sensitive species are subject to frequent disturbance or destruction, resources may be needed to conserve these species.
Sensitivity: Vulnerable Populations
Wildfires are a major public health concern as they can cause immediate health impacts through burns, injuries, and heat stress. However, a wildfire can influence the health outcomes of an area larger than the burn area because the associated smoke can travel long distances and worsen the air quality for extended periods. Wildfires can be a significant contributor to air pollution in both urban and rural areas and have the potential to significantly impact public health through particulates and volatile organic compounds in smoke plumes. Wildfires are a major source of particulate matter, which is an air pollutant that increases one’s risk for respiratory illnesses, cardiovascular disease, negative birth outcomes, and premature death.105 Wildfire smoke contains numerous primary and secondary pollutants, including particulates, polycyclic aromatic hydrocarbons, carbon monoxide, aldehydes, organic compounds, gases, and inorganic materials with toxicological hazard potentials.106 Wildfire smoke also increases exposure to ground level ozone and toxic chemicals (e.g., pesticides, plastics, and paints) released from burned buildings and other man-made materials. Individuals sheltering in place are also at risk of exposure to hazardous air quality because wildfire smoke penetrates homes, particularly older homes.107 Beyond these immediate health impacts, the stress, displacement, and
103 United States Geological Survey. 2017. Increases in Wildfire-Caused Erosion Could Impact Water in the West. https://www.usgs.gov/news/national-news-release/increases-wildfire-caused-erosion-could-impact-water-supply-and-2.
September 17. Accessed November 23, 2023.
104 U.S. DOT. 2018. Transportation Climate Change Sensitivity Matrix. U.S. Department of Transportation.
Retrieved from https://toolkit.climate.gov/tool/transportation-climate-change-sensitivity-matrix 105 Bell, J.E., S.C. Herring, L. Jantarasami, C. Adrianopoli, K. Benedict, K. Conlon, V. Escobar, J. Hess, J. Luvall, C.P. Garcia-Pando, D. Quattrochi, J. Runkle, and C.J. Schreck, III, 2016: Ch. 4: Impacts of Extreme Events on Human Health. The Impacts of Climate Change on Human Health in the United States: A Scientific Assessment. U.S. Global Change Research Program, Washington, DC, 99–128.
106 Künzli, N. et al. 2006. Health effects of the 2003 Southern California wildfires on children. Am J Respir Crit Care Med. 174:1221-8.
107 Rudolph, L., Harrison, C., Buckley, L. & North, S. (2018). Climate Change, Health, and Equity: A Guide for Local Health Departments. Oakland, CA and Washington D.C., Public Health Institute and American Public Health Association.
49 loss of home and community from wildfires can cause significant mental health impacts, such as anxiety, depression, and post-traumatic stress disorder.108 Outside of the property owners directly impacted by a wildfire event, wildfires can also impact seniors and persons with disabilities. During hazard events such as wildfires, flooding, or extreme storms, the elderly and other vulnerable populations, such as persons with disabilities, may require additional assistance to adequately respond. These groups may have limited mobility, be immuno-compromised, and/or not receive notifications regarding current conditions and evacuation requirements. For example, a senior who lives alone may not be aware that a wildfire is burning close to their residence and that they have been ordered to evacuate if those notifications were sent in manner that does not reach them. Persons with disabilities may require special mobility devices or caregiver assistance to go outside, which may not arrive as quickly as needed.
Vulnerable populations with an increased threat level to wildfire and smoke include lower-incomes, renters, the unhoused, and seasonal agricultural workers. These groups may not possess enough financial resources to purchase and operate air purifiers or rebuild their homes or search for new homes in the aftermath of a fire. The unhoused and seasonal agricultural workers have an additional risk as they are less likely to receive notification of this or other disasters because of a lack of access to information or technology or emergency notifications are not provided in a language they understand.
Adaptive Capacity
The City has addressed wildfire in planning documents such as the 2020 LHMP. The State of California also has regulations and programs in place that are beneficial during wildfires by limiting further potential public health impacts as further described below:
In similar acknowledgement of the escalating risk of wildfire, the State of California also issued several documents to assist in wildfire planning and preparation, detailed in the following sections.
Statewide Hazard Mitigation Plan
The State of California Multi-Hazard Mitigation Plan, revised in 2023, considers wildfire along with floods and earthquakes to be the three primary hazards faced by California.109. The document notes the importance of SB 1241, which was passed in 2012 and mandates wildfire planning responsibilities by local agencies through requirements regarding:
1. Wildfire updates to General Plans;
2. Mandatory findings for subdivision approvals in SRAs and VHFHSZs; and
3. California Environmental Quality Act (CEQA) checklist updates for wildfire safety.
Fullerton Fire Department
The Fire Prevention Division conducts ongoing inspections for the purpose of life safety, reduction in property loss, weed and rubbish abatement, and the enforcement of federal, state and local fire regulations. The Emergency Management Division offers a variety of programs to help the community be prepared for fire, including the use of AlertOC, providing guidance of building a disaster preparedness kit, and preparing for a power outage.
108 Hanigan, Ivan C., Colin D. Butler, Philip N. Kokic, and Michael F. Hutchinson. 2012. “Suicide and Drought in New South Wales, Australia, 1970–2007.” Proceedings of the National Academy of Sciences of the United States of America 109 (35): 13950–55.
109 California Governor’s Office of Emergency Services. 2023 State Hazard Mitigation Plan. 2023 50 3.2.1.6 FLOODING
A flood occurs when land that does not normally have bodies of water becomes suddenly inundated with water. Flooding can occur after periods of heavy rainfall, whether it occurs as a single extreme episode or as a series of storms. When heavy rainfall hits an area where the ground is already saturated, the risk of flooding is high. In developed areas, the presence of pavement and other impervious surfaces means that the ground is less able to absorb water. As a result, rainwater must be carried away in storm channels or waterways. Drainages and stream courses may flood their banks and shores if their capacity is exceeded by rainwater.
Floods pose several threats to communities and public safety. Flooding can cause property damage, destroy homes, and carry away vehicles or other large debris. Topsoil and vegetation can be swept away by floodwaters, leading to erosion. Floodwater may impede the movement of victims fleeing a flood or of first responders attempting to reach people in need of help.
Climate models predict that California will experience less frequent but more intense storm patterns in the coming decades. The State's precipitation is expected to fall more frequently as rain rather than snow, compared to historical trends. Additionally, earlier and faster spring snowmelt--caused by higher temperatures--will cause the State's streams and rivers to swell more in some years. Scientists suggest the combination of these factors could lead to a 50 percent increase in runoff in future years, challenging the capacity of the State’s existing reservoirs, canals, levees, and other flood control systems, and increasing the risk of inland flooding. Floods cause significant risk to human life, and damage roads, buildings, and other infrastructure.110
FLOODING
Increases in temperature and precipitation can lead to extreme precipitation events that could lead to flooding in the City. In the context of climate change for the City, this Vulnerability Assessment evaluated two types of climate-related floods: riverine and surface flooding caused by precipitation- driven events. The following describes the types of floods within each category.
Riverine and Surface Flooding from Precipitation-Driven Events • Inland flooding occurs when moderate precipitation accumulates over several days, intense precipitation falls over a brief period, or river overflows because of an ice or debris jam or dam or levee failure.
• A flash flood is caused by heavy or excessive rainfall in a brief period, generally less than six hours. Flash floods are usually characterized by raging torrents after heavy rains that rip through riverbeds, urban streets, or mountain canyons. They can occur within minutes or a few hours of excessive rainfall.
The following analyses describe riverine and surface flooding vulnerabilities resulting from projected climate change for the City.
Riverine and Surface Flooding from Precipitation Events For the City, projections show only a slight change in average annual rainfall through the end of the century (Table 3-3: Projected Change in Annual Average Precipitation: City of Fullerton). Globally, climate change is anticipated to lead to more variability in the intensity of rainfall events from year to
110 State of California, Legislative Analyst’s Office. 2022. Budget and Policy Post. Climate Change Impacts Across California Crosscutting Issues. April 5, 2022. https://lao.ca.gov/Publications/Report/4575. Accessed December 11, 2023. 51 year and longer transitions between droughts and deluges.111 Historically, the City has experienced an average of three extreme precipitation events112 per year between 1960 and 1990. Under the medium emissions scenario, the City is expected to experience an average of four extreme precipitation events per year through the end of the century. Under the high emissions scenario, the City is expected to experience an average of five extreme precipitation events per year by the late century.113 The City has experienced flooding during heavy rainfall events. While the forecasted changes in Maximum 1-Day Precipitation — the greatest amount of daily rain or snow (over a 24-hour period) for each year — are not anticipated to substantially differ from historic records (see Table 3-11: Projected Change in Maximum 1-Day Precipitation: City of Fullerton), flooding can still occur. Impacts from flooding caused by the largest precipitation-driven events should not be dramatically different than what the community currently experiences, and adaptation solutions to address the flooding should be lasting.
Table 3-11: Projected Change in Maximum 1-Day Precipitation: City of Fullerton Maximum 1-
Day
Precipitation
(Inches)
Historic Maximum 1-
Day Precipitation (1961
- 1990)
Medium Emissions (RCP 4.5) High Emissions (RCP 8.5)
Mid-Century End-Century Mid-Century End-Century
1.575 1.657 1.721 1.705 1.779
Source: California Energy Commission. CalAdapt. Local Climate Change Snapshot for Fullerton: Maximum 1-Day Precipitation. https://cal-adapt.org/tools/local-climate-change-snapshot. Accessed November 1, 2023.
Historical Riverine and Surface Flooding Events
• In March 2003, 3 to 7 inches of rain fell on Southern California, causing region-wide flooding.
Water reached depths of up to three feet on some roadways, causing over 1,000 vehicle collisions.
• In January 2010, a strong storm delivered by the jet stream caused urban flooding throughout Southern California. A medical facility in nearby Santa Ana saw its roof cave in due to the heavy rain.
• In 2014 heavy rains affecting most of Southern California caused flooding on a section of Bastanchury Road that was nearly a foot deep. Nearby weather stations reported that more than an inch of rain had fallen in a span of three hours. • In September 2015, flooding of roadways caused severe traffic congestion across Southern California, including Orange County. In the City of Los Angeles, 7,300 people lost power for most of the day, and there more than 500 traffic collisions across the entire region as a result of the road conditions.114
Exposure
With climate change, the future is likely to be different from the past, with most models projecting more intense, but possibly less frequent, rainstorms. Figure 3-6: Flood Hazard Zones shows the mapped flood hazard zones for 100-year and 500-year flood (the 500-year floodplain is land that is covered in water during a flood event that has a 0.2 percent chance of being equaled or exceeded
111 Swain, D. L. (2018). Increasing precipitation volatility in twenty-first-century California. Nature Climate Change. 112 Extreme Precipitation events are successive days in which the 2-day rainfall total is above a threshold of 1 inch. 113 California Energy Commission. Cal-Adapt Extreme Precipitation Events Tool. Available: https://cal- adapt.org/tools/extremeprecipitation/. Accessed December 11, 2023. 114 Fullerton, City of. 2020. Local Hazard Mitigation Plan. 52 each year) events in the City. Approximately 1 percent of the City is within the 100-year flood plain (0.3 square miles), whereas almost 32 percent is in the 500-year flood plain (7.14 square miles). Of special concern are the areas in the southern portion of the City, also identified as vulnerable communities according to FEMA’s Social Vulnerability Rating. These areas are within the 100-year and 500-year zones, and therefore highly susceptible to future flooding events.
Figure 3-6: Flood Hazard Zones
Sensitivity: Community Elements
If enough precipitation were to fall exceeding the storm drain infrastructure design capacity in the City, physical assets can expect to be inundated. Electronic or mechanical equipment on the ground could become waterlogged and nonfunctional. Emergency services may also be impacted.
AS the 2020 LMHP notes, flooding from a 100-year or 500-year storm event will primarily affect the southern section of the city, where the terrain is relatively flat. In the event of a major storm, runoff will flow rapidly to southern Fullerton from the higher-elevation northern areas of the city. Whereas a 100-year flood threatens just 2 critical facilities, a 500-year flood threatens 102 key facilities, among these are Fullerton City Hall and Community Center. Table 3-12: Key Facilities at Risk of Flooding shows the key facilities threatened by flooding in the City. Any facilities inundated with floodwaters are likely to experience power outages if the flood disrupts nearby electrical power grids. Computers and other electronic equipment stored on the ground would become inoperable and destroyed.
Streets would become flooded and motorists as well as emergency personnel may not be able to reach their destinations.
53 Table 3-12: Key Facilities at Risk of Flooding
100-Year Flood 500-Year Flood
Facility Type
Critical
Facility
Facility of
Concern
Critical
Facility
Facility of
Concern
Community Services 0 0 1 6
Education 0 0 18 0
Energy 0 0 0 2
Medical 0 0 0 0
Museum 0 0 0 5
Municipal Government 0 0 0 2
Transportation 0 0 0 49
Utility 0 0 0 2
Water and Sewage 0 2 0 12
Total 0 2 24 78
Source: Fullerton LHMP 2020
Lifeline Utility Systems
Disruptions to communications (including fiber optic cables, data centers, and communications towers) impact all aspects of residents’ lives, from simple services to the complex and interdependent regional economy. Water damaged fiber optic lines can lead to disruptions in communications, which can be catastrophic during a disaster when communication is most essential. Flooded data centers could cause widespread damage to equipment, loss of data, and/or disruption of web-based services that use local data centers for hosting. Flood water can damage equipment at the base of communication towers and can even topple the towers if the water flow is fast enough, causing further damage to nearby homes and businesses.
Flood damage to energy infrastructure would mean interruptions in electricity supply and potentially blackouts. Public health and safety could be affected due to the temporary loss of power and community-wide disruption of transportation networks, businesses, homes, and daily life. Prolonged loss of grid power could result in backup systems for critical facilities being depleted, resulting in disruption of operations to hospitals and fire and police stations and threatening public health and safety.
Economic Elements
Renovations of commercial buildings may be necessary in areas of significant flooding, disrupting associated services. The tourism industry may also be affected by major flood events, as popular vacation areas tend to overlap with flood hazard zones.
Health Materials
Reentering and cleaning homes and buildings also presents hazards. Flooded buildings can pose significant health hazards to people entering them. Electrical power systems can become hazardous.
Gas leaks can trigger fire and explosions. Flood debris—such as broken bottles, wood, stones, and walls—may cause injuries to those cleaning damaged buildings. Containers of hazardous chemicals may be buried under flood debris. Hazardous dust and mold can circulate through a building and be inhaled by those engaged in cleanup and restoration.
54 According to the 2020 Fullerton Local Hazard Mitigation Plan, In Fullerton the 100-year floodplain is not a contiguous area but consists instead of various pockets across the city. These include a residential area northeast of the intersection of I-5 and SR-91, a swath of land abutting Bastanchury Road between Parks Road and W Malvern Avenue, and other small pockets throughout the Coyote Hills. In contrast, the 500-year floodplain covers a large section of Fullerton. Most of the city south of Malvern Avenue and Chapman Avenue, a multifamily neighborhood across SR-57 from California State University, Fullerton (CSUF), and sections of Harbor Boulevard south of the Brea Dam are included in the 500-year floodplain category.115
Natural Resource Areas
Flooding events are projected to become more frequent and severe and can create significant ecosystem damage, compromising wildlife habitat from impacts such as erosion or sedimentation.
Sensitivity: Vulnerable Populations
Age and disability can affect the ability of individuals to prepare for a flood and to move safely before, during, or after a flood. Individuals 65 years and older are more likely to experience difficulties during flooding, as well as with preparing and responding to rapidly changing environments. As little as 6 inches of floodwater can make sidewalks, streets, and pathways difficult to navigate; the elderly may find withstanding such circumstances especially challenging. When public health infrastructure or services are affected by flooding or erosion, the elderly are more likely to be affected by a lack of services than other age groups and may be more physically compromised in seeking services. Floods and their aftermath present numerous threats to public health and safety:
• Unsafe food—Floodwaters contain disease-causing bacteria, dirt, oil, human and animal waste, and farm and industrial chemicals which can contaminate agricultural fields. • Contaminated drinking and washing water and poor sanitation—Flooding impairs clean water sources with pollutants. The pollutants also saturate into the groundwater which may put people at risk by drinking contaminated water. Flooded wastewater treatment plants can be overloaded, resulting in backflows of raw sewage. Private wells can be contaminated by floodwater. Private sewage systems can become a cause of bacteria spread if they overflow. • Floods provide new breeding grounds for mosquitoes in wet areas and stagnant pools. • Mold and mildew — Flooding can cause the growth of mold and mildew in structures.
Excessive exposure to mold and mildew can cause flood victims—especially those with allergies and asthma—to contract upper respiratory diseases. • Carbon monoxide poisoning—In the event of power outages following floods, built-up carbon monoxide from natural gas appliances can poison people and animals. • Mental stress – Experiencing a devastating flood can cause a long-term mental impact.116
115 Fullerton, City of. Local Hazard Mitigation Plan. 2020. 116 County of Santa Clara. Local Hazard Mitigation Plan. 2017. 55 Table 3-13: Vulnerable Populations:
Flood Zones
100 Year Flood
Zone
500 Year
Flood
Zone
100 + 500
Year Flood
Zones
City of
Fullerton
Total Population1 1,279 62,381 63,660 144,363
Percent of residents that are children (less
than 10 years old)2 9.2% 12.9% 12.4% 10.6%
Percent of households that have people
65+ years old1 17.4% 23.1% 22.9% 28.2%
Percentage of households with at least
one person living with a disability1 22.4% 24.8% 24.7% 21.2% Median age2 33.6 33.7 33.7 36.3
Total households1 578 20,109 20,687 48,739
Median household income2 $62,591 $80,882 $80,344 $96,047 Percent of rental households2 76.8% 61.0% 61.5% 49.7%
Percent of household income below
poverty level1
13.9% 13.8% 13.8% 11.2%
Source: US Census Bureau, ACS 2017 - 20211, US Census Bureau 2020 Summary File 1, ESRI Forecasts 20232 Adaptive Capacity
The City has addressed flooding in planning documents such as the 2020 LHMP.
3.2.1.7 GEOLOGIC AND SEISMIC HAZARDS
In the context of climate change vulnerability, increased liquefaction (seismic) and heightened possibility of landslide (geologic) events are a concern. Both hazards are an indirect effect of increased precipitation and rising groundwater because soil must be saturated with water for liquefaction or landslides to occur. Both hazards can be triggered by seismic events such as earthquakes. Specifically:
• Liquefaction occurs when seismic energy shakes an area with low-density, fine grain soil, like sand or silt, which is also saturated with water. When the shaking motion reaches these areas, it can cause these loosely packed soils to suddenly compact, making the waterlogged sediment behave more like a liquid than solid ground.
• Landslides occur when earth on slopes becomes destabilized, typically after heavy rains, when the precipitation saturates the soil and makes it less stable, or when significant erosion from rainfall destabilizes the ground. Slopes that have recently burned face a greater risk from rain- induced landslides, as the fires burn the trees, brush, and other vegetation that help stabilize the earth.
Seismic Activity
Changes in the climate do not have a direct effect on seismic activity. However, seismic events such as an earthquake can cause liquefaction and landslides which are made worse by other conditions caused by climate change.117 California is seismically active because of movement of the North American
117 Liquefaction occurs when seismic energy shakes an area with low-density, fine grain soil, like sand or silt, which is also saturated with water. When the shaking motion reaches these areas, it can cause these loosely packed soils to suddenly compact, making the waterlogged sediment behave more like a liquid than solid ground. During liquefaction events, the liquified soil can lose most of its stability which can cause damage to buildings and infrastructure built upon it. In severe 56 Plate, east of the San Andreas Fault, and the Pacific Plate to the west, which includes the State’s coastal communities. The transform (parallel) movement of these tectonic plates against one another creates stresses that build as the rocks are gradually deformed. The rock deformation, or strain, is stored in the rocks as elastic strain energy. When the strength of the rock is exceeded, rupture occurs along a fault.
There are several smaller fault lines that pass through or lie underneath Fullerton. The Puente Hills Blind Thrust System runs north-south through Fullerton. Sections of the Elysian Park and Yorba Linda fault lines pass through Fullerton’s southwestern and southeastern areas, respectively. The Coyote Hills faults, a series of smaller, shorter faults, run through northern sections of Fullerton. One of these fault segments, located just north of the City, is located within an Alquist-Priolo Special Study zone.
In addition to these local faults, there are six major regional faults that could potentially impact Fullerton:
• The closest point to the Whittier-Elsinore Fault is 1.6 miles northeast of Fullerton. • The closest point to the Newport-Inglewood Fault is 9.8 miles southwest of Fullerton. • The closest point of the Sierra Madre/San Fernando Fault is approximately 14 miles north of Fullerton.
• The Palos Verdes Hills Fault is 20 miles southwest of Fullerton at its closest point. • The San Jacinto Fault is 36 miles east.
• The San Andreas fault, the dominant fault system in Southern California, is 37 miles northeast of Fullerton at its closest point.
Local geology and groundwater conditions, as well as historical events, all influence which areas are susceptible to liquefaction. The Coyote Creek Floodplain in the northwest section of Fullerton contains an abundance of saturated, loose sandy soils at depths less than 40 feet. These sediment layers have the potential to liquefy in the event of an earthquake, causing this area to have a high liquefaction susceptibility. Although the Carbon Creek alluvial fan is composed of loose, sandy material, there is a low susceptibility because groundwater is relatively far below the surface. Since liquefaction occurs in areas with highly water saturated soil, areas of liquefaction with slopes are also known to trigger events known as “deep-seated landslides” which are landslides that occur when water accumulates in the soil underneath the slope’s surface. The areas of West Coyote Hills and East Coyote Hills have a susceptibility to deep-seated landslide. 118
Historical Earthquake, Landslide, and Liquefaction Events • July 8, 1986. North Palms Springs Earthquake. The shock occurred in a complex setting along the San Andreas Fault Zone where it bisects San Gorgonio Mountain and San Jacinto Peak at the San Gorgonio Pass and was the first in a series of three earthquakes that affected southern California and the northern Owens Valley in July 1986. Between 29 and 40 people were injured, and financial losses were estimated to be in the range of $4.5–6 million. • January 17, 1994. Northridge Earthquake. The earthquake struck in the San Fernando Valley about 20 miles (32 km) northwest of downtown Los Angeles. The death toll was 57, with more than 9,000 injured. In addition, property damage was estimated to be $13–50 billion (equivalent to $24–93 billion in 2021).
cases, some buildings may completely collapse. Pipelines or other utility lines running through a liquefaction zone can be breached during an event, potentially leading to flooding or release of hazardous materials. 118 Fullerton, City of. Local Hazard Mitigation Plan. 2020. 57 • March 28, 2014. La Habra Earthquake. The La Habra earthquake was caused by oblique thrust faulting on the Coyote Hills segment of the Puente Hills Thrust Fault System. The Puente Hills Fault is a blind thrust fault that runs north and west from Orange County to Los Angeles. The earthquake caused a total of $10.8 million in damage in Orange County, with approximately $1.5 million in Fullerton.119 Thirteen water mains broke in Fullerton, forcing roughly 70 families to be displaced from their homes after they were declared temporarily uninhabitable.120
VULNERABILITY
Exposure
Figure 3-7: Liquefaction Susceptibility highlights areas with potential for liquefaction. The underlying dataset combine existing liquefaction areas from local maps and the National Earthquake Hazards Reduction Program which rates soils from hard to soft and known hydric soils from the United States Department of Agriculture Soil Survey to identify the potential areas where liquefaction may occur.
Figure 3-7: Liquefaction Susceptibility
119 Fullerton Observer. Mid-April 2014. North Fullerton Earthquake Damage. www.fullertonobserver.com 120 National Geophysical Data Center /World Data Service (NGDC/WDS) (1972), Significant Earthquake Database (Data Set), National Geophysical Data Center, NOAA, doi:10.7289/V5TD9V7K.
58 Table 3-14: Liquefaction Susceptibility – Vulnerable Populations compares the population within the High and Very High liquefaction hazard zones within the entire City population. Of special concern to the City is that almost 26.2 percent of households have at least one person aged 65 and over in addition to 26.1 percent of households with at least one person living with a disability. While the data may represent the same households, the number of individuals within the High and Very High liquefaction susceptibility zones should be of special concern for the City when preparing for emergency events including evacuation.
Table 3-14: Liquefaction Susceptibility – Vulnerable
Populations
High and
Very High
Liquefaction
City of
Fullerton
Total Population1 61,836 144,363
Percent of residents that are children (less than 10 years old)2 12.3% 10.6% Percent of households that have people 65+ years old 1 26.2% 28.2% Percentage of households with at least one person living with a disability1 26.1%
21.2%
Median age2 34.1 36.3
Total households1 19,257 48,739
Median household income2 $86,574 $96,047
Percent of rental households2 54.8% 49.7%
Percent of household income below poverty level 1 14.0% 11.2% Source: US Census Bureau, ACS 2017 - 20211, US Census Bureau 2020 Summary File 1, ESRI Forecasts 20232 Landslides
Landslides occur when earth on slopes becomes destabilized, typically after heavy rains, when the precipitation saturates the soil and makes it less stable, or when significant erosion from rainfall destabilizes the ground. Slopes that have recently burned face a greater risk from rain-induced landslides as the fires burn the trees, brush, and other vegetation that help stabilize the earth. In general, landslide hazard areas are where the land has characteristics that contribute to the risk of the downhill movement of material, such as the following:
• A slope greater than 33 percent.
• A history of landslide activity or movement during the last 10,000 years. • Stream or wave activity, which has caused erosion, undercut a bank, or cut into a bank to cause the surrounding land to be unstable.
• The presence of an alluvial fan (a triangle-shaped deposit of gravel, sand, and even smaller pieces of sediment, such as silt) indicates vulnerability to the flow of debris or sediments. • The presence of impermeable soils, such as silt or clay, which are mixed with granular soils such as sand and gravel.
Earthquakes may also be a source of landslides as the shaking can destabilize already loosened soils.
There is the potential for landslides in the steeper portions of the foothills of the City. These areas are characterized with steep topography and geologic units that can become unstable. Figure 3-8:
Earthquake Induced Landslide Zone identifies the areas of the City that are considered vulnerable to seismic induced landslides.
59 Figure 3-8: Earthquake Induced Landslide Zone
Sensitivity: Major Community Elements
Liquefaction and Landslides
As climate change is anticipated to change the usual precipitation patterns in Southern California, including the City, periods of both rain and drought are anticipated to become more intense and frequent. Therefore, climate change could, depending on the circumstances, increase the future risk of liquefaction in the region.
Critical Facilities and Infrastructure
During liquefaction events, the liquified soil can lose its stability which can cause damage to buildings and infrastructure built upon it. In severe cases, buildings may completely collapse. (See Figure 3-7:
Liquefaction Zones and Figure 3-8: Earthquake Induced Landslide Zone). • Roads—Access to major roads is crucial after a disaster event. Services and mobility may be disrupted during and following a liquefaction event. Sidewalks, roadways, and pipelines may become fractured and disjointed because of the liquefying soils. Roads and sidewalks may be usable in some form, but a severe liquefaction event may render them impassible until they are repaired. Landslides may block roadways causing long-term disruptions to the roadway network, infrastructure systems and City capabilities.
60 • Bridges — Earthquake shaking, liquefaction and landslides can significantly damage bridges, which often provide the only access to some neighborhoods. Since soft soil regions generally follow floodplain boundaries, those bridges that cross water courses are considered vulnerable. Key factors in the degree of vulnerability are the facility’s age and type of construction and soil classification at the bridge support structure, which indicate the standards to which the facility was built.
• Water and sewer infrastructure — Water and sewer infrastructure would likely suffer considerable damage in the event of an earthquake. This factor is difficult to analyze based on the vast amount of infrastructure in City and because water and sewer infrastructure are usually linear easements. Without further analysis of individual system components, it should be assumed that these systems are exposed to breakage and failure. Distribution systems with older brittle pipes are vulnerable to shaking and liquefaction. • Power Lines — Power lines are generally elevated above steep slopes but the towers supporting them can be subject to landslides. A landslide could trigger failure of the soil underneath a tower, causing it to collapse and rip down the lines.
According to the 2020 LHMP, a significant section of the lower southwest section of the city would be affected by liquefaction, potentially impacting 109 key facilities. As shown in Table 3-15: Key Facilities Threatened by Liquefaction, a seismic event could cause liquefaction that damages bridges, education facilities, utility infrastructure, and several other critical facilities and facilities of concern.
Table 3-15: Key Facilities Threatened by Liquefaction
Facility Type Critical Facility Facility of Concern Total Community Services 4 1 5
Education 0 14 14
Energy 2 0 2
Emergency Gathering Areas 3 0 3
Medical 0 7 7
Museum 1 0 1
Municipal Government 7 0 7
Transportation 54 0 54
Utility 1 0 1
Water and Sewage 15 0 15
Total 87 22 109
Source: Fullerton LHMP 2020
Hazardous Materials
Hazardous materials, including chemicals used as byproducts of industrial activities, natural gas and oil pipeline ruptures could be a significant threat to human and environmental health if they are not properly stored, managed, and contained. Oil and natural gas lines could rupture, exposing flammable or toxic chemicals. A short section of the Crimson Pipeline carries crude oil cuts through the northeast corner of Fullerton. In addition, several oil pipelines carrying crude oil and refined product run through La Habra, Brea, Anaheim, and Buena Park. SoCalGas also runs a subterranean natural gas pipeline through the middle of the city that nearly divides northern and southern Fullerton in half. Although pipeline failures are low-frequency events, they can have disastrous consequences. Ruptures could lead to fires and explosions that cause serious injuries or fatalities as well as environmental 61 contamination of waterways. Oil and gasoline could contaminate groundwater and lead to costly and multiyear cleanup efforts if released into waterways.
In addition, records from the Department of Toxic Substances Control have found harmful levels of toxic chemicals that have leached into the soil as a result of industrial activities. These chemicals can leach into the soil and potentially contaminate groundwater aquifers.121 Economic Elements
Homes, schools, and public facilities may be damaged and would likely be rendered unsafe for occupancy if they experience any leaning or structural damage resulting from the liquefaction or landslides. In addition to potentially causing significant injuries or fatalities, this can cause economic harm and create a need for long-term emergency sheltering and temporary housing until these buildings can be reconstructed.
In consideration of future degradation of structures, the City will want to monitor the quality of older housing stock to ensure it is still safe in a liquefaction event. The U. S. Department of Housing and Urban Development may consider units substandard if they were built before 1940. An estimated 46.8 percent of housing units within the City (approximately 49,000) were built before 1940. The median year structures were built was 1969.122
Natural Resource Areas
Earthquake-induced landslides in landslide-prone areas can significantly damage surrounding habitat.
It is also possible for streams to be rerouted after an earthquake. Rerouting can change the water quality, possibly damaging habitat and feeding areas. There is a possibility that streams fed by groundwater wells will dry up because of changes in underlying geology. Landslides could affect sensitive ecological areas around the community, causing localized harm to the region’s ecosystem, although widespread impacts are unlikely.
Sensitivity: Vulnerable Populations
Seismic shaking and fault rupture pose a significant threat to populations living or working near structures that are not retrofitted to withstand seismic activity. This could include lower-income households who are unable to afford the cost of seismically retrofitting their homes or renters living in substandard housing. Senior citizens (especially those living alone) and lower-income households could have more difficulty recovering from a seismic event that causes significant damage to their home. Households with residents aged 65 and older or have a disability, as there may exist challenges with mobility that may affect evacuation and response to a catastrophic event.
Adaptive Capacity
The City has addressed liquefaction and landslide events in planning documents such as Fullerton Local Hazard Mitigation Plan and other agency programs. Additionally, City plan check engineers utilize a City-wide GIS tool – the California Geological Survey’s Earthquake Zones of Required Investigation - that is a standard practice in line with the California Building code.123
121 Fullerton, City of. Local Hazard Mitigation Plan. 2020. 122 U.S. Census Bureau. American Community Survey. 2022 ACS 1-Year Estimates. 123 Correspondence with Taylor Samuelson, Senior Administrative Analyst City of Fullerton on January 31, 2024. 62 CHAPTER 4. CLIMATE ADAPTATION
FRAMEWORK
Preparing the City of Fullerton for the impacts of climate change requires significant investment in time and resources across all parts of the community, including businesses, health, emergency services, government, schools, infrastructure, culture, and natural resources. This chapter provides a list of general strategies and supporting actions the City of Fullerton can consider for future climate adaptation and resilience efforts. Actions are divided into climate hazard sections (and include a “City -wide” section), like the body of the Vulnerability Assessment as follows:
• Citywide
• Extreme Heat Events
• Drought
• Wildfire
• Flooding
• Liquefaction/Landslide
Development of climate adaptation strategies considered the following:
PLANNING AND COLLABORATION
The complexity and interconnectedness of climate change requires a significant investment in community engagement and education to increase awareness and resilience. In addition, land use, geography, and transportation network infrastructure necessitate comprehensive and multi - jurisdictional adaptation approaches and solutions in partnership with local, regional, and State partners. Programs that educate and inform residents, visitors, businesses, and local decision -makers can empower individuals to take actions to reduce risk for themselves. Programs that seek to bring community members together can create lasting connectivity among neighbors who can plan together to get out of harm’s way.
HEALTHY COMMUNITIES
Climate change can affect the health of residents, workers, and tourists . Impacts include respiratory impacts from smoke, heat -related illnesses, increasing allergies and asthma, food-borne and water - borne illnesses, and mental health impacts from extreme events. More frequent and severe storms, floods, heat waves, wildfires, and other extreme events create additional stresses to healthcare systems, employees, and infrastructure. Maintaining and improving physical and mental health should be a top priority.
As climate -related hazards are expected to worsen in coming decades, the community will need to increase their preparation, response, recovery, and mitigation efforts. The intent is to strengthen safety nets by expanding and strengthening community preparedness and resilience through collaboration, education, and lasting partnerships that emphasize community well-being.
CLIMATE EQUITY
As discussed in the Vulnerability Assessment, Climate change does not affect all residents evenly.
Climate hazards can disproportionately affect vulnerable populations that may have a more challenging 63 time responding to hazard events because of age, language barriers, income, housing, or other characteristics. To address these differences, climate adaptation actions were developed to address the specific needs of those most vulnerable to hazards.
EMERGENCY PREPAREDNESS
Emergency preparedness requires proactive planning, strong communication, and reliable and clear sources of information available through multiple channels. To minimize the impact of potential disasters for community members, the City plays a key role in making sure residents and visitors have the correct information about what to do and where to go in the event of a disaster. Individuals also have a responsibility in emergency preparedness, and should stay informed, prepare emergency kits, and otherwise ta ke precautions to minimize risk to themselves and their families. In addition, clear evacuation protocols, planning, and practice are crucial factors for community preparedness.
Future planning efforts should focus on regional connectivity and communication, engaging the right regional partners in evacuation planning, optimizing the City and Orange County evacuation protocols, and identifying key potential challenges in regional evacuations.
RESILIENT BUILDINGS
Fullerton d evelopment includes a mix of buildings, including master-planned communities and neighborhoods of single- and multi -family homes, along with commercial and industrial buildings .
Upgrades to business and residential structures to reduce fire -, flood-, geologic-, and seismic -related vulnerability can be combined with efforts to increase energy efficiency and reduce greenhouse gas emissions. Both objectives lead to meaningful climate action that saves money and improves quality of life for residents and promotes a sustainable economy.
RESILIENT INFRASTRUCTURE
Implementation and management of City infrastructure will determine how well it can protect residents and accommodate or mitigate future climate and extreme weather impacts. As the City does not directly own or operate all the critical infrastructure (e.g., electricity, water, or telecommunications), it must work directly with those companies , agencies, and organizations to enhance the resilience of those systems. Continuous investment in transportation infrastructure may be needed to facilitate mobility throughout the City in both everyday life and during an emergency.
RESILIENT ECOSYSTEMS
Natural systems provide valuable functions to both residents and visitors in the form of ecosystem services (water storage, etc.) within watersheds and open space s. Natural lands and open space are increasingly being affected by climate change and will need to be managed for continued natural function.
Notes on the Evaluation and Implementation of Climate Adaptation Actions As part of the adaptation assessment process, potentially relevant adaptation actions were collected through research of Fullerton planning documents (e.g., Local Hazard Mitigation Plan), other climate adaptation plans in the State of California, and from communities across the country . These actions were modified specifically for Fullerton and should be updated accordingly as adaptation planning and implementation processes progress.
64 Actions listed can be complementary, directly dependent on the implementation of another action (before or after), implemented in conjunction (or sequentially) with other actions, or mutually exclusive of one another.
Citywide Actions (CW)
CW-1: Prioritize climate change adaptation planning
• Continue to update the climate vulnerability assessment and Local Hazard Mitigation Plan (LHMP) as required by regulation to comprehensively plan for current and future natural and human -caused hazards within the City.
• Integrate climate science and projected climate-related impacts in all City planning documents, policies, programs, and ordinances as they are reviewed or updated. • Provide training for staff about the impacts of climate hazards as part of the Risk Management functions of the City.
• Continue to integrate mitigation actions from the current LHMP into major capital improvement projects planning and development, including the potential relocation of critical facilities.
CW-2: Partner with surrounding local, regional, State, and Federal partners to support social and economic resilience
• Coordinate with Orange County so mitigation actions in both the County’s and Fullerton’s hazard mitigation plans can lead to a more regionally unified hazard mitigation strategy. • Coordinate with surrounding municipalities and Orange County to enhance evacuation and emergency management protocols, agreements, and processes.
• Provide residents, businesses, and neighborhood organizations evacuation procedures and shelter -in- place guidelines to increase community resilience.
• Coordinate with regional health care facilities to ensure effective care for all City residents and visitors during an emergency.
• Create a rapid response plan from among Fullerton’s and Orange County’s first responders to secure hospital, nursing and assisted living facilities located within high hazard zones.
CW-3: Maintain City operations for community resilience • Install backup generators at key critical facilities (City Hall, Fire Stations, Police Stations, water pumps, etc.) in the event of power loss during an emergency. Install portable generators in City -owned water facilities.
• Maintain at least one emergency power-generating station in all critical facilities that the City could use as an emergency public assembly area, such as City Hall, Fullerton Public Library, and any others that the City may so designate in the future.
• Continue to designate, maintain, and promote to the community use of City Parks and Recreation facilities as emergency shelters.
CW-4: Strengthen community resilience through collaboration and education • Work with local community organizations to develop a climate change education outreach program focused on residents, especially environmental justice, LatinX, and other community organizations as they identify gaps in vulnerable community resilience planning and further engage vulnerable community members.
• Expand participation in the Fullerton Community Emergency Response Team (CERT) program for residents and businesses.
• Evaluate and enhance existing preparedness and evacuation programs to better educate, inform, and engage the public about emergency preparedness in the case of a disaster. • Identify gaps in current communication pathways to effectively notify the community of impending hazards (e.g., AlertOC, Fullerton School District website and Blackboard Connect) . 65 CW-5: Collaborate with local businesses on economic and community resilience • Work with local businesses and organizations to conduct regular workplace emergency preparedness drills, create or update disaster recovery plans, and ensure adequate evacuation planning is conducted. • Develop agreements with hotels to designate them as Red Cross facilities in case of an emergency.
CW-6: Collaborate with school districts to develop emergency preparedness programs • Explore agreements with local school districts so that school facilities can act as evacuation sites during major emergencies.
• Identify opportunities to use school facilities as evacuation centers, cooling centers, and charging stations, during extreme heat or severe weather events.
CW-7: Coordinate with regional and local transportation and transit agencies to ensure continued access and movement in the event of an emergency.
• Coordinate with Caltrans and Orange County Transit Authority to assess the vulnerability of transportation infrastructure and primary evacuation routes to hazardous climate-related events. • Develop smart transportation demand management systems to respond to increased volumes of traffic during an evacuation.
CW-8: Coordinate with regional utilities to enhance the preparedness, protection, and resilience of water, energy, and telecommunications infrastructure.
• Coordinate with regional utilities to assess the vulnerability of critical infrastructure to hazardous climate-related events and harden as necessary to reduce risk of breach.
Extreme Heat Events (EH)
EH-1: Prepare the community for extreme heat events
• Work with regional and local health agencies to evaluate extreme heat warning thresholds and protocols and incorporate enhanced extreme heat preparedness into local operations. • Establish a City-wide Heat Alert Program (HAP) when weather forecasts predict heat waves or extreme heat days.
• Educate vulnerable community members and their caregivers (e.g., aging, elderly, ill) to detect signs and symptoms of, and to prevent heat‐related illness. Emphasize the importance of immediate medical assistance for heat‐related illness.
EH-2: Develop facilities and resources to reduce the effects from extreme heat events • Expand number of publicly operated cooling centers based on the need of vulnerable populations. • Collaborate with local businesses and institutions to provide a “Cool Zone” area network (i.e., cooling centers).
• Develop a tree and shade master plan with a particular focus on climate resilient tree species.
Drought (D)
D-1: Collaborate with agency partners to prepare for future drought conditions • Collaborate with Orange County Water District and Federal, State, and local agencies to explore alternative sources and improve groundwater supplies, including groundwater recharge.
66 D-2: Develop and implement City-wide efforts to increase drought resilience • Continue to update and implement the Fullerton Water Shortage Contingency Plan. • Launch a pilot program with smart water meters to track water usage in commercial and industrial properties across the City.
• Promote nature-based methods and BMPs (e.g., bioswales, natural ground cover) through the City’s stormwater program.
• Continue to plan for, and respond to, incidents of tree mortality; drought resilience of public landscapes; and pest management concerns.
D-3: Promote community water conservation measures
• Support Orange County Water District in education and outreach efforts focused on water conservation measures (e.g., water reuse, water use, and irrigation efficiency) for City residents. • Encourage drought tolerant native landscaping, low-flow water fixtures, and apply daytime watering restrictions (as necessary) on properties throughout the city to reduce water consumption.
Wildfire (WF)
WF-1: Collaborate with regional partners to reduce the impacts from wildfire • Create and routinely update a Community Wildfire Protection Plan for fire prone areas within the city. • Promote and implement the Orange County Vegetation Management program to reduce wildfire risk.
WF-2: Implement actions to reduce flammable materials in wildfire zones • Update the Community Forest Master Plan, incorporating drought strategies and wildfire vulnerabilities into the planning framework.
• Remove highly flammable vegetation in fire prone areas and replant with fire-adapted specimens. • Create a hillside weed abatement pilot program using goats or other livestock to reduce fuel loads in fire-prone areas.
• Plant fire-resistant, drought-tolerant groundcover on slopes, inclines, and hillsides to reduce runoff and erosion during heavy rainfall.
WF-3: Educate the community about wildfire for improved public safety and resilience • Expand the fire hazard prevention awareness campaign to residents in the fire prone areas. • Support regional partners (e.g., Orange County Fire Authority’s Ready, Set, Go Program) in their efforts to educate residents about defensible space, vegetation management, and home hardening efforts.
Flood (F)
F-1: Coordinate with relevant agencies to better plan and prepare emergency services required for flooding events.
• Monitor stormwater management infrastructure and identify changes in flooding patterns and locations related to changing climatic conditions.
F-2: Develop or update long-term public works plans for critical facilities to address current and future flood risk. • Require that future transportation infrastructure projects consider current and future flood risk and align the projected lifespan of the project with best available science. • Explore and implement Low Impact Development (LID) standards for new development to reduce the amount of stormwater runoff.
• Draft an ecosystem restoration plan and upgrade of drainage systems in Gilman Park and other similar areas in Fullerton.
67 F-3: Educate the community about flooding for improved public safety and resilience • Implement an outreach program to increase the public awareness of flooding, stormwater management, and drought management issues and techniques for residents to mitigate those challenges on their property, including availability of flood insurance. • Partner with Orange County Public Works to proactively disseminate information from the “H2OC Stormwater Program” to educate home and small business owners on regulations and highlight the role that engaged residents can play to assist with community-based stormwater management.
F-4: Ensure resilience and long-term functionality of stormwater and sewer systems. • Update the City’s Drainage Area Master Plan on a regular basis to incorporate new data and/or address emerging issues.
• Conduct comprehensive visual and functional test monitoring and asset condition assessment. Model potential impacts to utility infrastructure under future flooding scenarios. • Conduct frequent cleanings of storm drain intakes, especially before and during the rainy season. • Create areas with permeable pavements and/or catchwater systems as an interim solution to flood control channel expansion.
Liquefaction and Landslide (L)
L-1: Coordinate with local and regional partners to prepare and respond to liquefaction and landslide events • Coordinate with Orange County Water District on subsidence monitoring in areas of active groundwater extraction and develop strategies based on the amount and severity of subsidence occurring. • Improve local understanding of the threat of a major earthquake by conducting a city -wide scenario modeling potential loss of life and injuries, destroyed and damaged structures, and interruptions to key services.
L-2: Educate the community about seismic and geologic events for improved public safety and resilience • Provide information to the community to prepare for, and recover from, a seismic or geologic event. • Promote retrofit of key community facilities not owned by the City.
L-3: Design facilities to be resilient to seismic and geologic events • Regularly update an inventory of buildings within the City that may be seismically vulnerable (adobe brick, unreinforced masonry, etc.)
• To the extent feasible, construct all new and significantly retrofitted City-owned facilities to remain operational in the event of a major earthquake.
• In coordination with Caltrans, update facilities condition assessments for bridges along evacuation routes to identify bridges that need seismic retrofitting. • Build retaining walls, install shotcrete, and drape catch-fall nets on slopes or areas where landslides are likely to occur on public property.
• Install water runoff catchment troughs to channelize and divert rainwater away from hillsides on public property.
LRP-2024-0008 – GENERAL PLAN AMENDMENTS – SAFETY ELEMENT
Attachment No. 1
Exhibit B
Goals 7, 12, 13, 18, 19, 20, 24 and 26 of The Fullerton Plan
1 GOAL 7:
Growth and development aligned
with infrastructure capabilities.
Region/Subregion Level
P7.1 Balanced Decision Making
Require that all new development and major
redevelopment have adequate infrastructure in
place to support daily demands and emergency
response capabilities.
A7.1(a)
Develop a program which evaluates the emergency
infrastructure capabilities of potential development
sites prior to issuance of construction permits.
City Level
P7.2 Housing Growth
Require that all new development and major
redevelopment be located in areas previously
identified as having adequate infrastructure
capacity to accommodate future housing
requirements. (See Chapter 2: Housing for related
policies.)
P7.2.1 Adequate Infrastructure
Require that new development and major
redevelopment are appropriate in scale to current
and planned infrastructure capabilities, if not,
require infrastructure upgrades are completed prior
to issuance of certificate of occupancy.
Neighborhood/District Level
P7.3 Infrastructure Planning
Ensure infrastructure meets current and future
daily demands and fire flow requirements while still
meeting desired neighborhood/district character.
P7.4 Focus Area Planning
Support projects, programs, policies, and
regulations to evaluate infrastructure capabilities as
part of community-based planning of Focus Areas.
Project Level
P7.5 Appropriate Development Scale
Support projects, programs, policies, and
regulations to ensure that development is
appropriate in scale to current and planned
infrastructure capabilities.
2 GOAL 12:
Proactively addressing public safety
concerns.
Region/Subregion Level
P12.1 Healthy Family Development
Support programs that strengthen regional
partnerships between public safety and human
services agencies to encourage strong family
relationships, reinforce healthy child development
and encourage lawful behavior.
P12.1.1 Encourage Regional Cooperation
Encourage regional partnerships and mutual aid
agreements between the City and other
agencies/entities, further strengthening
emergency response capabilities within the City
and region.
P12.2 Collaboration with Outside Agencies
Support regional and subregional efforts to prevent
violence, child abuse, sexual assault, domestic
violence, illegal use of firearms, violence
associated with substance abuse, crimes against
property and other similar issues.
P12.2.1 Fire Risk Reduction Coordination
Coordinate with local and regional agencies
(Fullerton Fire Department, Orange County Fire
Authority, Cal Trans, etc.) and require vegetation
management and long-term maintenance of fire
hazard reduction projects (including community
fire breaks) on all private and public roads and
properties in the WUI and in fire hazard severity
zones.
City Level
P12.3 Community Confidence Building
Support policies and programs that bolster
productive communication and problem solving
between public safety personnel and the
Fullerton community.
P12.3.1 Natural Hazards Education
Establish a public outreach education program
(with special attention to at risk populations)
which educates residents and businesses about
the natural hazards in Fullerton.
P12.3.2 Fire Risk Reduction Education
Educate residents (with special attention to at risk
populations) and businesses on the City's
vegetation management practices, including fire
safety, landscape installation and maintenance,
defensible space, and other fire hazard reduction
strategies.
P12.3.3 Evacuation Outreach/Education
Conduct public outreach and educational activities
associated with emergency evacuation routes and
procedures, prioritizing efforts towards at-risk
populations.
P12.3.4 Emergency Planning Outreach
Publicize and participate in disaster preparedness
exercises and distribute emergency planning
information to residents and business owners.
P12.4 Balance Safety Needs
Support policies, projects, programs, and
regulations that balance the need to reduce vehicle
accidents, injuries, and deaths through traffic
calming and street design with the need to
facilitate emergency response times.
P12.4.1 Street Name Regulations
Ensure street naming and numbering systems
adequately identify properties in compliance with
Fire Safe Regulations, adopted California Fire Code
(CFC), and local ordinances, to avoid potential
confusion for emergency response vehicles.
P12.4.2 Fire Regulations
Regularly re-evaluate specific fire hazard areas and
adopt reasonable safety standards covering such
elements as vegetation management around
homes, adequacy of existing and future water
supplies, fire flow tests, fire hydrants, routes or
throughways for fire equipment access, clarity of
addresses and street signs, and long-term
maintenance in compliance with Fire Safe
Regulations, adopted CFC, and local ordinances.
3 P12.4.3 Fire Hazard Reduction
Require all developments located in the WUI and
VHFHSZ to meet or exceed statewide Fire Safe
Regulations (title 14, CCR, division 1.5, chapter 7,
subchapter 2, articles 1-5 (commencing with
section 1270) (SRA Fire Safe Regulations) and title
14, CCR, division 1.5, chapter 7, subchapter 3,
article 3 (commencing with section 1299.01) (Fire
Hazard Reduction Around Buildings and Structures
Regulations)).
A 12.4.3 (a)
If proposed, ensure any fire breaks and other fire
defense improvements on public and private
property are adequately funded and maintained
in perpetuity in compliance with California Fire
Code and local adopted ordinances.
P12.4.4 Fire Regulation Coordination
Coordinate with the Fullerton Fire Department
and Orange County Fire Authority on the need for
additional fire prevention regulations for the built
out, populated areas of the City.
A12.4.4(a)
Design and ensure all private roads are
maintained to permit unrestricted emergency
equipment and personnel access in compliance
with the California Fire Code, and local
ordinances.
P12.5 Community Preservation
Support policies, programs and regulations
pertaining to proactive code enforcement methods
which reinforce the proper maintenance of
properties, buildings and landscapes, and
adherence to applicable regulations, while
discouraging conditions that foster vandalism and
more serious crime.
P12.6 Youth Community Safety Partnership
Support programs that involve young people in
discussions about crime and prevention, increase
youths’ attachment to the community, engage
youth in productive activities, and reinforce
success in education.
P12.7 Fire Code Amendments
Support policies, programs and regulations that
give the Fire Marshall flexibility to approve streets
and fire lanes with reduced clearance
requirements when other fire safety factors are
incorporated into the project (such as street
connectivity, traffic safety and the presence of
sprinkler systems).
P12.7.1 THIRA*
Support projects, programs, policies and
regulations that facilitate the preparation of a
THIRA (Threat and Hazard Identification Risk
Assessment) plan in accordance with FEMA
guidelines that allows Fullerton to plan for and
address the risks of human-caused hazards.
P12.7.2 Periodic Updates
Periodically update and incorporate the THIRA
into the Local Hazard Mitigation Plan (LHMP) and
Emergency Operations Plan (EOP) updates.
P12.7.3 Code Compliance
Require new developments and major remodels
or renovations to comply with the California
Building Code, California Fire Code, and local
adopted ordinances for construction and
adequacy of water flow and pressure,
ingress/egress, and other measures to ensure
adequate fire protection.
Neighborhood/District Level
P12.8 Airport Safety Standards
Support policies, projects, programs and
regulations that provide for safe and efficient
airport operations through compliance with the
Fullerton Municipal Airport (FMA) Master Plan and
the Airport Land Use Commission for Orange
County's Airport Environs Land Use Plan for FMA
and the Airport Environs Land Use Plan for
Heliports.
P12.9 Neighborhood Safety Strategy
Support policies, projects, programs and
regulations that strengthen partnerships and
community-based efforts, such as
Neighborhood Watch, to reduce crime through
prevention, education and enforcement, and
encourage communities to build block-by-block
networks to prevent crime, develop social ties
and solve common problems.
4 P12.10 Community Involvement in Crime
Prevention
Support policies and programs that involve the
community in supporting informal monitoring,
participating in legitimate activities and building a
sense of ownership and control over
neighborhoods.
P12.11 Public Safety in Focus Areas
Support projects, programs, policies and
regulations to proactively address public safety
concerns as part of community-based planning of
Focus Areas.
P12.11.1 Accessible Outreach Materials
Ensure that all emergency preparedness and
public safety educational materials are made
available in all relevant languages for the residents
of Fullerton, including English, Spanish, Tagalog,
Korean, and Chinese.
P12.12 Crime Prevention
Support policies, programs and regulations that
implement crime prevention strategies that have
demonstrated success, including Crime Prevention
Through Environmental Design (CPTED), Crime-
Free Multi-Housing, Business Watch;
Neighborhood Watch, iWatch and other similar
strategies.
P12.12.1 Emergency Response Capability
Maintain a high level of emergency response
capability.
A12.12.1(a)
Ensure annual budgeting cycles account for
current and future emergency service needs.
A12.12.1(b)
Periodically assess and update the City's priorities
for future emergency service needs.
P12.12.2 Maintenance and Training
Support enhancements to fire service through the
maintenance of fire equipment and the training of
fire personnel.
P12.12.3 Emergency Management Planning
Coordinate the City’s emergency management
planning with local jurisdictions and regional
agencies to anticipate cumulative impacts during
times of disaster.
Project Level
P12.13 Safety through Design
Support policies, projects, programs and
regulations that make crime prevention and the
maintenance of public safety service levels
considerations in design and management of
existing and new private and public spaces.
P12.14 Fire Protection Plans
Require fire protection plans (consistent with
requirements of the California Fire Code, including
a risk analysis, fire response capabilities, fire
safety requirements (defensible space,
infrastructure, and building ignition resistance),
mitigation measures and design considerations
for non-conforming fuel modifications, wildfire
education maintenance and limitations, and
evacuation plans for new development and major
remodels in Very High Fire Hazard Severity Zones
(VHFHSZ) and Wildland-Urban Interface (WUI)
areas designated by the City and CAL FIRE.
A12.14 (a)
Ensure fire protection plans developed during the
development review process address issues
associated with restricted and single points of
access, parking restrictions, and investigating the
feasibility of establishing special assessment
districts to improve road capacity and adequate
water supply.
5 GOAL 13:
Responsive to public safety needs.
Region/Subregion Level
P13.1 Inter-City Coordination
Support regional and subregional efforts to:
coordinate as appropriate Continuity of Operations
Plan, plans and procedures for Emergency
Operations Centers, and emergency response
training systems; maintain inter-agency and public
communications systems that will provide mutual
aid and be reliable during and following an
emergency; and, formulate definitive plans and
procedures for evacuation of hazard-prone areas
and high risk uses.
City Level
P13.2 Adequate Resources for Emergencies
Support policies and programs that ensure
adequate resources are available in all areas of the
City to respond to health, fire and police
emergencies.
A13.2 (a)
Ensure emergency personnel are included in the
development review process to ensure that new
development adequately addresses service levels,
security concerns, and safety.
P13.3 Disaster Hazard Reduction
Support policies, projects, programs and
regulations that reduce structural and
nonstructural hazards to life safety and
minimize property damage and resulting social,
cultural and economic dislocations resulting
from future disasters.
P13.4 Disaster Risk Reduction
Support programs that promote greater public
awareness of disaster risks, personal and business
risk reduction, and personal and neighborhood
emergency response.
P13.4.1 Post-Disaster Recovery
Expand and enhance the strategy for post-disaster
recovery that focuses on community resilience,
sustainability, and an evaluation for
redevelopment potential following a major
disaster.
P13.5 Community Emergency Preparedness
Support policies, programs and regulations that
ensure the City, its residents, businesses and
services are prepared for effective response and
recovery in the event of emergencies or disasters,
including the provision of information about the
current nature and extent of local safety hazards
and emergency plans, including evacuation plans
and procedures to accommodate special needs
populations. Information should be provided in
multiple languages to maximize understanding by
community members.
P13.5.1 Effective Evacuation
Require new development, redevelopments, and
major remodels ensure effective future
evacuations during emergencies by supporting
feasible enhancements to the City's evacuation
network and facilities.
P13.5.2 Minimum Emergency Access Points
Require all new developments and
redevelopments within fire hazard severity zones,
and the WUI, provide a minimum of two points of
access by means of public roads that can be used
for emergency vehicle response and evacuation
purposes, where practicable.
P13.5.3 Functionality in Hazardous Events
Maintain functionality, make improvements, and
expand the capacity, where feasible, of the existing
emergency evacuation routes within the City, taking
into account current and future natural and human
caused hazards.
P13.5.4 Community Outreach for Evacuation
Conduct public outreach and educational activities
associated with emergency evacuation routes and
procedures, prioritizing efforts towards at- risk
populations.
P13.5.5 Maintain Adequate Access
Ensure existing development in areas with
sufficient water supply infrastructure and
roadway capacity to maintain adequate
evacuation and emergency equipment access do
not degrade as a result of new development.
A13.5.5(a)
Identify the feasibility of constructing additional
emergency access improvements for existing
developments that do not meet minimum road
standards for emergency equipment, such as:
6 • Additional vehicle pullouts at key hillside
locations.
• Limiting or restricting on-street parking at key
hillside locations.
• Potential for construction of new or improved
emergency access routes.
• Roadside clearance improvements.
P13.5.6 Enhancing Evacuation
Require new development, redevelopment, and
major remodels ensure effective future
evacuations during emergencies by supporting
feasible enhancements to the City's evacuation
network and facilities.
P13.5.7 Emergency Evacuation Capacity
Maintain functionality, make improvements, and
expand the capacity, where feasible, of the
existing emergency evacuation routes within the
City, taking into account current and future
natural and human caused hazards.
P13.6 Inter-Department Coordination
Support policies and programs that improve the
coordination of disaster-related programs within
City departments.
P13.6.1 Mutual Aid Agreements
Expand or enhance mutual aid agreements to
further enhance City capabilities during an
emergency incident.
P13.7 New Technologies for Fire and Police
Services
Support policies, programs and regulations which
are based on research and evaluation and that
implement new technologies and methods to
improve the efficiency and effectiveness of fire
and police services.
P13.8 Staff Training on Structural Risks
Support programs for ongoing staff training
focused on the risks posed by older structures and
infrastructure, as well as how to reduce those
risks.
P13.8.1 Seismic Structures Compliance
Comply with State statutes and requirements
regarding the identification and retrofit of
seismically vulnerable structures.
P13.8.2 Retrofit Guidelines
Develop retrofit guidelines for existing non-
conforming properties to understand what
improvements may be necessary to comply with
the California Fire Code, local ordinances, and
best management practices.
A13.8.2 (a)
Create an inventory of all structures in the City
that do not meet current seismic and fire safety
standards.
A13.8.2 (b)
Create a retrofit incentive program to assist
property owners in bringing these buildings into
compliance.
P13.9 Nuisance Enforcement
Support policies, programs and regulations that
maintain or strengthen code enforcement as an
important tool to uphold community health,
safety and welfare consistent with the provisions
of the Fullerton Municipal Code.
P13.10 Community Education on Emergency
Preparedness
Support policies and programs to involve and
educate the Fullerton community in emergency
preparedness.
P13.11 Essential Facilities Location
Ensure new public/critical facilities (schools,
hospitals, fire stations, etc.) are not located in Fire Hazard Severity Zones to the greatest extent
feasible. If located in these areas, ensure full
compliance with California Fire Code and local
ordinance and adequate fire response and
evacuation capabilities are available.
7 GOAL 18:
Citizens that are actively involved in
shaping the community’s future and
overall quality of life.
P18.1 Regional Participation
Support programs that encourage local
participation in regional planning, decision-making
and activities that affect the City of Fullerton and
its residents.
P18.2 Multi-Jurisdiction Outreach Tools
Support regional and subregional efforts to develop
new outreach tools, such as a clearinghouse
feature on cities’ websites for use by other public
entities and regional agencies (such as school
districts, universities, neighborhood organizations,
transportation agencies, etc.) to post notices of
items under their jurisdiction.
City Level
P18.3 Opportunities for Community Involvement
Support policies, projects, programs and
regulations that maximize opportunities for public
participation in planning and decision-making
processes pertaining to community development
and design, including outreach to members of
underrepresented communities.
P18.4 Volunteerism and Civic Activities
Support policies and programs that support
opportunities for volunteerism and engagement of
community members in civic activities.
P18.5 Transparent Government
Support policies, programs and regulations that
maintain transparency in municipal operations and
decision-making by being clear about City
objectives and providing access to information,
City staff and decision makers.
P18.6 Accessible Participation
Support policies, projects, programs and
regulations that take all feasible steps to ensure
that everyone interested in participating in
community forums has the materials necessary to
contribute to informed decisions.
P18.7 Diverse Representation
Support policies and programs that facilitate full
representation of Fullerton’s diverse community on
City committees and commissions.
P18.8 Low- or No-Cost Meeting Facilities Support
policies and programs that provide and promote
opportunities for low- or no-cost meeting rooms in
City facilities for community groups and local
organizations as incentives for strengthening
community engagement.
P18.9 Youth Engagement
Support policies and programs that engage youth in
City governance through opportunities such as
internships and having youth representatives on
public bodies.
P18.10 Noticing
Support policies and programs to review and
update the City’s noticing requirements and
consider the use of websites, automatic telephone
calling systems, email distribution lists, text
messaging and other innovative features to provide
better access to information.
P18.11 Media
Support policies standardizing the issuance of
press releases for major planning efforts and
development projects in order to provide
information to the Fullerton community and to
encourage community involvement at workshops
and hearings.
P18.11.1 Fire Hazard Avoidance
Support fire prevention, public education, early
detection programs, and property inspections to
identify and avoid fire hazards.
A18.11.1(a)
Educate residents (with special attention to at risk
populations) and businesses on the City's
vegetation management practices, including fire
safety, landscaping installation and maintenance,
defensible space, and other fire hazard reduction
strategies.
8 Neighborhood/District Level
P18.12 Neighborhood Organizations and HOAs
Support policies and programs that encourage
neighborhood involvement by engaging
neighborhood organizations and homeowner
associations (HOAs) in projects affecting their
particular area.
P18.13 Self Reliance
Support policies programs and regulations that
strengthen the efforts of neighborhoods and
districts to become self-reliant when it comes to
solving area problems.
P18.14 Convenient Meetings
Support policies, projects, programs, and
regulations that uphold the scheduling of
community meetings at locations and times
convenient for community members desiring to
provide input.
Project Level
P18.15 Early Notification Opportunities
Support policies, programs and regulations that
maximize opportunities for early notification of
proposed projects, or projects/issues under
consideration, using the most current
technologies as they become available.
9 GOAL 19:
An adequate, safe, and reliable
water supply.
Region/Subregion Level
P19.1 Agency Coordination for Water Supplies
Support regional and subregional efforts to ensure
that an adequate water supply, including
groundwater, remains available.
P19.1.1 Adequate Infrastructure and Capacity
Ensure existing development in areas with
sufficient water supply infrastructure and roadway
capacity maintain adequate evacuation and
emergency equipment access so as not to degrade
as a result of new development.
P19.2 Conservation Efforts
Support regional and subregional efforts to
promote water efficiency and conservation.
P19.3 New Technologies
Support projects, programs, policies and
regulations to encourage the use of new
technologies which reduce water use.
P19.3.1 Regional Water Protection*
Support regional and subregional efforts to
safeguard water infrastructure and supply against
the treats of contamination or disruption from
disaster events of a regional or national scale, such
as terrorism, earthquakes, floods, geologic activity,
or other events as they arise.
P19.3.2 Climate Resilience in Water Supply*
Support regional and subregional efforts to adapt
current water supply practices in anticipation of
reduced water availability due to the effects of
climate change.
City Level
P19.4 Adequate Supply
Support projects, programs, policies and
regulations to maintain adequate quantities of
water, including groundwater, available to the City
now and in the future.
P19.4.1 Water Provider Coordination
Coordinate with water providers to maintain and
enhance water supply infrastructure to ensure
adequate supplies for existing and future daily
demands and firefighting suppression
requirements.
P19.5 Water Quality
Support projects, programs, policies and
regulations to ensure the quality of the water
supply.
P19.5.1 Water-saving Infrastructure*
Support projects, programs, policies, and
regulations that will lead to the capture, storage,
and re-use of rainwater in the city so as to reduce
Fullerton's dependence on external sources of
water.
Neighborhood/District Level
P19.6 Focus Area Planning
Support projects, programs, policies and
regulations to evaluate ways to conserve and
reduce water use as part of community-based
planning of Focus Areas.
Project Level
P19.7 Sustainable Water Practices in New
Development
Support projects, programs, policies and
regulations to encourage water efficient practices
in site and building design for private and public
projects.
10 GOAL 20:
A healthy watershed and clean
urban runoff.
Region/Subregion Level
P20.1 Regional Watersheds
Support regional and subregional efforts to support
functional and healthy watersheds.
P20.2 Urban Runoff Management
Support regional and subregional efforts to support
cleaner and reduced urban runoff.
City Level
P20.3 Product Handling and Disposal Impacts
Support projects, programs, policies and
regulations to reduce impacts to watersheds and
urban runoff from the improper handling and
disposal of commercial products.
P20.3.1 Natural Water System Integrity*
Support projects, programs, policies and
regulations that encourage the re-emergence of
natural watersheds throughout the city's extent.
Neighborhood/District Level
P20.4 Local Watersheds
Support projects, programs, policies and
regulations that support a functional and healthy
watershed within neighborhoods and districts.
P20.5 Water Quality of Focus Areas
Support projects, programs, policies and
regulations to encourage site and infrastructure
improvements within the City’s Focus Areas to
support cleaner and reduced urban runoff.
Project Level
P20.6 Construction Impacts
Support projects, programs, policies and
regulations to reduce impacts to watersheds and
urban runoff caused by private and public
construction projects.
P20.7 Development Impacts
Support projects, programs, policies and
regulations to reduce impacts to watersheds and
urban runoff caused by the design or operation of a
site or use.
P20.7.1 Incorporate Natural Water Systems in
Design Standards*
Support projects, programs, policies and
regulations that encourage the preservation of
natural creeks and waterways into new projects
and developments in Fullerton.
P20.7.2 Impact of New Development
To the greatest extent feasible, require that all new
development and major redevelopment activities,
do not impact natural drainage or increase
stormflows off the proposed project site.
11 GOAL 24:
Responsible management of open
spaces balanced with the healthy
functioning of environmental
systems.
Region/Subregion Level
P24.1 Management and Maintenance
Support projects, programs and policies to
coordinate with existing regional park districts, the
private sector and nonprofit institutions to manage
and maintain regional open spaces.
P24.2 Land Trusts
Support projects, programs and policies to
encourage the establishment of land trusts to help
preserve significant open space within the region.
City Level
P24.3 Access and Use of Open Space
Support projects, programs, policies and
regulations to increase access to and use of open
space resources while respecting the natural
environment.
P24.4 Accessibility for All
Support projects, programs, policies and
regulations to ensure that, when natural
topography allows, public open spaces are
accessible to people of all abilities.
P24.5 Long-Range Needs
Support projects, programs, policies and
regulations to preserve areas of open space
sufficient to meet the long-range needs of the City.
P24.6 Watershed Management
Support projects, programs, policies and
regulations to manage open space watersheds to
limit potential fire, flood, and erosion hazards.
P24.7 New Open Space
Support projects, programs, policies and
regulations to create open space as funding and
other opportunities become available.
P24.8 Open Space Maintenance
Ensure open space brush areas, susceptible to
wildfire risk, are adequately maintained in
accordance with the California Fire Code and local
adopted ordinances.
12 GOAL 26:
Protection of people, natural and
built environments and economy
from natural hazards.
Region/Subregion Level
P26.1 Regional Coordination
Support projects, programs, policies and
regulations to coordinate planning for and
response to natural disasters with other agencies
within the region.
P26.1.1 Mutual Aid
Encourage regional partnerships and mutual aid
agreements between the City and other
agencies/entities, further strengthening emergency
response capabilities within the City and region.
City Level
P26.2 Adequate Emergency Response
Infrastructure
Support projects, programs, policies and
regulations to prepare to respond to natural
disasters to the best of the City’s ability.
P26.2.1 Continual Efforts*
Support projects, programs, policies and
regulations to continually update and refine the
City's Safety Element, Local Hazard Mitigation
Plan, Emergency Operations Plan, and other plans
as staff may deem relevant with the latest
available information on hazards and disaster risk
in Fullerton.
P26.2.2 Reduce Development Risk
Encourage new development outside of the very
high fire hazard severity zone. If development is
proposed in the very high fire hazard severity
zone, require fire safe design (including but not
limited to; defensible space and home hardening)
and compliance with fire safe regulations,
adopted CFC, and local ordinances.
Neighborhood/District Level
P26.3 Focus Area Planning
Support projects, programs, policies and
regulations to consider natural hazard risks and
mitigation as part of community-based planning of
Focus Areas.
P26.3.1 Community Hazard Mapping*
Support projects, programs, policies and
regulations that help communities and residents of
neighborhood blocks understand what kinds of
hazards could occur in their area and which areas
are the most susceptible to fire, geologic, seismic,
and flooding hazards
P26.3.2 Public Availability of Mapping
Update mapping for natural hazards as new data
becomes available. Ensure that the most current
version of the mapping is made available in public
outreach materials.
Project Level
P26.4 Minimization of Development in High Risk
Areas
Support projects, programs, policies and
regulations to discourage or limit development
within areas that are vulnerable to natural
disasters, particularly in areas with recurring
damage and/or the presence of multiple natural
hazards.
P26.5 Hazard Specific Development Regulations
Support projects, programs, policies and
regulations to utilize hazard specific development
regulations to mitigate risks associated with
identified potential natural hazards, including
flooding, wildland fires, liquefaction, and
landslides when development does occur.
P26.6 Enhance Fire Protection
Require new development to incorporate design
measures that enhance fire protection in areas of
elevated fire risk (including the WUI and Fire
Hazard Severity Zones). This shall include but is
not limited to the incorporation of fire-resistant
structural design, use of fire-resistant landscaping,
home hardening, defensible space and vegetation
management around the perimeter of structures.
GOAL 26 (a):
A community prepared for future
climate related impacts.
P26.7 Collaborate on Resilience
Collaborate with local, regional, state, and/or
federal jurisdictions and agencies on climate
resiliency and adaptation strategies in the City.
13 P26.8 Monitor Changes
Monitor climate change-related effects with local,
regional, state, and/or federal partners to provide
information about the effectiveness of existing
infrastructure and programs within the City.
P26.9 Monitor Indicators
Coordinate with regional, state, and federal
agencies to monitor the indicators and impacts of
climate change as they relate to the City.
P26.10 Update City Plans
Monitor and periodically update the Fullerton
Climate Action Plan, The Fullerton Green Project,
Sustainable Fullerton, and the Fullerton Local
Hazard Mitigation Plan as required to include the
most up to date climate adaptation mapping and
information.
LRP-2024-0008 – GENERAL PLAN AMENDMENTS – SAFETY ELEMENT
Attachment No. 2
Public Comments
CAUTION: BE CAREFUL WITH THIS MESSAGE
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From:
To: Chris Schaefer
Subject: [EXTERNAL MAIL]Comments on the Draft Public Safety Element Date: Tuesday, December 31, 2024 10:18:13 PM
Attachments: NFPA_1710_Fact_Sheet.pdf
Jane Reifer
December 31, 2024
Chris Schaefer, AICP, Planning Manager
City of Fullerton Community and Economic Development
303 W. Commonwealth Ave.
Fullerton, CA 92832-1775
Subject: Comments on the Draft Public Safety Element
Dear Mr. Schaefer,
I appreciate the opportunity to provide feedback on the Draft Public Safety Element of the Fullerton General Plan. Since there was no time stated, I’m assuming it’s acceptable to be submitting these comments up until midnight of December 31st. These comments will assume not just the City’s current population, but the population induced by the city’s General Plan (the “Fullerton Plan”) buildout and our new RHNA requirements of 13,209 housing units which exceed our 2012 General Plan’s stated buildout numbers. Below, I outline several concerns, omissions, and inconsistencies within the current draft that should be addressed to enhance public safety and align policies with measurable and enforceable standards. This letter includes an introduction summarizing key issues, a goal-by- goal evaluation with current and proposed language, a rationale for each proposed change, and a summary table categorizing goals by deficiencies in metrics, time periods, or enforcement mechanisms.
I would like to request again that all City document revisions, updates, and drafts include redlining of comments. It is a courtesy to the public and decisionmakers to include this format so distinctions between old and new can easily be made. The Goals section of the revision did include some distinctions as to which were new goals, but there was no basic original document included. it was a little confusing with no redlined, change-tracking format, to understand how revisions affect the base document, since there are several aspects to the Public Safety Element due to this information on page 71 of the actual, current Public Safety Element: The City of Fullerton Local Hazard Mitigation Plan (LHMP) has been adopted as part of The Fullerton Plan Safety Element. The Safety Element is divided into two chapters of The Fullerton Plan: Natural Hazards (Chapter 21) [sic] and Public Safety (Chapter 10) with additional policies in Public Health (Chapter 11), Water (Chapter 16), Air Quality and Climate Change (Chapter 17), Integrated Waste Management (Chapter 18), and Natural Hazards (Chapter 20).
It would also be helpful to include links to a list of highly relevant documents (in this case, the original Public Safety Element (
https://www.cityoffullerton.com/home/showpublisheddocument/1051/637436165080870000), the Natural Hazards Element, the Local Hazard Mitigation Plan, The Emergency Operations Plan, the Fullerton Plan Final EIR, the Orange County and Orange County Fire Authority Local Hazard Mitigation Plan
(https://www.ocsheriff.gov/commands-divisions/investigations-special-operations- command/emergency-management/hazard-mitigation), and the Orange County Transportation Authority (OCTA) Hazard Mitigation Plan (https://www.octa.net/programs-projects/programs/plans-and-studies/completed-studies/hazard-mitigation-plan/).
I did not have time to correlate all suggestions to the goals proposed, so additional miscellaneous comments will appear at the end.
Introduction
The Revised Safety Element demonstrates the City’s commitment to public safety but contains several areas requiring clarification and improvement. Key issues identified include:
1. Undefined Metrics: Terms like "Adequate," "high level," and "meets current and future demand" lack objective definitions, leading to potential inconsistencies.
2. Undefined Time Periods: Goals referencing evaluations, assessments, or updates (e.g., “regularly” or “periodically”) fail to specify maximum intervals.
3. Enforcement Mechanisms: Many goals are aspirational and lack actionable steps or consequences for non-compliance.
Definition of "Adequate"
Adequate
: The term "Adequate" shall be defined as meeting established performance standards for emergency services, including response times, incident counts, and other relevant metrics aligned with NFPA 1710 for fire services, IACP benchmarks for police, and infrastructure sufficiency to maintain service levels. Infrastructure and services shall be presumed inadequate until demonstrated otherwise through formal evaluation and compliance with these standards.
Definition of "Monitoring"
Monitoring: The term “Monitoring” means the continuous, real-time evaluation of emergency services performance and infrastructure capacity through dispatch data and other relevant systems to ensure compliance with Adequate standards. Monitoring shall inform
hazard mitigation strategies and support dynamic adjustments to maintain public safety.
Goal-by-Goal Evaluation with Proposed Revisions and Rationale
P7.1 Balanced Decision Making
Current Language: Require that all new development and major redevelopment have adequate infrastructure in place to support daily demands and emergency response capabilities.
Proposed Language: Require that all new development and major redevelopment demonstrate Adequate infrastructure as defined above to support daily demands and emergency response capabilities.
Rationale: This revision clarifies that infrastructure must meet objective adequacy standards before projects proceed, ensuring that public safety is not compromised.
A7.1(a)
Current Language: Develop a program which evaluates the emergency infrastructure capabilities of potential development sites prior to issuance of construction permits.
Proposed Language: Develop and implement a program that requires the actual evaluation of emergency services adequacy for potential development sites. No project applications may be approved unless services are demonstrated to be Adequate as defined above.
Rationale: Ensures that evaluation of adequacy is not limited to program creation but mandates actionable assessments before project approval.
P7.2 Housing Growth
Current Language: Require that all new development and major redevelopment be located in areas previously identified as having adequate infrastructure capacity to accommodate future housing requirements.
Proposed Language: Require that all new development and major redevelopment demonstrate Adequate infrastructure capacity as defined above, assessed within 12 months prior to permit application, to support future housing requirements.
Rationale: Introduces a time frame for assessments, ensuring infrastructure evaluations reflect current conditions and demands.
P7.2.1 Adequate Infrastructure
Current Language: Require that new development and major redevelopment are appropriate in scale to current and planned infrastructure capabilities, if not, require infrastructure upgrades are completed prior to issuance of certificate of occupancy.
Proposed Language: Require that new development and major redevelopment are appropriate and are placed in areas with Adequate infrastructure capabilities. If not, require infrastructure upgrades are completed prior to issuance of certificate of occupancy.
Rationale: Makes use of the defined term "Adequate." While developers are not required to pay for upgrades under Propositions 218 and 26, they may choose to do so if their development is in an area with inadequate public safety infrastructure. Aligns developer contributions with legal constraints while ensuring infrastructure adequacy is not compromised.
P7.3 Infrastructure Planning
Current Language: Ensure infrastructure meets current and future daily demands and fire flow requirements while still meeting desired neighborhood/district character.
Proposed Language: Ensure emergency services and infrastructure are Adequate as defined above to meet current and future demands while maintaining neighborhood/district character.
Rationale: Standardizes the use of "Adequate" as defined, improving clarity and consistency across goals.
P12.4.2 Fire Regulations
Current Language: Regularly re-evaluate specific fire hazard areas to determine the effectiveness of existing hazard mitigation strategies.
Proposed Language: Use Monitoring as described above to determine the effectiveness of existing hazard mitigation strategies.
Rationale: Continuous Monitoring allows for dynamic adjustments to hazard mitigation, ensuring proactive rather than reactive safety measures.
P12.12.1 Emergency Response Capability
Current Language: Maintain a high level of emergency response capability.
Proposed Language: Maintain Adequate emergency response capability.
Rationale: Provides an objective standard for evaluating emergency response capabilities.
P13 Transparency in Metrics
Current Language: None.
Proposed Language: Develop and implement real-time metrics updates through data streams provided by dispatch systems.
Metrics must be publicly accessible in real-time to ensure transparency and continuous improvement.
Rationale: Real-time metrics enhance public accountability and facilitate continuous system improvements.
P13.11 Essential Facilities Location
Current Language: Ensure new public/critical facilities (schools, hospitals, fire stations, etc.) are not located in Fire Hazard Severity Zones to the greatest extent feasible. If located in these areas, ensure full compliance with California Fire Code and local ordinance and adequate fire response and evacuation capabilities are available.
Proposed Language: Ensure new public/critical facilities (schools, hospitals, fire stations, etc.) are not located in Fire Hazard Severity Zones to the greatest extent feasible. If located in these areas, ensure full compliance with California Fire Code and local ordinance and adequate fire response and evacuation capabilities are available. Further ensure that facility upgrades and placement of new facilities respects existing and future historic designations.
Rationale: Adds protection for historic facilities while public safety measures are met.
Summary
The purpose of these recommendations is to ensure that Fullerton remains a safer city by implementing metrics that are presumed inadequate until proven otherwise. Immediate funding for real-time metric monitoring systems is urged.
Additional Recommendations
1 - List of Goals Requiring Future Actions:
Goals that call for evaluations, assessments, or program implementation should be clearly identified and tracked.
2 - Enforceability of Goals:
Enact ordinances and allocate funding to operationalize goals.
3 - Wildfire Preparedness:
Extend fire-resistant construction and landscaping standards citywide.
4 - Communications Inclusion:
To include all communities in emergency communications special efforts should be made to include renters who often don’t receive notices that go to property owners. Please see my several submissions on this in the past.
5 - Dam Inundation Issues:
Fullerton’s Brea Saddle Dike Dam and Brea’s 30 MG Central Reservoir don’t seem to be mentioned in the LHMP but the City is definitely in the inundation zone for these two. Here are 3 snippets form articles:
Brea Dam Overtopping
On February 22, 2005, the Brea Dam failed following a large rain storm. An extended period of very wet weather dumped more than 6.8 inches……..The dam was overtopped, flooding the Fullerton Golf Course and Bastanchury Road.
Prado Dam rated a ‘high urgency’ risk after spillway problems discovered Federal officials are working urgently to strengthen the spillway at Prado Dam near Corona to prevent it from failing in a major flood, which could imperil hundreds of thousands of people living downstream in Orange County. After a May inspection determined the dam’s spillway could perform poorly in a major flood, the dam’s risk rating was changed from “moderate urgency” to “high urgency.” Dena O’Dell, a U.S. Army Corps of Engineers spokeswoman, said Thursday, May 16, that the agency is taking immediate measures to reduce the risk that the spillway will fail.
And she said the agency was preparing to launch a project in 2021 to bolster the spillway and raise it 20 feet…..
Prado Dam Forecast Informed Reservoir Operations Preliminary Viability Assessment. UC San Diego.
Ralph, F. M., Woodside, G., Anderson, M., Cleary-Rose, K., Haynes, A., Jasperse, J., Sweeten, J., Talbot, C., Tyler, J., Vermaelen, R. (2021). Retrieved from https://escholarship.org/uc/item/13091539
2.6.1 Existing Spillway at Elevation 543 Feet
…..an updated independent analysis of the existing conditions at Prado Dam and Reservoir (i.e., raised embankment, new outlet works, unraised spillway) must be completed to assess the level of protection this project can provide at present. In addition, the existing spillway has structural deficiencies that were identified during the dam safety assessment in October 2019. Discharge from the dam, as the reservoir elevation rises toward the existing spillway crest, may be maximized up to 30,000 cfs to prevent spillway flow, or to limit its magnitude and duration. Currently, USACE is working to have an interim risk reduction measure in place to address the existing spillway deficiencies.
Although it seems as though the increase in urgency designation may have been due to the large potential population impact rather than actual safety risk, the intensity of atmospheric rivers seems to be increasing, and warrants a few phone calls e-mails to the several dam operators (ACE, OCWD) for current status. It is unclear whether the local warning system was ever activated. Dam alert information in old dam control manuals do not seem to be updated. Lastly, where the report lists “Exhibit 29 Dam Inundation Risks in The Fullerton Plan (page 213)”, the link is missing.
6 - Other Waterway Risks:
Fullerton Creek, a major Fullerton waterway is missing from most of the maps. Tri-City Park does not seem to be included with its large water features. The 9-acre Placentia Retarding Basin just outside the city limits is not on all maps although several other basins farther outside the City are listed. Other water features just outside the city that are not always noted: Lakeside Lake – 8 acres, Ralph Clark Park Lake – 3 acres, Raymond Basin -19 acres, Orange County Reservoir, Humble Reservoir.
7 - Evacuation Constraints:
Address constrained evacuation routes through specific policies, such as widening roadways or improving access points.
8 - Better Evacuation Planning Needed for Limited Mobility Populations:
People needing emergency evacuations include non-driving populations: youth, poor, elderly blind or disabled, non-car owning, suspended licenses. These are actually a significant part of the population and unique plans need to be devised to accommodate them in emergencies. Constrained roadways and parcel groups of concern are highlighted but don’t call out these populations.
Perhaps census areas where people don’t own cars can be added. The City should partner with OCTA well in advance of any emergency to make sure that solutions for these populations are robust and Adequate. General Plan Fair Share Policy P514 should be enhanced so bus, bike and pedestrian facilities are Adequate.
Transportation systems on p. 27 do not mention bus, rail bike and pedestrian and shared ride service (Lyft, Uber) transportation at all.
P 15 of the Climate Vulnerability Assessment mentions transportation systems assuming most people will evacuate by arterial highways. It does mention OCTA buses but provides no plan or reference to a plan for OCTA’s service during emergencies or bus strikes. It also neglects to mention the City’s 2 major bus stations – the Fullerton Transportation Center (FTC) and the Fullerton Park n Ride. The city’s 2 taxi stands at FTC and possibly still at the Marriot Hotel are not referenced. Neither is there a map showing bus routes by weekday, Saturdays, and Sundays + holidays which have different spans of service. shared ride service (Lyft, Uber) is not mentioned but are a lifeline for many without cars. Bike routes and sidewalk shortfalls are also not addressed.
CW-7 should be enhanced to include non-driving populations:
CW-7: Coordinate with regional and local transportation and transit agencies to ensure continued access and movement in the event of an emergency.
• Coordinate with Caltrans and Orange County Transit Authority to assess the vulnerability of transportation infrastructure and primary evacuation routes to hazardous climate-related events
9 - Weather Extremes:
Cold weather shelters should be addressed. EH-2 should be enhanced to add trees and other cooling elements to vulnerable communities: EH-2: Develop facilities and resources to reduce the effects from extreme heat events
10 - Police and Fire Response Times:
Taller buildings increase police and fire response time as well as add to cost. A full discussion of this should be done. My understanding from Appendix D during the HIOZ process was that the City’s fire response times are already below Adequate.
Attached to this e-mail is a summary of NFPA 1710.
11 – Asbestos and Lead:
I would like to see a policy regulating Police and Fire use of buildings with Asbestos-Containing Materials (ACM) and Lead- Containing Materials (LCM) that currently are used as practice areas with no guidelines for remediation. These often cause an unintentional violation of environmental mitigations. Also, a program should call out the asbestos siding on many historic-age houses and possibly provide assistance with safe removal.
12 - Sewer and Industrial Wastewater Issues:
Would like to see Sewer called out in the Lifeline Utilities section rather than embedded in the Water section. OC Sanitation’s cooperation in this, as well as wastewater.
13 - Oil Spills and Pipelines:
Please address oil spills and pipeline disruptions more clearly, not just oil and gas pipelines but also industrial wastewater and sewer.
P. 16 mentions no major pipelines through Fullerton, but I don’t believe that’s the case.
14 - Water Quality Issues:
Much of Fullerton in is a toxic plume area. This should be highlighted as there could be additional groundwater threats and drinking water contaminants.
15 - Sensitive Receptors:
Please address the situation that the new Housing Incentive Overlay Zone will now have residential units with sensitive receptors much closer to industrial pollution. Please see my other comments on this issue. Please add a goal mandating Health Risk Assessments for sensitive receptors as appropriate. City environmental documents often skip this requirement.
16 - Tree Risks:
Address tree falling risk safety as a part of the Safety Element. Current “topping” practices and watering the base of trunks have increased this risk in the past decade.
17 - Natural Resources Impacts:
p. 29 Natural Resource areas – Impact on Fullerton’s unusual array of native bees and pollinators should be added.
18 - Rail Inclusion:
Hazardous material risk on. P 16 should include rail and rail lines should be added to all areas of the document discussing hazardous materials transportation.
19 - Air Safety:
Address the major increase that helicopter commuting services will have on public safety.
20 - Fireworks:
It would be helpful to mention the City’s fireworks restrictions in this document.
Conclusion
While the Revised Safety Element includes commendable goals and policies, addressing the issues outlined above will significantly enhance its effectiveness. Defining metrics, clarifying ambiguities, and ensuring enforceability are critical steps to achieving meaningful public safety improvements. I urge the City to incorporate these recommendations into the final Safety Element.
Thank you for your consideration. I am available to discuss these comments further at your convenience.
Sincerely,
Jane Reifer
LRP-2024-0008 – GENERAL PLAN AMENDMENTS – SAFETY ELEMENT
Attachment No. 3
Responses to Public Comments
The following comments received on the Fullerton General Plan Safety Element have been reviewed by staff and responses/ suggestions have been identified for Planning Commission / City Council review and direction.
Comment Provided City Response
Undefined Metrics: Terms like "Adequate," "high
level," and "meets current and future demand" lack
objective definitions,
leading to potential inconsistencies.
2. Undefined Time Periods: Goals referencing
evaluations, assessments, or updates (e.g.,
“regularly” or “periodically”) fail to
specify maximum intervals.
3. Enforcement Mechanisms: Many goals are
aspirational and lack actionable steps or
consequences for non-compliance.
Regarding the definition for Adequate – see below
Regarding the definition for Monitoring – see below
Regarding enforcement mechanisms, the commenter indicates that many of the goals are aspirational.
That is by design. This is a long term document that is typically looking out 20 years to guide future development. Goals are typically very high level, while policies, and actions provide more detail and clarity on community priorities. All of the information from the general plan typically supports the regulations and standards located in the City’ Municipal Code, which is the set of rules and regulations that are used by the City to determine compliance and potential consequences associated with non-compliance.
Commenter requested a definition for the term
Adequate. The definition provided below was
suggested:
The term "Adequate" shall be defined as meeting
established performance standards for emergency
services, including response times, incident counts,
and other relevant metrics aligned with NFPA 1710
for fire services, IACP benchmarks for police, and
infrastructure sufficiency to maintain service levels.
Infrastructure and services shall be presumed
inadequate until demonstrated otherwise through
formal evaluation and compliance with these
standards.
While this definition seems appropriate, applying this definition in a general plan document may not be appropriate. Determining the adequacy of city services or infrastructure capacity should rely on objective criteria and processes, however these should exist outside of the general plan as City standards, protocols, and best practices. Incorporate these types of standards into a general is a level of detail that is outside the normal scope for this type of policy document and could impact City staff’s ability to effectively address community needs. General Plans are typically long term documents that should not include data and information that needs to frequently updated. Inclusion of this type of data/ information would increase City staff workload unnecessarily.
Commenter requested a definition for the term
Monitoring. The definition provided below was
suggested:
While this definition seems appropriate, applying this definition in a general plan document may not be appropriate. Real time evaluation or emergency services performance and infrastructure capacity is generally best suited for dynamic documents like annual budgets/workplans, strategic department plans,
The term “Monitoring” means the continuous, real-
time evaluation of emergency services performance
and infrastructure capacity through dispatch data
and other relevant systems to ensure compliance
with Adequate standards. Monitoring shall inform
hazard mitigation strategies and support dynamic
adjustments to maintain public safety.
or master plans that are not governed by General Plan requirements. General Plans are typically long term documents that should not include data and information that needs to frequently updated. Inclusion of this type of data/ information would increase City staff workload unnecessarily.
In addition to the general comments, the following comments on goals and policies were provided:
General Plan Goal Current Language Proposed Language / Rationale City Response P7.1, Balanced
Decision Making
Require that all new development and major
redevelopment have adequate infrastructure
in place to support daily demands and
emergency response capabilities.
Require that all new development and major
redevelopment demonstrate Adequate
infrastructure as defined above to support
daily demands and emergency response
capabilities.
This revision clarifies that infrastructure must
meet objective adequacy standards before
projects proceed, ensuring that public safety
is not compromised.
This policy language has been reviewed and
approved by Cal FIRE.
The modified language proposed relies on a
definition that would need to be approved by
City Council. While the current language
allows for the same result, there is flexibility
in what the City deems adequate with this
language versus the proposed language.
General Plan Goal Current Language Proposed Language / Rationale City Response A7.1(a)
Develop a program which evaluates the
emergency infrastructure capabilities of
potential development sites prior to issuance
of construction permits.
Develop and implement a program that
requires the actual evaluation of emergency
services adequacy for potential development
sites. No project applications may be
approved unless services are demonstrated
to be Adequate as defined above.
Ensures that evaluation of adequacy is not
limited to program creation but mandates
actionable assessments before
project approval.
This policy language has been reviewed and
approved by Cal FIRE.
The language proposed could create
inconsistencies or potential conflicts with
other goals, policies, and actions. Policy P7.1
already requires that all new developments
and major redevelopments have adequate
infrastructure in place. This action as
originally written triggers the assessment of
infrastructure prior to issuance of
construction permits.
P7.2, Housing
Growth
Require that all new development and major
redevelopment be located in areas
previously identified as having adequate
infrastructure capacity to accommodate
future housing requirements.
Require that all new development and major
redevelopment demonstrate Adequate
infrastructure capacity as defined above,
assessed within 12 months prior to permit
application, to support future housing
requirements.
Introduces a time frame for assessments,
ensuring infrastructure evaluations reflect
current conditions and
demands.
This policy language has been reviewed and
approved by Cal FIRE.
See City Response 1 (above). Given that any
significant (re)development may take several
years to build, it should be adequate to show
that any needed infrastructure or service
expansion can be budgeted and carried out
during the construction phase of the
(re)development.
It's unlikely that any City area will have
plentiful excess infrastructure or service
capacity to support development five to ten
years hence.
General Plan Goal Current Language Proposed Language / Rationale City Response P7.2.1, Adequate
Infrastructure
Require that new development and major
redevelopment are appropriate in scale to
current and planned infrastructure
capabilities, if not, require infrastructure
upgrades are completed prior to issuance of
certificate of occupancy.
Require that new development and major
redevelopment are appropriate and are
placed in areas with Adequate infrastructure
capabilities. If not, require infrastructure
upgrades are completed prior to issuance of
certificate of occupancy.
Makes use of the defined term "Adequate."
While developers are not required to pay for
upgrades under Propositions 218 and 26,
they may choose to do so if their
development is in an area with inadequate
public safety infrastructure. Aligns developer
contributions with legal constraints while
ensuring infrastructure adequacy is not
compromised.
This policy language has been reviewed and
approved by Cal FIRE.
Requiring infrastructure or service upgrades
to be completed prior to issuing certificates of
occupancy is more realistic than requiring
them to be finished before issuing building
permits. However, using the proposed
definition of “adequate” limits development to
areas that already have excess capacity,
which is unlikely to be found.
P7.3,
Infrastructure
Planning
Ensure infrastructure meets current and
future daily demands and fire flow
requirements while still meeting desired
neighborhood/district character.
Ensure emergency services and
infrastructure are Adequate as defined above
to meet current and future demands while
maintaining neighborhood/district character.
Standardizes the use of "Adequate" as
defined, improving clarity and consistency
across goals.
This policy language has been reviewed and
approved by Cal FIRE.
See City Response 1 (above). The proposed
definition of “adequate” is backward-looking
and does not take into account changes in
conditions, standards, technology, or
capabilities.
General Plan Goal Current Language Proposed Language / Rationale City Response P12.4.2, Fire
Regulations
Regularly re-evaluate specific fire hazard
areas to determine the effectiveness of
existing hazard mitigation strategies.
Use Monitoring as described above to
determine the effectiveness of existing
hazard mitigation strategies.
Continuous Monitoring allows for dynamic
adjustments to hazard mitigation, ensuring
proactive rather than reactive
safety measures.
This policy language has been reviewed and
approved by Cal FIRE.
Incorporating monitoring into this policy
would not be appropriate as that term is
typically reserved for an action. If City
Council would like to create an action
regarding monitoring this could be
incorporated into the element, if desired.
P12.12.1,
Emergency
Response
Capability
Maintain a high level of emergency response
capability.
Maintain Adequate emergency response
capability.
Provides an objective standard for evaluating
emergency response capabilities.
This policy language has been reviewed and
approved by Cal FIRE. Modifications to the
language can be undertaken by City Council
if deemed necessary or desired.
P13,
Transparency in
Metrics
None
Develop and implement real-time metrics
updates through data streams provided by
dispatch systems. Metrics must be publicly
accessible in real-time to ensure
transparency and continuous improvement.
Real-time metrics enhance public
accountability and facilitate continuous
system improvements.
This proposal severely overestimates the
amount of data available from dispatch
systems, as well as their ability to produce in
real time data that’s meaningful to the public
at large.
In addition, this type of data and information
is not appropriate for a planning document
that supports community development over a
long time horizon (20 years). A more
appropriate location for this type of
information would be Department Strategic
Plans/ Work Programs.
General Plan Goal Current Language Proposed Language / Rationale City Response P13.11, Essential
Facilities Location
Ensure new public/critical facilities (schools,
hospitals, fire stations, etc.) are not located in
Fire Hazard Severity Zones to the greatest
extent feasible. If located in these areas,
ensure full compliance with California Fire
Code and local ordinance and adequate fire
response and evacuation capabilities are
available.
Ensure new public/critical facilities (schools,
hospitals, fire stations, etc.) are not located in
Fire Hazard Severity Zones to the greatest
extent feasible. If located in these areas,
ensure full compliance with California Fire
Code and local ordinance and adequate fire
response and evacuation capabilities are
available. Further ensure that facility
upgrades and placement of new facilities
respects existing and future historic
designations.
Adds protection for historic facilities while
public safety measures are met.
The intent of this policy is to ensure new City
facilities are located outside of high hazard
areas wherever feasible. The policy
proposed has been reviewed and approved
by Cal FIRE and the additional language
proposed does not enhance this policy.
Inclusion of this language could further
complicate the City’s ability to effectively site
new facilities and introduces a requirement
that may already be addressed by existing
city policies and regulations in Chapter 1 of
the Fullerton Plan.
Additional Recommendations
Recommendation Title Comment City Response
1. List of Goals
Requiring Future Actions
Goals that call for evaluations, assessments, or program implementation should be clearly identified and tracked.
The City relies on the General Plan Implementation Program to monitor goals, policies, and actions. This program allows City staff to set priorities, monitor implementation progress, and develop annual work programs and the necessary budgets to implement the actions out of the general plan.
2. Enforceability of
Goals Enact ordinances and allocate funding to operationalize goals.
Based on the goals, policies, and actions adopted in the General Plan, the City Council has the ability to decide which priorities received funding and staff support as part of their annual budgeting process.
3. Wildfire Preparedness Extend fire-resistant construction and landscaping standards citywide.
At this time fire resistant construction is regulated by the presence of very high fire hazard severity zones and the requirements associated with that designation. If desired, the City can expand the application of these requirements, but this would require action by the City Council.
4. Communications
Inclusion
To include all communities in emergency communications special efforts should be made to include renters who often don’t receive notices that go to property owners. Please see my several submissions on this in the past.
The City relies on assessor parcel information for the mailing of notices to property owners. In addition, residents that do not own their homes have the ability to request notification by the City, but this is a voluntary process, as it is not possible to obtain information for all residents within the city relying on the available information provided by the County assessor.
Recommendation Title Comment City Response
5. Dam Inundation
Issues
Fullerton’s Brea Saddle Dike Dam and Brea’s 30 MG Central Reservoir don’t seem to be mentioned in the LHMP but the City is definitely in the inundation zone for these two…Although it seems as though the increase in urgency designation may have been due to the large potential population impact rather than actual safety risk, the intensity of atmospheric rivers seems to be increasing, and warrants a few phone calls e-mails to the several dam operators (ACE, OCWD) for current status. It is unclear whether the local warning system was ever activated. Dam alert information in old dam control manuals do not seem to be updated. Lastly, where the report lists “Exhibit 29 Dam Inundation Risks in The Fullerton Plan (page 213)”, the link is missing.
Figure 4-2 identifies the critical facilities located in relation to the dam inundation zones for Fullerton Dam, Prado Dam, Carbon Canyon Dam, Orange County Reservoir, and Brea Dam. In
addition, Tables 4-4 through 4-8 identify the potential facilities affected by these dams. The only dam that does not affect the City based on this analysis is the Orange County Reservoir. Any other dams located within the City may not meet the
requirements for dam inundation mapping, which may be the reason it was not analyzed. In addition, the City regularly coordinates with dam owners/operators to ensure the latest information is available to City staff/departments.
Regarding the broken hyperlink, City staff will look into this issue and correct it, if necessary.
6. Other Waterway Risks
Fullerton Creek, a major Fullerton waterway is missing from most of the maps. Tri-City Park does not seem to be included with its large water features. The 9-acre Placentia Retarding Basin just outside the city limits is not on all maps although several other basins farther outside the City are listed. Other water features just outside the city that are not always noted: Lakeside Lake – 8 acres, Ralph Clark Park Lake – 3 acres, Raymond Basin -19 acres, Orange County Reservoir, Humble Reservoir.
A majority of the maps in Appendix I relied on the same base map, which relies on readily available GIS layers from federal, state, and local sources. The City did not modify these base map layers. If these additional water features are deemed necessary to map for the Safety Element, the City Council can direct staff to conduct this additional work, which may result in additional costs associated with the project. The addition of these features would not change any of the discussion and analysis within the element or warrant new or modified policies.
Recommendation Title Comment City Response
7. Evacuation
Constraints
Address constrained evacuation routes through specific policies, such as widening roadways or improving access points.
The goals, policies, and actions addressing evacuation have been reviewed and approved by Cal Fire staff and the California Board of Forestry. The main policy and related action that address the commenters’ concern is Policy 13.5.5 and Action
13.5.5(a), provided below. In addition, several other policies (listed below) were developed to ensure the City could address evacuation constraints to the best of their ability.
P13.5.5 Maintain Adequate Access
Ensure existing development in areas with sufficient water supply infrastructure and roadway capacity to maintain adequate evacuation and emergency equipment access do not degrade as a result of new development.
A13.5.5(a)
Identify the feasibility of constructing additional emergency access improvements for existing developments that do not meet minimum road standards for emergency equipment, such as:
• Additional vehicle pullouts at key hillside locations. • Limiting or restricting on-street parking at key hillside locations.
• Potential for construction of new or improved emergency access routes.
• Roadside clearance improvements.
P13.5.1 Effective Evacuation
P13.5.2 Minimum Emergency Access Points
P13.5.3 Functionality in Hazardous Events
P13.5.6 Enhancing Evacuation
P13.5.7 Emergency Evacuation Capacity
8. Better Evacuation
Planning Needed for
Limited Mobility
Populations
People needing emergency evacuations include non-driving populations: youth, poor, elderly, blind or disabled, non-car owning, suspended licenses. These are actually a significant part of the population and unique plans need to be devised to accommodate them in emergencies. Constrained roadways and parcel groups of concern are highlighted but don’t call out these populations.
Perhaps census areas where people don’t own cars can be added. The City should partner with OCTA well in advance of any emergency to make sure that solutions for these populations are robust and Adequate. General Plan Fair Share Policy P514 should be enhanced so bus, bike and pedestrian facilities are Adequate.
Transportation systems on p. 27 do not mention bus, rail bike and pedestrian and shared ride service (Lyft, Uber) transportation at all.
P 15 of the Climate Vulnerability Assessment mentions
transportation systems assuming most people will evacuate by arterial highways. It does mention OCTA buses but provides no plan or reference to a plan for OCTA’s service during
emergencies or bus strikes. It also neglects to mention the City’s 2 major bus stations – the Fullerton Transportation Center (FTC) and the Fullerton Park n Ride. The city’s 2 taxi stands at FTC and possibly still at the Marriot Hotel are not referenced. Neither is there a map showing bus routes by weekday, Saturdays, and Sundays + holidays which have different spans of service. shared ride service (Lyft, Uber) is not mentioned but are a lifeline for Fullerton’s emergency evacuation planning efforts predominantly focus on developing content for the Emergency Operations Plan (EOP) or associated annexes. The General Plan and LHMP are not operational documents that the City would rely on to support these types of efforts.
Approximately 5% of Fullerton households do not have a
personal vehicle, while the vast majority of California residents evacuate using their own transportation on City arterials.
Coordination with OCTA and identification of solutions for vulnerable populations is best suited for the EOP and not the Safety Element.
The discussion on page 27 of the Climate Adaptation
Vulnerability Assessment focuses on transportation system sensitivity to extreme heat events. Page 15 of the document generally describes the transportation assets, which include roadways, buses, trains, and airplanes.
The level of detail identified in the comment regarding OCTA and other transportation options is more detailed than typically found in a general plan and outside the scope of a Safety Element.
While we have come to understand that OCTA buses would
operate on their regular routes if an evacuation warning or order closes the area the buses are in, the ultimate decision on how to operate their system during normal times or emergency situations is outside of the City’s control. During an emergency situation, OCTA will indicate the types of support they will undertake during an emergency, which may include taking evacuees to stops outside the evacuation zones or nearest to any Care & Reception Center or shelters, as the evacuees choose.
Recommendation Title Comment City Response
many without cars. Bike routes and sidewalk shortfalls are also not addressed.
CW-7 should be enhanced to include non-driving populations:
CW-7: Coordinate with regional and local transportation and transit agencies to ensure continued access and movement in the event of an emergency.
• Coordinate with Caltrans and Orange County Transit
Authority to assess the vulnerability of transportation infrastructure and primary evacuation routes to hazardous climate-related events.
While individual jurisdictions can request emergency
transportation support from OCTA, its availability depends on the time of day, OCTA’s operational posture, and conditions elsewhere. For these reasons, jurisdictions may decide not to depend on OCTA to support a fast-moving evacuation.
Passenger rail service is unlikely to be available during an evacuation. The operators of these lines would likely stop service within evacuation zones or areas at potential risk. In addition rail operations generally can’t be planned and executed on short notice due to the complexities of freight logistics and the heavy traffic occurring on many of the rail lines throughout the southland.
Rideshare operators typically don’t allow their drivers to enter active fire evacuation zones. Their drivers aren’t covered by workers compensation if they’re injured or become ill while driving in unsafe areas.
CW-7 is an adaptation strategy focused on community wide coordination regarding transit and transportation capabilities.
Chapters 4 and 5 of the Fullerton Plan also address many of these topics. Future updates to these chapters could
accommodate these concerns more effectively than the Safety Element.
Recommendation Title Comment City Response
9. Weather Extremes
Cold weather shelters should be addressed. EH-2 should be enhanced to add trees and other cooling elements to vulnerable communities: EH-2: Develop facilities and resources to reduce the effects from extreme heat events.
Cold weather events have not required the city to open a warming center on a regular basis. The city has the ability to operate facilities if necessary, but the need has been minimal.
Comments on modifying EH-2 to add other cooling elements are not considered necessary at this time. This strategy reads as follows:
EH-2: Develop facilities and resources to reduce the effects from extreme heat events
•
Expand number of publicly operated cooling centers based on the need of vulnerable populations.
•
Collaborate with local businesses and institutions to provide a “Cool Zone” area network (i.e., cooling centers).
•
Develop a tree and shade master plan with a particular focus on climate resilient tree species.
As written the strategy provides the city with flexibility in how they address trees and shading.
10. Police and Fire
Response Times
Taller buildings increase police and fire response time as well as add to cost. A full discussion of this should be done. My understanding from Appendix D during the HIOZ process was that the City’s fire response times are already below Adequate.
The Program EIR for the HIOZ approved by the Planning
Commission on 9-25-24 regarding Public Services indicated:
Implementation of the Program would have a less than significant impact on fire protection services (PEIR pp. 4.9-17 to 4.9-18).
Recommendation Title Comment City Response
11. Asbestos and Lead
I would like to see a policy regulating Police and Fire use of buildings with Asbestos-Containing Materials (ACM) and Lead- Containing Materials (LCM) that currently are used as practice areas with no guidelines for remediation. These often cause an unintentional violation of environmental mitigations. Also, a program should call out the asbestos siding on many historic-age houses and possibly provide assistance with safe removal.
The City defers all property owners to the South Coast Air Quality Management District (SCAQMD) when asbestos or lead is
determined to be present in a structure. The information and forms are available on the SCAQMD at this link:
https://www.aqmd.gov/home
12. Sewer and Industrial
Wastewater Issues
Would like to see Sewer called out in the Lifeline Utilities section rather than embedded in the Water section. OC Sanitation’s cooperation in this, as well as wastewater.
The Lifeline Section of the Climate Adaptation Vulnerability Assessment is a major category that includes various
infrastructure components like electricity, oil and gas, and water supply. Sewer resources were identified in the water supply portion of the section, which is common. Reorganization of this content would not change the overall results of the analysis and would be an added expense to the city.
13. Oil Spills and
Pipelines
Please address oil spills and pipeline disruptions more clearly, not just oil and gas pipelines but also industrial wastewater and sewer. P . 16 mentions no major pipelines through Fullerton, but I don’t believe that’s the case.
This is a valid concern for a community like Fullerton. The regulation and oversight of hazardous materials and wastes is the responsibility of Orange County Environmental Health. In addition, oil activities are also overseen by California Geologic Energy Management Division (CalGEM). While these issues are a concern for the City, addressing them in Chapter 19 – Open Space and Natural Resources may be better suited to the city’s needs.
14. Water Quality Issues
Much of Fullerton in is a toxic plume area. This should be highlighted as there could be additional groundwater threats and drinking water contaminants.
While this is a key concern for the City and region, addressing this from a policy perspective it is better addressed in Chapter 16 – Water. Several goals and policies focus on water quality.
Recommendation Title Comment City Response
15. Sensitive Receptors
Please address the situation that the new Housing Incentive Overlay Zone will now have residential units with sensitive receptors much closer to industrial pollution. Please see my other comments on this issue. Please add a goal mandating Health Risk Assessments for sensitive receptors as appropriate. City environmental documents often skip this requirement.
While this is an important issue, addressing sensitive receptors is outside the scope of a Safety Element. This is often addressed in the land use element and/or environmental justice element.
Chapter 11, Public Health would be an appropriate location for this type of policy.
16. Tree Risks
Address tree falling risk safety as a part of the Safety Element.
Current “topping” practices and watering the base of trunks have increased this risk in the past decade.
Tree mortality was discussed in the Climate Adaptation
Vulnerability Assessment. In addition, landscaping practices are not policy issues that the General Plan would address. Instead this would be better addressed in the municipal code, which is an enforcement document.
17. Natural Resources
Impacts
p. 29 Natural Resource areas – Impact on Fullerton’s unusual array of native bees and pollinators should be added.
This section of the Climate Adaptation Vulnerability Assessment is referencing a study from Science regarding declining bee populations. If a local study has been conducted on localized bee populations this could be included if available. However, this addition does not change the outcome of the analysis.
18. Rail Inclusion
Hazardous material risk on. P 16 should include rail and rail lines should be added to all areas of the document discussing hazardous materials transportation.
A reference to rail transport of hazardous materials can be added to P. 16 of Appendix I.
19. Air Safety Address the major increase that helicopter commuting services will have on public safety.
Issues associated with airport operations are typically addressed by the Airport Land Use Commission (ALUC). If this condition begins to affect city services, the City should work with the ALUC to address these concerns.
Recommendation Title Comment City Response
20. Fireworks It would be helpful to mention the City’s fireworks restrictions in this document.
Fireworks restrictions are already codified in the municipal code.
Mentioning this is not a requirement to meet state requirements for general plans.
If desired, this could be added at the City’s discretion.
LRP-2024-0008 – GENERAL PLAN AMENDMENTS – SAFETY ELEMENT
Attachment No. 4
Local Hazard Mitigation Plan
Local
Hazard
Mitigation
Plan
City of Fullerton
Final City Council Draft
(Adopted)
May 21, 2020
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft i
TABLE OF CONTENTS
CHAPTER 1 .............................................................................................. 1-1
1. INTRODUCTION ................................................................................................... 1-1 Plan Purpose and Authority ............................................................................................................. 1-1 Plan Organization and Use............................................................................................................... 1-3 Plan Goals......................................................................................................................................... 1-4 Planning Process .............................................................................................................................. 1-4 CHAPTER 2 .............................................................................................. 2-1
2. COMMUNITY PROFILE ........................................................................................ 2-1 Setting and Location ........................................................................................................................ 2-1 History .............................................................................................................................................. 2-1 Demographics .................................................................................................................................. 2-2 Economy and Commute Patterns.................................................................................................... 2-4 Land Uses ......................................................................................................................................... 2-5 Development Trends ....................................................................................................................... 2-5 Infrastructure Assessment ............................................................................................................... 2-6 CHAPTER 3 .............................................................................................. 3-1
3. HAZARD ASSESSMENT ...................................................................................... 3-1 Hazard Identification ....................................................................................................................... 3-1 Hazard Scoring and Prioritization .................................................................................................... 3-4 Hazard Profiles ................................................................................................................................. 3-7 CHAPTER 4 .............................................................................................. 4-1
4. THREAT ASSESSMENT ....................................................................................... 4-1 Key Facilities ..................................................................................................................................... 4-1 Vulnerable Populations .................................................................................................................... 4- 5 Other Community Assets ................................................................................................................. 4-7 Threat profiles .................................................................................................................................. 4-7 CHAPTER 5 .............................................................................................. 5-1
5. HAZARD MITIGATION STRATEGY ...................................................................... 5-1 Strategy Development Process........................................................................................................ 5-1 Hazard Mitigation Actions ............................................................................................................. 5-11 National Flood Insurance Program ................................................................................................ 5-22 CHAPTER 6 .............................................................................................. 6-1
6. PLAN MAINTENANCE .......................................................................................... 6-1 Coordinating Body ........................................................................................................................... 6-1 Plan Implementation ....................................................................................................................... 6-2 Plan Maintenance ............................................................................................................................ 6-3 Plan Evaluation ................................................................................................................................ 6-3 Plan Updates .................................................................................................................................... 6-4 Public Involvement .......................................................................................................................... 6-5 City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft ii
Point of Contact ............................................................................................................................... 6-6 CHAPTER 7 .............................................................................................. 7-1
7. REFERENCES AND IMAGE CREDITS ................................................................ 7-1 References ....................................................................................................................................... 7-1 Image Credits ................................................................................................................................. 7-12
APPENDICES
APPENDIX A Meeting Materials
APPENDIX B. Community Outreach Materials
APPENDIX C Adoption Resolution
APPENDIX D Key Facilities Inventory
APPENDIX E Local Hazard Mitigation Plan Implementation Workbook
FIGURES
Figure 2-1: General Plan Land Use Map ....................................................................................................... 2-7 Figure 2-2: Water Sources in Fullerton ......................................................................................................... 2-9 Figure 3-1: Dam Failure Inundation Zones ................................................................................................... 3-9 Figure 3-2: Statewide Drought Conditions from 2013 to 2018 .................................................................. 3-17 Figure 3-3: Statewide Drought Conditions as of March 5, 2019 ................................................................ 3-19 Figure 3-4: Fire Hazard Zones ..................................................................................................................... 3-23 Figure 3-5: FEMA Flood Zones .................................................................................................................... 3-29 Figure 3-6: Landslide Hazards Map ............................................................................................................. 3-35 Figure 3-7: Oil and Gas Operations ............................................................................................................. 3-41 Figure 3-8: DTSC Hazardous Materials Sites ............................................................................................... 3-43 Figure 3-9: Local and Regional Fault Lines Map ......................................................................................... 3-55 Figure 3-10: Liquefaction Hazards Map ...................................................................................................... 3-57 Figure 4-1: Map of Critical Facilities and Facilities of Concern in Fullerton ................................................. 4-3 Figure 4-2: Critical Facilities and Facilities of Concern in Dam Inundation Areas ........................................ 4-9 Figure 4-3: Critical Facilities and Facilities of Concern in Fire Hazard Severity Zones in Fullerton ........... 4- 17 Figure 4-4: Critical Facilities and Facilities of Concern in Fullerton’s Floodplains ..................................... 4-21 Figure 4-5: Critical Facilities and Facilities of Concern in Landslide Zones in Fullerton ............................. 4-27 Figure 4-6: Critical Facilities and Facilities of Concern Near Hazardous Materials Sites in Fullerton ........ 4-31 Figure 4-7: Critical Facilities and Facilities of Concern in Liquefaction Zones in Fullerton ........................ 4-35 Figure 4-8: Critical Facilities and Facilities of Concern in Seismic Shaking and Fault Rupture Zones in Fullerton ........................................................................................................................... 4-39
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft iii
TABLES
TABLE 1-1: KEY RESOURCES FOR PLAN DEVELOPMENT ............................................................................... 1-9 TABLE 2-1: BASIC DEMOGRAPHICS, FULLERTON AND ORANGE COUNTY (2015) ........................................ 2-2 TABLE 2-2: RACIAL AND ETHNIC COMPOSITION, FULLERTON AND ORANGE COUNTY (2015) ................... 2-3 TABLE 2-3: EDUCATIONAL ATTAINMENT OF RESIDENTS 25+ YEARS OF AGE, FULLERTON AND ORANGE COUNTY (2015) ................................................................................................... 2-3 TABLE 2-4: LANGUAGE PROFICIENCY OF RESIDENTS 5+ YEARS OF AGE, FULLERTON AND ORANGE COUNTY (2015) ................................................................................................... 2-4 TABLE 2-5: TEN LARGEST EMPLOYERS IN FULLERTON (2017) ..................................................................... 2-4 TABLE 2-6: DEVELOPMENT CATEGORIES ...................................................................................................... 2-5 TABLE 3-1: HAZARD EVALUATION FOR FULLERTON LHMP .......................................................................... 3-1 TABLE 3-2: CRITERION SCORING ................................................................................................................... 3-5 TABLE 3-3: HAZARD SCORES AND THREAT LEVEL ........................................................................................ 3-6 TABLE 3-4: DAM SAFETY ACTION CLASSIFICATION (DSAC) RATINGS ........................................................... 3-7 TABLE 3-5: PANDEMIC INFLUENZA PHASES ............................................................................................... 3-14 TABLE 3-6: US DROUGHT MONITOR CLASSIFICATION SCHEME ................................................................ 3-16 TABLE 3-7: TOP FIVE LARGEST FIRES IN CALIFORNIA SINCE 2000 ............................................................. 3-22 TABLE 3-8: FEMA FLOOD PLAIN CATEGORIES ............................................................................................ 3-26 TABLE 3-9: MODIFIED MERCALLI INTENSITY SCALE ................................................................................... 3-59 TABLE 3-10: SIGNIFICANT EARTHQUAKES WITHIN 100 MILES OF FULLERTON ......................................... 3-60 TABLE 3-11: EARTHQUAKE PROBABILITIES FOR KEY FAULTS NEAR FULLERTON (2015-2044) .................. 3-61 TABLE 3-12: SELECTED SHAKING SCENARIOS FOR FULLERTON ................................................................. 3-62 TABLE 3-13: MEASURING HEAVY RAIN EVENTS ......................................................................................... 3-65 TABLE 3-14: BEAUFORT SCALE .................................................................................................................... 3-65 TAB
LE 3-15: ENHANCED FUJITA SCALE ....................................................................................................... 3-66 TABLE 4-1: FULLERTON KEY FACILITIES......................................................................................................... 4-5 TABLE 4-2: FULLERTON POPULATION AND HOUSEHOLDS ........................................................................... 4-6 TABLE 4-3: FULLERTON VULNERABLE POPULATIONS .................................................................................. 4-6 TABLE 4-4: FACILITIES AT RISK OF DAM FAILURE INUNDATION BY ALL DAMS ............................................ 4-8 TABLE 4-5: PRADO DAM INUNDATION AREA ............................................................................................... 4-8 TABLE 4-6: CARBON CANYON DAM INUNDATION AREA ............................................................................ 4-11 TABLE 4-7: BREA DAM INUNDATION AREA ................................................................................................ 4-11 TABLE 4-8: FULLERTON DAM INUNDATION AREA ...................................................................................... 4-12 TABLE 4-9: DAM INUNDATION ZONE, THREATENED POPULATION METRICS ........................................... 4-12 TABLE 4-10: KEY FACILITIES THREATENED BY WILDFIRE ............................................................................ 4-15 TABLE 4-11: FIRE HAZARD SEVERITY ZONE THREATENED POPULATIONS ................................................. 4-19 TABLE 4-12: CRITICAL FACILITIES AND FACILITIES OF CONCERN AT RISK OF FLOODING .......................... 4-23 TABLE 4-13: FLOOD HAZARD ZONE THREATENED POPULATIONS ............................................................. 4-24 TABLE 4-14: FULLERTON DAM INUNDATION AREA .................................................................................... 4-24 TABLE 4-15: FULLERTON THREATENED-POPULATION METRICS IN EQ- INDUCED LANDSLIDE ZONE ....... 4-25 City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft iv
TABLE 4-16: KEY FACILITIES THREATENED BY LIQUEFACTION ................................................................... 4-34 TABLE 4-17: FULLERTON THREATENED-POPULATION METRICS IN LIQUEFACTION ZONE ........................ 4-37 TABLE 5-1: CAPABILITIES ASSESSMENT ........................................................................................................ 5-3 TABLE 5-2: STAPLE/E CRITERIA ................................................................................................................... 5-10 TABLE 5-3A: PREVIOUS MITIGATION ACTIONS ........................................................................................... 5-11 TABLE 5-3B: PROPOSED MITIGATION ACTIONS ......................................................................................... 5-14
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft v
ABBREVIATIONS
AB: Assembly Bill
AR: Atmospheric River
CAL FIRE: California Department of Forestry and
Fire Prevention
Cal OES: California Governor’s Office of
Emergency Services
CDH: California Department of Public Health
CEC: California Energy Commission
CFR: Code of Federal Regulations
CGS: California Geological Survey
ENSO: El Niño Southern Oscillation
EF: Enhanced Fujita (scale)
EPA: United States Environmental Protection
Agency
FEMA: Federal Emergency Management Agency
FHSZ: Fire hazard severity zone
FRA: Federal Responsibility Area
IPCC: Intergovernmental Panel on Climate
Change
LRA: Local Responsibility Area
MMI: Modified Mercalli Intensity (scale)
MMS: Moment Magnitude Scale
MWD: Metropolitan Water District of Southern
California
MWDOC: Municipal Water District of Orange
County
NOAA: National Oceanic and Atmospheric
Administration
NWS: National Weather Service
OCFA: Orange County Fire Authority
OCFCD: Orange County Flood Control District
OCTA: Orange County Transportation Authority
OCWD: Orange County Water District
SB: Senate Bill
SCE: Southern California Edison
SCEDC: Southern California Earthquake Data
Center
SoCalGas: Southern California Gas Company
SRA: State Responsibility Area
UCERF3: Third Uniform California Earthquake
Rupture Forecast
USGS: United States Geological Survey
WRCC: Western Regional Climate Center
WUI: Wildland-urban interface
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft vi
GLOSSARY
100-year flood: A flood that has a 1 percent chance (one in 100) of occurring in any given year. 500-year flood: A flood that has a 0.2 percent chance (one in 500) of occurring in any given year.
ARkStorm: An emergency planning scenario that modeled a repeat of Cal ifornia’s 1861–1862 winter storms, which caused unprecedented flooding throughout the state.
Atmospheric river: A narrow band of very moist air in the atmosph ere that can generate intense storms.
Up to 50 percent of California’s annual rainfall comes from the relatively small number of atmospheric storms.
Climate change: Long-term changes in the average meteorological conditions (temperature, precipitation, wind, etc.) of an area.
Critical Facility: Typical critical facilities include hospitals, fire stati ons, police stations, storage of critical records, and similar facilities. These facilities should be given special consideration when formulating regulatory alternatives and emergency management plans. For purposes of this plan, critical facilities include locations that serve an emergency support function within the City and should be able to remain operable not only through a hazard event but also after a hazard event has already occurred.
Derecho: A type of intense windstorm that blows in a straight line, caused by a strong, large thunderstorm.
Downburst: A type of intense windstorm that descends from a strong thundercloud and then gusts out in all directions.
El Niño Southern Oscillation: A natural cycle of wind and water temperatures in the eastern tropical areas of the Pacific Ocean that affects global weather patterns, including precipitation levels in California.
Consists of a warm phase (El Niño), a neutral phase, and a cool phase (La Niña).
Epicenter: The point on the surface of the ground below which an earthquake begins.
Facility of Concern: A facility that is not critical in nature but is identified by the City because it plays a significant role in emergency response and recovery.
Fault line: A boundary between sections of the earth’s surface.
Fault rupture: An event in which sections of the earth’s surface suddenly move past each other along part or all the length of a fault. The sudden movement generates the shaking that we perceive as an earthquake.
Flash flood: A dangerous type of flood that occurs very quickly, with little warning. Usually a result of sudden, intense precipitation.
Flood plain: The area that may be affected by a flood, usually named by the type of flood that can occur there (e.g. a 100-year flood plain).
Katabatic wind: A hot dry wind, caused when areas of high pressure occur over an area of high elevation, and lower pressure zones form ov er lower elevations. As the wind descends, it heats up, becomes drier, and can increase in speed.
Liquefaction: A phenomenon in which loose, wet soil is suddenly shaken, causing the soil to behave more like a fluid and lose its stability. Often caused by earthquakes.
Microburst: A downburst that affects a small area, although the wind speeds are not necessarily less intense than a full-scale downburst.
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Modified Mercalli Intensity scale: A way of measuring the intensity of an earthquake based on the damage it causes at a specific location. As a result, an earthquake will register a different rating on the Modified Mercalli Intensity scale in different places.
Moment Magnitude Scale : A way of measuring the intensity of an earthquake based on the amount of energy released by the fault rupture. A replacement for the Richter Scale.
Ponding: A type of flooding caused when water collects in a low-lying area.
Rupture: See “Fault rupture.”
Santa Ana winds: A type of katabatic wind that affects the coastal areas of so uthern California. They are commonly known for fanning wildfires.
Sea level rise: A global increase in the level of the ocean, driven by melting land ice and increases in water temperature as a result of climate change.
Snowpack: Snowfall that accumulates in cold mountain areas and remains frozen for a long period of time. In California, snowpack in the Sierra Nevada provides a large amount of water to the state during the summer and early autumn months as it melts.
State Water Project: An extensive system of aqueducts and pumps that conveys water from the northern Sierra Nevada to cities and agricultural lands throughout California, including the Los Angeles region.
Subduction zone: A location where two tectonic plates come together, one moving underneath the other.
Strong earthquakes in these regions are responsible for most major tsunamis.
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CHAPTER 1
1. INTRODUCTION
PLAN PURPOSE AND AUTHORITY
Hazard events can lead to injuries or death, affect overall health and safety, damage or destroy public and private property, harm ecosystems, and disrupt key services. Although the hazard event itself often gets the most attention, it is only one part of a larger emergency management cycle.
Emergency planners and responders can take steps during the response, recovery, mitigation, and preparedness phases of the cycle to minimize the harm caused by a disaster. This Local Hazard Mitigation Plan (LHMP or Plan) focuses on optimizing the mitigation phase of the cycle. Mitigation involves making a community more resilient to disasters so that when hazard events do ultimately occur, the community suffers less damage and is able to recover more effectively. It differs from preparedness, which is planning in advance for how best to respond when a disaster occurs or is imminent. For example, a policy to make homes structurally stronger so they s uffer less damage during an earthquake is a mitigation action, while fully equipping shelters to accommodate people who lose their homes in an earthquake is a preparedness action. Some activities may qualify as both.
Fullerton, like all other communities, could potentially suffer sev ere harm from hazard events, and although large disasters may cause widespread devastation, even smaller disasters can have substantial effects. Fullerton cannot make itself completely immune to hazard events, but this Plan can help make the community a safer place to live, work, and visit. This Plan provides a comprehensive assessment of the threats that Fullerton faces from natural and human-caused hazard events and a coordinated strategy to reduce these threats. It identifies resources and information that can help community members, City staff, and local officials understand local threats and make informed decisions. The LHMP can also support increased coordination and collaboration between the City, other public agencies, local employers, service providers, community members, and other key stakeholders.
KEY TERMS
Hazard event: An
emergency as a
result of a natural
or human-caused
event that has the
potential to cause
harm.
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FEDERAL AUTHORITY
Fullerton is not required to prepare an LHMP, but state and federal regulations encourage it. The federal Robert T. Stafford Disaster Relief and Emergency Act, amended by the Disaster Management A ct of 2000, creates a federal framework for local hazard mitigation planning. It states that jurisdictions that wish to be eligible for federal hazard mitigation grant funding must prepare a hazard mitigation plan that meets a certain set of guidelines and submit this plan to the Federal Emergency Management Agency (FEMA) for review and approval. These guidelines are outlined in the Code of Federal Regulations, Title 44, Part 201, and discussed in greater detail in FEMA’s Local Mitigation Plan Review Tool.
STATE AUTHORITY
California Government Code Sections 8685.9 and 65302.6
California Government Code Section 8685.9 (also known as Assembly Bill 2140) limits the State of California’s share of disaster relief funds paid out to local governments to 75 percent of the funds not paid for by federal disaster relief efforts, unless the jurisdiction has adopted a valid hazard mitigation plan consistent with the Disaster Management Act of 2000 and has incorporated the hazard mitigation plan into the jurisdiction’s general plan . In these cases, the State may cover more than 75 percent of the remaining disaster relief costs.
All cities and counties in California must prepare a general plan, which must include a safety element that addresses various hazard conditions and other public safety issues. The safety element may be a stand - alone chapter or incorporated into another section , as the community wishes. California Government Code Section 65302.6 indicates that a community may adopt an LHMP into its safety element as long as the LHMP meets applicable state requirements. This allows communities to use the LHMP to satisfy state requirements for safety elements. As the General Plan is an overarching long- term plan for community growth and development, incorporating the LHMP into it creates a stronger mechanism for implementing the LHMP.
California Government Code Section 65302 (g)(4)
California Government Code Section 65302 (g)(4), also known as Senate Bill (SB) 379, requires that the safety element of a community’s general plan address the hazards created or exacerbated by climate change. The safety element must identify how climate change is expected to affect hazard conditions in the community and include measures to adapt and be more resilient to these anticipated changes.
Because the LHMP can be incorporated into the safety element, including these items in the LHMP can satisfy the state requirement. SB 379 requires that climate change must be addressed in the safety element when the LHMP is updated after January 1, 2017, for communities that already have an LHMP, or by January 1, 2022, for communities without an LHMP.
KEY TERMS
Mitigation:
Actions that
increase
resiliency and
reduce the
harmful effects
of a hazard.
Resilient: Better
able to avoid or
lessen the
harmful effects
of a hazard.
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This LHMP is consistent with current standards and
regulations, as outlined by the California Office of
Emergency Services (Cal OES) and FEMA. It uses the best available science, and its mitigation measures reflect
best practices and community values. It meets the
requirements of current state and federal guidelines and makes Fullerton eligible for all appropriate benefits
under state and federal law and practices. Note that
while FEMA is responsible for reviewing and certifying
this LHMP, and Cal OES is re sponsible for conducting a preliminary review, this Plan does not grant FEMA or Cal OES any increased role in the governance of Fullerton or authorize either agency to take any specific action in the community.
PLAN ORGANIZATION AND USE
The Fullerton LHMP is both a reference document and
an action plan. It has information and resources to
educate readers and decision makers about hazard
events and related issues, and a comprehensive strategy that the City and community members can follow to
improve resiliency in Fullerton. It is divided into the following chapters:
• Chapter 1: Introduction. This chapter discusses the purpose and authority of the LHMP , its goals, how to use the Plan, and how it was developed.
• Chapter 2: Community Profile . This chapter provides an overview of the history of Fullerton, its demographics, the local economy, and its land uses and infrastructure. • Chapter 3 : Hazard As sessment. This chapter summarizes the various hazard conditions in Fullerton, their history, the risk of future occurrence, and any effects of climate change on their frequency and intensity. It also discusses how hazards were selected and prioritized for inclusion in this Plan.
• Chapter 4 : Threat Assessment . This chapter discusses the threat to community members, buildings, and infrastructure posed by individual hazard types. It also summarizes the methods and approach used to prepare the threat assessment.
• Chapter 5: Hazard Mitigation Strategy. This chapter contains specific hazard mitigation actions to improve resiliency in Fullerton and a discussion of how the mitigation actions were developed. • Chapter 6 : Plan Maintenance : This chapter discusses how the Plan will be implemented and summarizes how Fullerton can monitor and update the Plan in future years.
FEMA’s Local Mitigation Planning Handbook, last
updated in 2013, is one of the key guidance documents
for local communities in preparing hazard mitigation
plans.
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• Chapter 7: References: This document contains all the references and images used throughout the document.
PLAN GOALS
This Plan was developed to broadly increase resiliency in Fullerton. There are five key goals for Fullerton’s LHMP:
• Reduce and isolate threats to public safety and property in Fullerton. • Maintain government operations and prov isions of essential services to residents and stakeholders during and after a hazard event.
• Protect the natural environment through responsible stewardship of air, water, and open spaces in Fullerton.
• Promote resiliency and climate action in Fullerton through resilient infrastructure, responsive governance, and vibrant civic participation.
• Partner with surrounding local, regional, state, and federal jurisdictions in hazard mitigation efforts.
PLANNING PROCESS
State and federal guidance for local hazard mitigation plans do not require that jurisdictions follow a standardized planning process. FEMA encourages communities to create their own planning process that reflects local values, goals, and characteristics. FEMA does suggest a general planning process:
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The rest of this section describes the process used by the City to develop its LHMP.
HAZARD MITIGATION PLANNING COMMITTEE
The City established a Hazard Mitigation Planning Committee. The Committee is made up of representatives from key City departments as well as stakeholder members that include residents, representatives from local and regional agencies, and companies that are key to hazard mitigation activities. These stakeholders are identified by asterisks (*). The City also informed othe r emergency managers from surrounding cities.
These members make up the Committee:
• Heather Allen, Planning Consultant, Fullerton Community Development • Matt Foulkes, Planning Manager, Fullerton Community Development • Adam Loeser, Deputy Chief, Fullerton Fire Department
• Kathy Schaefer, Division Chief, Fullerton Fire Department • Pamela Mackie, Risk Management Specialist, Fullerton Human Resources • Olga Vellanoweth, Risk Management Specialist, Fullerton Human Resources • Alice Loya, Manager, Fullerton Parks and Recreation
• Doug Pickard, Parks Project Specialist, Fullerton Parks and Recreation Identify the planning
and and the
resources it contains
Build the planning
team
Create an outreach
team
Identify the risks
and threats to the
community
Review the
community's
capabilities
Develop a hazard
mitigation strategy
Review and adopt
the plan
Implement the plan
to create a safe and
resilient community
Keep the plan
current
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• Rhonda Cleggett, Lieutenant, Fullerton Police Department • Dan Diaz, Street Division Superintendent, Fullerton Public Works • Kevin Kwak, Senior Civil Engineer, Fullerton Public Works • Wayne Elms, Landscape Supervisor, Fullerton Public Works • William Roseberry, Sewer Superintendent, Fullerton Public Works • Yelena Voronel, Principal Civil Engineer, Fullerton Public Works • Hye Jin Lee, Water Systems Manager / Assistant City Engineer, Fullerton Public Works • Laurie Bruneau, Risk Manager, Fullerton School District* • Pearl Boelter, Environmental Health and Safety Director, Cal State Fullerton* • Julie Lugaro, Associate Transportation Planner, Caltrans* • Larry Lara, Director of Facilities, Fullerton College* • Arlen Beck, Planning Technician, City of Placentia*
• Carlos Jaramillo, Deputy Director of Community Development, City of La Habra* • Ian Whyte, Emergency Management Program Manager, Metropolitan Water District* • Rudy Davila, Engineer, Orange County Sanitation District* • Carl Erickson, Director of Human Resources and Risk Management, Fullerton Joint Unified School District*
• Hector Campos, Security Manager, St. Jude Medical Center* • Rebecca Marsile, Health Educator, Orange County Health Care Agency* The Committee held four meetings throughout the plan development process to lay out the methods and approach for the Plan, draft and review content, make revisions, and engage members of the public. • Committee Meeting #1 ( June 14, 2018): The Committee members confirmed the project goals and the responsibilities of the Committee. They revised the community engagement and outreach strategy, confirmed and prioritized the hazards to be included in the Plan, and identified critical facilities for the threat assessment.
• Committee Meeting #2 (July 12, 2018): Members held a detailed discussion about the results of the hazards assessment and mapping that showed the areas facing an elevated risk. The Committee also reviewed the hazard prioritization results.
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• Committee Meeting #3 (August 9, 2018): The Committee reviewed the results of the risk assessment to identify the populations and assets that may face greater harm in a hazard event.
The Committee also discussed potential hazard mitigation actions to address vulnerabilities. • Committee Meeting #4 ( September 13, 2018 ): The Committee reviewed the draft mi tigation measures, made revisions, and assigned priorities.
Invitation to Committee meetings were provided via email with an accompanying calendar invitation.
Appendix A contains copies of meeting agendas and sign in sheets for the Hazard Mitigation Planni ng Committee meetings.
PUBLIC ENGAGEMENT
Under FEMA guidelines, local hazard mitigation planning processes should create opportunities for members of the public to be involved in plan development—at a minimum, during the initial drafting stage and during plan approval. The Committee chose to go beyond minimum standards and conduct more extensive community outreach to help ensure that the LHMP reflects community va lues, concerns, and priorities. The Committee developed a community engagement and outreach strategy to guide all public engagement activities. Appendix B contains a copy of the strategy.
Public Input Meeting
An in-person public meeting was a central compo nent of the City’s engagement efforts. Th is meeting provided an opportunity for members of the public to learn about the LHMP in depth —the plan development process, the hazards of concern, and the mitigation strategy and individual actions. At th is meeting, members of the public could speak directly to City staff and other stakeholders and provide detailed feedback. The City held one public meeting prior to public review. Notices of this meeting were widely distributed in advance, in accordance with City n otification requirements, the engagement strategy, legal requirements, and best practices.
• Public Input Meeting (October 10, 2018): This meeting was held concurrently with the City of Fullerton Planning Commission meeting. Project staff from PlaceWorks and City staff gave a presentation to the members of the Commission and members of the public in attendance.
Speakers discussed the process of the Plan development, the importance of having an LHMP , and took questions and comments from the Commission members. No additional public comments were submitted during the meeting.
Online Engagement
The City recognized that not all community members are able to attend public meetings and conducted public engagement through social media and online platforms. City staff set up a project website as a simple, one -stop location for community members to learn about the LHMP. The website included information about what an LHMP is and why the City prepared one. It had links to materials and plan documents as they became available and allowed members of the public to receive notifications about upcoming events. City staff also used social media accounts, such as Facebook, Twitter, and NextDoor, to send quick notifications or bursts of information about the Plan and the development process.
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A central part of the online engagement was an online survey. This survey asked community members about their experience and familiarity with emergency conditions, their level of preparedness for future emergencies, and preferred actions for the City to take to increase resiliency in Fullerton. The survey had responses from 137 community members; those responses are summarized here:
• Most survey respondents (81 percent) indicate that they have not been impacted by a hazard event.
• The top three hazards that have impacted the most residents are: (1) Seismic hazards (52 percent of respondents ), (2) Disease/pests (30 percent of r espondents), and (3) Severe weather (30 percent of respondents).
• Most respondents express concern (36 percent very concerned and 35 percent somewhat concerned) that climate change could introduce new hazards or make existing hazards in Fullerton worse. 1 in 4 respondents are not at all concerned (25 percent). • Nearly half of all homeowner respondents report having adequate homeowners ’ insurance to cover the hazards that could potentially impact their home (48 percent). Only a miniscule amount of homeowners report having no insurance policy (1 percent). • While most respondents indicate not having flood insurance for their home, they indicate they are interested (70 percent). About 1 in 4 respondents already have flood insurance (26 percent). • Among the disaster preparedness household items, the top three items residents indicate they already possess are: (1) can opener (93 percent), (2) cooking and eating utensils (88 percent), (3) battery-powered flashlight (86 percent).
• Most respondents are uninvolved and uninterested in their local Community Emergency Response Team (CERT) (65 percent). Roughly 1 in 4 respondents are uninvolved but want more information about CERT.
• The overwhelming majority of respondents convey that the most effective strategy to help them become better prepared for a disaster includes effective emergency notification and communication (86 percent).
• Most respondents (71 percent) work for an employer who has a disaster recovery plan.
Appendix B contains copie s of materials used for public outreach, including the full results of the community survey.
PUBLIC REVIEW DRAFT
On March 14, 2019, Fullerton released a draft copy of the LHMP for public review and comment. The document was posted electronically on the Cit y’s website, and hard copies were made available at the Fullerton Public Library, City Clerk’s Office, and the Community Development Department. The City distributed notifications about the public review draft through social media accounts and other online sources. Members of the Hazard Mitigation Planning Committee were notified via email and provided a City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 1-9
link to the project webpage. Additionally, community members who completed the online survey and provided an email address to receive additional information will be notified of the release of the draft.
PLAN REVISION AND ADOPTION
One public comment was received during the public review period. The comments received focused on technical accuracy and organization of the document. In response to these comments, some of the sections of the document were re-organized to flow better and better describe the issues within the plan.
Upon completion of these revisions, t he Plan was submitted to Cal OES and FEMA. Upon receipt of approval from state and federal agencies, the final draft was submitted to City decision makers. Upon adoption of the Plan, the Fullerton City Council conducted a hearing, whereby the public was invited to submit final comments or concerns regarding the document.
The Fullerton City Council adopted the final LHMP on May 19, 2020. Appendix C contains a copy of the adoption resolution.
PLAN RESOURCES
The Committee used a number of different plans, studies, technical reports, datasets, and other resources to prepare the hazard assessment, mapping, threat assessment, and other components of this Plan. Table 1-1 provides some of the primary resources the Committee used to prepare this Plan.
TABLE 1-1: KEY RESOURCES FOR PLAN DEVELOPMENT
Section Key Resources Example Uses
Multiple sections • Cal-Adapt
• California Department of Conservation
• California Geological Survey
• California Office of Emergency Services
• California State Hazard Mitigation Plan
• City of Fullerton General Plan (The Fullerton Plan)
• City of Fullerton 2010 Local Hazard Mitigation Plan
• FEMA Local Hazard Mitigation Plan Guidance
• National Oceanic and Atmospheric Administration
• National Weather Service
• US Geological Survey
• US Census Bureau 2011-2015 American Community
Survey
• Science and background
information on different hazard
conditions.
• Records of past disaster events in
and around Fullerton.
• Current and anticipated climate
conditions in and around Fullerton.
• Projections of future seismic
conditions and events.
• Prior mitigation actions and
strategies to verify the progress
achieved
Community Profile • City of Fullerton financial and economic reports • California Energy Commission
• Fullerton Public Library
• Demographic information for
Fullerton and Orange County.
• History of the region.
• Economic trends in Fullerton.
• Commute patterns in Fullerton.
• Local land uses patterns.
• Background information on utilities
serving Fullerton.
Hazard Assessment
(Dam Failure)
• LIDAR survey
• Orange County Water District
• Mapping of dam failure inundation
areas.
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TABLE 1-1: KEY RESOURCES FOR PLAN DEVELOPMENT
Section Key Resources Example Uses
• US Army Corps of Engineers • Profiles and conditions of dams in and around Fullerton.
Hazard Assessment
(Disease and Pest
Hazards)
• California Department of Public Health
• Centers for Disease Control
• World Health Organization
• Science and historical records of
disease outbreaks.
Hazard Assessment (Fire
Hazards)
• California Department of Forestry and Fire
Prevention
• Fire and Resource Assessment Program
• Records of past fire events.
• Location of fire hazard zones in and
around Fullerton.
Hazard Assessment
(Flood Hazards)
• FEMA Map Service Center
• Orange County Flood Control District
• Records of past flood events in and
around Fullerton.
• Locations of flood-prone areas in
Fullerton.
Hazard Assessment
(Human-Caused
Hazards)
• City of Fullerton Airport Master Plan
• Global Terrorism Database
• Historical records of terrorism.
• Flight paths over Fullerton.
Hazard Assessment
(Hazardous Materials
Release Hazards)
• Agency for Toxic Substances and Disease Registry • Location and dates of past hazardous materials release.
• Effects of hazardous materials
release.
Hazard Assessment
(Seismic Hazards)
• Southern California Earthquake Data Center
• The Third California Earthquake Rupture Forecast
(UCERF3)
• Locations of fault zones.
• Records of past earthquakes.
Hazard Assessment
(Severe Weather
Hazards)
• California Department of Water Resources
• US Drought Monitor
• Western Regional Climate Center
• Science and background
information of severe weather
events.
• Historical record of severe weather
events in and around Fullerton.
Note: Sections that are not individually called out in this table relied primarily on sources identified in multiple sections.
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CHAPTER 2
2. COMMUNITY PROFILE
This chapter of the LHMP is a summary of Fullerton’s physical se tting, history, economy and demographics, current and future land uses, and key infrastructure. The community pro file establishes the baseline conditions that inform the development of the hazard mitigation actions in Chapter 5.
SETTING AND LOCATION
Fullerton is in northern Orange County approximately 22 miles southeast of downtown Los Angeles. The community is bordered by the cities of Placentia to the east, Anaheim to the south, Buena Park and La Mirada to the west, and La Habra and Brea to the north. The southern portion of the City lies on flat land; the northern half rises into sloping hills, known as the West Coyote and East Coyote Hills.
HISTORY
Human settlement in what is now Fullerton dates back to 5,000 BC, or potentially earlier. These early residents were largely nomadic, depending primarily on hunting, fishing, and gathering plants for survival.
Eventually the Tongva (Gabrielino) and Acjachemen (Juañeno) Native American cultures developed across much of the area encompassing modern -day Greater Los Angeles, including the area where Fullerton is situated today.
The first documented European in Orange County was Spanish explorer, Gaspar de Portolá, in 1769; the European presence was made more permanent in 1776 with the establishment of Mission San Juan Capistrano to the south. After Mexico (including California) became independent from Spain in 1821, the missions were secularized, and large portions of land were granted to prominent figures. The area of modern-day Fullerton became part of the Rancho San Juan Cajón de Santa Ana grant given to Juan Pacifico Ontiveros in 1837 (Orange County Archives n.d.a, n.d.b).
After Mexico ceded California to the United States, the state began to connect to the rest of the country via the railroad. Land speculation opportunities in the burgeoning state attracted people from the eastern United States, like George and Edward Amerige. They bought land to the north of the town of Anaheim with the goal of founding a settlement and allocating a portion of the land to the California Central Railroad. In 1887, the Amerige brothers established their settlement, naming it after the President of the Pacific Land and Improvement Co., George H. Fullerton. Agriculture, especially orange growing, became the most prominent industry in Fullerton soon after the City’s founding. Oil production became a leading industry in Fullerton in the late nineteenth and early twentieth centuries, driving much of the early growth of the community. In the mid -twentieth century, the City se t aside the southern portion of Fullerton nearest the railway as an industrial -only area, leading to the mass consolidation of manufacturing in the area (Fullerton 2010).
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After the Second World War, there was high
demand by veterans and their families for new
housing in southern California. Fullerton was one
of many communities in the area that experienced
a construction boom of new housing
developments (Fullerton 2010). It was also during
this time, in 1957, that the State of California
established Orange County State College (today
California State University, Fullerton) (CSUF 2009).
In the same year, St. Jude Hospital (now St. Jude
Medical Center) was opened (St. Jude 2018). This
period of intense building and development
lasted nearly thirty years, from the late 1940s to
the 1970s. In the 1980s and 1990s, the City
revitalized its downtown area and upgraded
existing and cons tructed new public facilities,
including libraries, parks, natural areas, and
general city services. Today, Fullerton is a
community with vibrant education and healthcare
sectors, a bustling manufacturing area, thousands
of homes, and a renewed downtown ce nter
(Fullerton 2010).
DEMOGRAPHICS
The US Census Bureau’s American Community
Survey estimates Fullerton’s population at 138,976
residents as of 2015. It is the seventh largest of Orange County’s 34 cities by population (US Census Bureau 2015a).
Compared to Orange County as a whole, Fullerton residents are younger, with a lower median household income and a lower level of home ownership. Table 2 -1 shows the basic demographics for Fullerton and Orange County.
TABLE 2-1: BASIC DEMOGRAPHICS, FULLERTON AND ORANGE COUNTY (2015) Fullerton Orange County
Total population 138, 976 3,116,096
Percent of residents that are children (less than 10 years) 12.4% 12.4% Percent of residents that are senior citizens (65+ years) 12.5% 12.8% Median age 34.5 37.1
Total households 47,319 1,009,353
Median household income $65,974 $76,509
Percent of rental households 48.3% 42.3%
Source: US Community Census 2015a, 2015b, 2015c.
Intersection of Commonwealth and Harbor in 1886. Image
from the Fullerton Public Library
Cal State Fullerton under construction in 1963. Image
from the Fullerton Public Library
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A smaller proportion of Fullerton residents identify as white compared to Orange County residents.
Approximately 40 percent of Fullerton residents identify as nonwhite, compared to approximately 37 percent of Orange County residents. Table 2-2 shows the racial and ethnic composition in Fullerton and Orange County.
TABLE 2-2: RACIAL AND ETHNIC COMPOSITION, FULLERTON AND ORANGE COUNTY (2015) Race or Ethnicity
Fullerton Orange County
Population Percentage Population Percentage
White 77,137 59.3% 1,970,000 63.2%
Black or African-American 3,357 3.3% 51,816 1.6%
American Indian and Alaska Native 362 1.2% 12,476 0.4%
Asian 34,490 26.8% 590,342 18.9%
Native Hawaiian and Other Pacific Islander 368 0.7% 9,529 0.3% Other race 17,252 13.4% 368,220 11.8%
Two or more races 6010 2.7% 113,686 3.6%
Hispanic or Latino (of any race) * 48,974 35.2% 1,064,499 34.1% Total 138,976 100% 3,116,096 100%
Source: US Census Bureau 2015d, 2015e.
* The US Census Bureau does not currently count persons who identify as Hispanic or Latino as a separate racial or ethnic category. Persons who identify as Hispanic or Latino are also included in the other racial or ethnic categories.
Fullerton residents’ level of educational attainment is on a par with the average Orange County resident.
Approximately 46 percent of adults 25 years of age or older in both Fullerton and Orange County have obtained a college degree. Approximately 13.4 percent of Fullerton adults have not finished high school, compared to 15.7 percent of Orange County adults. Table 2-3 shows educational attainment for adults in Fullerton and Orange County.
Spanish is the most commonly spoken language in Fullerton after English, followed by Korean, Chinese, and Tagalog. Among residents at least f ive years of age, approximately 52 percent of Fullerton residents speak English at home, compared to approximately 69 percent of Orange County residents. Among speakers of the more common languages in Fullerton other than English, over half of Spanish and Tagalog speakers are fluent in English, but English fluency rates are lower among speakers of Korean and Chinese.
TABLE 2-3: EDUCATIONAL ATTAINMENT OF RESIDENTS 25+ YEARS OF AGE, FULLERTON AND ORANGE COUNTY (2015)
Educational Attainment
Fullerton Orange County
Population Percentage Population Percentage
Less than 9th grade 6,558 7.3% 182,478 8.7%
9th grade to 12th grade (no diploma) 5,510 6.1% 144,383 6.9% High school graduate or equivalent 16,702 18.6% 367,556 17.6% Some college (no degree) 19,416 21.6% 436,584 21.0%
Associate’s degree 6,962 7.7% 162,649 7.8%
Bachelor’s degree 21,875 24.3% 506,749 24.3%
Graduate or professional degree 12,873 14.3% 277,384 13.3% Total 89,896 100% 2,077,783 100%
Source: US Census Bureau 2015f.
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Table 2-4 shows the language proficiency among residents five years of age and older in Fullerton and Orange County.
ECONOMY AND COMMUTE PATTERNS
Fullerton’s economy features a robust education sector. According to the US Census, nearly 8,500 jobs are in educational services (approximately 16 percent of all jobs in Fullerton). Other major economic sectors are manufacturing (approximately 15 percent) , healthcare and social assistance (approximately 14 percent), and retail trade establishments (approximately 12 percent) (US Census 2017). Most of Fullerton’s largest employers are in education, healthcare, and aerospace. Table 2 -5 shows the major employers in the community.
TABLE 2-5: TEN LARGEST EMPLOYERS IN FULLERTON (2017)
Employer Industry
Number of
Employees
Percent of Total
Employees
California State University, Fullerton education 3,450 4.8% St. Jude Medical Center healthcare 1,963 2.7%
Raytheon Systems Co. aerospace 1,320 1.8%
Albertsons Regional Office retail 950 1.3%
Alcoa Fastening Systems metals 750 1.0%
City of Fullerton government 713 1.0%
St. Jude Heritage Health healthcare 604 0.8%
Kimberly-Clark personal care 440 0.6%
Vista Paint Corporation construction 440 0.6%
Morningside of Fullerton healthcare 403 0.5%
Total (Top 10 employers) - 11,033 15.5%
All other employers - 59,967 84.4%
Total jobs - 71,000 100%
Source: Fullerton Comprehensive Annual Financial Report 2017.
Fullerton residents are mostly commuters —approximately 90 percent of employed residents travel outside of the community for work. They mostly travel to Anaheim, Santa Ana, Irvine, Costa Mesa, and other Orange County communities. Similarly, approximately 90 percent of people who work in Fullerton TABLE 2-4: LANGUAGE PROFICIENCY OF RESIDENTS 5+ YEARS OF AGE, FULLERTON AND ORANGE COUNTY (2015)
Language Spoken
at Home
Fullerton Orange County
Number of
Speakers
Percent Not
Proficient in English
Number of
Speakers
Percent Not
Proficient in English
English 67,986 - 1,587,426 -
Spanish 32,704 41.4% 770,012 44.5%
Korean 13,510 58.7% 76,934 58.1%
Chinese 4,692 57.8% 71,112 48.9%
Tagalog 2,219 23.2% 48,176 26.7%
All other languages 9,128 40.0% 371,309 44%
Total 130,239 - 2,294,969 -
Source: US Census Bureau 2015g.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 2-5
come from other communities, predominantly from Anaheim, Los Angeles, and Santa Ana as well as other communities in Orange County (US Census 2017).
With major employers in the education, healthcare, a nd aerospace fields as well as the significant employment base throughout the City, Fullerton experiences a large increase in daytime population due to employee and student commutes. In 2018, CSU Fullerton had an enrollment of over 39,000 students, of which approximately 99% live off campus. In addition, Fullerton Community College is located several miles west of CSU Fullerton and has a total enrollment of approximately 24,000 students of which roughly one-third are considered full time with the remaining considered part time students.
LAND USES
The Fullerton Plan identifies the land uses allowed in the City ( Figure 1 ). A majority of city land is designated for residential use. Other major uses designated throughout the City include Greenbelt Concept and Parks and Recreation, which contain large areas of active and passive open space, as well as industrial areas within the southern portions of the City. Other uses of significance include School, Government, and Religious Institution. (Fullerton 2016).
DEVELOPMENT TRENDS
Current development activities in the city typically involve residential or mixed-use infill development, usually on low-density commercial centers or parking lots, or rehabilitation of existing structures. In 2018, there were 33 develo pment projects in progress under the supervision of the Community Development Department. These development projects include adaptive reuse of existing structures, commercial redevelopments, residential subdivisions, and mixed -use developments. Development of this plan has taken this new development into account and is informing land use planning decisions as these projects continue through the entitlement process. As a result, no further risks to Fullerton from these developments has resulted since the preparation of the previous LHMP. Table 2-6 shows the number of developments in Fullerton by type:
TABLE 2-6: DEVELOPMENT CATEGORIES
Development Type Number
Active Transportation 1
Adaptive Reuse 2
Apartment/Multifamily 7
Commercial 12
Industrial/Institutional 5
Mixed-Use 3
Single-Family Residential 2
Source: Fullerton 2018.
Notes of August 20, 2018.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 2-6
INFRASTRUCTURE ASSESSMENT
ELECTRICITY
Fullerton receives its electricity from Southern
California Edison, which is one of California’s four
major inv estor-owned utility companies and the
largest electrical supplier in the state (CEC 2016). 1
Southern California Edison sources electricity from
power plants throughout California and neighboring
states and delivers it throu gh a network of large -scale power lines and substations (CEC 2015a).
The one registered commercial power plant in the city
is the CSUF Trigeneration natural gas plant on the CSUF campus. There are also a number of noncommercial
plants in Fullerton, including the CSUF State College
solar photovoltaic plant, a natural gas plant on the Kimberly-Clark campus in southeastern Fullerton, and a number of small -scale solar panel installations. Fullerton has seven power substations: the Norweld, Gilbert, Sunnyhills, Basta, Fullerton, Paper, a nd Titans Substations. All of these substations are operated by Southern California Edison. There are also a number of nearby substations outside the city that are operated by Southern California Edison or by other providers. The major transmission lines in Fullerton run along Walnut Avenue, Orangethorpe Avenue, and Imperial Highway (State Route 90) and connect Fullerton to substations outside of the city. While these are not all of the transmission lines running through the City, these external connections provide Fullerton with some redundancies a gainst power outages in the event that individual power lies are damaged, although damage to a substation or more widespread damage to power lines could result in a greater loss of power (CEC 2015b, 2017a).
NATURAL GAS AND OIL
Natural gas service in Fulle rton is provided by the Southern California Gas Company. There is one major transmission line running along S Placentia Avenue as well as a high -pressure distribution line with branches running along Brookhurst Street, W Valencia Drive, S Placentia Avenue, and Nutwood Avenue.
No other large pipelines are present (SoCalGas 2018; CEC 2017b). Various facilities in neighboring Placentia, Anaheim, Brea, and other surrounding communities help to keep the natural gas flowing safely and reliably (CEC 2017b). Oil pipelines run through the neighboring cities of Buena Park and Brea; however no major transmission lines run through the City. Damage to transmission lines in Fullerton or to facilities in surrounding communities co uld impact services in Fullerton. Because natural gas is highly flammable and potentially combustible, any rupture in a natural gas pipeline or an accident that causes a spark around natural gas could lead to a fire or explosion. Similarly, an oil pipeline breach in neighboring cities could also lead to a fire that could impact Fullerton.
1 As of 2015, as measured by the amount of electricity supplied.
Electrical substations are vital facilities to ensure that electrical service is safe and reliable. Image from Paul Chernikhowsky.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 2-7
Figure 2-1: General Plan Land Use Map
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 2-8
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City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 2-9
WATER AND WASTEWATER
Most of Fullerton’s water is groundwater supplied by the Orange Coun ty Water District; the remaining water is imported from the State Water Project and Colorado River and is supplied to Fullerton through regional agencies. Figure 2 shows the proportions of water sources for the City (Fullerton 2015).
Figure 2-2: Water Sources in Fullerton
Sources: Fullerton 2012, 2015.
Because some of the water used in Fullerton does not come from sources within the community, there is a risk that damage to local pipeline s and pumping stations may interrupt the residents’ water supply. Imported water or groundwater pumped from elsewhere in Orange County may be affected by damage to water treatment plants and delivery infrastructure in the county. Water infrastructure damage in the Los Angeles Basin or the major aqueducts that supply the region may affect imported supplies.
According to Fullerton’s 2015 Urban Water Management Plan, the City maintains 15 storage reservoirs with a capacity of 69.5 million gallons. With a daily water demand of 223 gallons per capita per day (GPCD) and using the City’s 2015 population of 138,976 people, the City has enough reserves to supply everyone’s needs for roughly two days (Fullerton 2015). 2 This assumes no restrictions are enacted or that GPCD does not decrease. The City maintains connection to a regional pipeline network that allows it to receive water from other Orange County water suppliers in the event of short-term emergencies.
Wastewater service in the community is supplied by the Orange County Sanitation District (OCSD).
The City operates miles of sewer lines and pump stations that collect wastewater from buildings and facilities in Fullerton and conveys it to regional wastewater treatment facilities. The nearest wastewater treatment facility is the OCSD Plant in Fountain Valley. Damage to the C ity-owned
2 This is determined by dividing the amount of reserve water by the GPCD multiplied by the City’s 2015 population. It can be expressed as the following equation: Reserve Capacity / (GPCD x 2015 population) = reserve duration period.
0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
City of Fullerton
Orange County Water District Metropolitan Water District City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 2-10
sewer system or to OCSD facilities may reduce treatment capacity or cause a leak, which in turn may pose a hazard to human and environmental health (Fullerton 2012a, 2015).
TRANSPORTATION
A system of major and primary arterial
highways provides vehicular circulation
throughout the city. The east-west highways
providing access to/from and through the city
are Imperial Highway (State Route 90),
Bastanchury Road, Malvern/Chapman
Avenue, Commonwealth Avenue, and
Orangethorpe Avenue. Similarly, Beach
Boulevard (State Route 39), Euclid Street,
Harbor/Brea Boulevard, State College
Boulevard, and Pl acentia Avenue provide the
north-south highways. The Orange Freeway
(State Route 57) runs along Fullerton’s
eastern border and the Riverside Freeway
(State R oute 91) runs along the s outhern border of Fullerton, and the Santa Ana Freeway (Interstate 5) runs nearby the southwest city limits . In the event of an emergency, most community members would likely evacuate in either direction along any of these arterial highways. If any of these routes become inaccessible, the other roadways and local streets could easily become congested. Use of the roadway system as evacuation routes will be based on the incident occurring and areas of the city impacted.
The Orange County Transportation Authority runs bus lines that connect Fullerton with cities in Los Angeles and Orange Counties. Fullerton’s rail station in the downtown area is served by Metrolink commuter trains, Amtrak’s Pacific Surfliner route, and the long- distance Southwest Chief Amtrak train. Freight rail service is provided by BNSF Railroa d and Union Pacific Railroad.
The nearest airports with commercial service are John Wayne International Airport and Long Beach Airport. The Fullerton Municipal Airport serves general aviation aircraft.
The pedestrian bridge over the tracks at the Fullerton
Station. Image from PlaceWorks.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-1
CHAPTER 3
3. HAZARD ASSESSMENT
This chapter discusses the types of hazards that might reasonably happen in Fullerton. It describes these hazards and how they are measured, where in Fullerton they may occur, a history of these hazards in and around Fullerton, and the future risk they pose. The discussion of future risks includes any changes to the frequency, intensity, and/or location of these hazards as a result of climate change. This chapter also discusses how the Hazard Mitigation Planning Committee selected and prioritized the hazards in this Plan.
HAZARD IDENTIFICATION
Federal Emergency Management Agency (FEMA) guidance identifies a number of hazards that communities should evaluate for inclusion in a hazard mitigation plan. Communities may also consider additional hazards for their plans. The Committee reviewed an extensive list of hazard events and excluded the ones that do not pose a threat to Fullerton. Table 3-1 lists the hazards considered by the Committee and indicates wh ich ones have been included in the plan. The table also shows if a hazard is recommended for consideration by FEMA and if it is included in the 2013 “California Multi-Hazard Mitigation Plan.”
TABLE 3-1: HAZARD EVALUATION FOR FULLERTON LHMP
Hazard
Recommended for
Consideration
Included
in LHMP? Reason for Inclusion or Exclusion
Agricultural pests California plan No No major agricultural activity or resources in Fullerton.
Air pollution California plan No Air pollution is a state and regional issue that is addressed through plans and regulations administered
by the South Coast Air Quality Management District
and/or California Air Resources Board.
Aircraft incident California plan Yes Aircraft incidents are a potential risk to Fullerton.
Avalanche FEMA guidance
California plan
No Avalanches do not happen in Fullerton.
Civil Disturbance or
Riot
California plan Yes The Committee determined that civil disturbances should be included in the LHMP.
Climate change California plan
Orange County HMP
Yes (as a
function of
other hazard
discussions)
Climate change contributes to the frequency,
intensity, and/or location of other hazards. It is not a stand-alone hazard. It will be discussed as a factor for future hazards rather than as an event.
Coastal flooding and
storms
FEMA guidance
California plan
No Fullerton is not a coastal city and is not affected by coastal flooding and storms.
Cyber Threats California plan Yes The Committee determined that cyber threats should be included in the LHMP.
Dam failure FEMA guidance
California plan
Orange County HMP
Yes Fullerton is within the dam inundation areas for
multiple dams in the region.
KEY TERM
Risk: The chance
of a hazard
happening—
especially one of
a particular size
or intensity.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-2
TABLE 3-1: HAZARD EVALUATION FOR FULLERTON LHMP
Hazard
Recommended for
Consideration
Included
in LHMP? Reason for Inclusion or Exclusion
Drought FEMA guidance
California plan
Orange County HMP
Yes Droughts are a recurring and potentially severe hazard in Fullerton.
Earthquake FEMA guidance
California plan
Yes Fullerton is in a seismically active area and has been impacted by earthquakes.
Energy shortage California plan No Fullerton is not responsible for supplying energy to the community.
Epidemic in Vector-
Borne Disease
California plan
Orange County HMP
Yes The Committee determined that epidemics and
vector-borne diseases should be included in the
LHMP.
Erosion FEMA guidance
California plan
Yes Erosion has occurred in certain areas of Fullerton and occasionally threatens property and human health.
Expansive soil FEMA guidance
No There are no expansive soil issues identified in
Fullerton.
Extreme cold FEMA guidance
California plan
No Temperatures in Fullerton rarely become cold enough
to pose a threat to health or safety.
Extreme heat FEMA guidance
California plan
Yes The Committee determined that extreme heat is a
hazard of concern to Fullerton.
Flood FEMA guidance
California plan
Orange County HMP
Yes Flooding has occurred in certain areas of Fullerton and occasionally threatens property and human health.
Fracking California plan No While petroleum production occurs in and around Fullerton, fracking is not widely used enough within
the city to pose a hazard to be included.
Hail FEMA guidance No Hail that is severe enough to pose a threat to people and property is too rare in Fullerton to be included.
Hazardous materials
release
California plan Yes The Committee determined that hazardous material releases are a hazard of concern.
Hurricane FEMA guidance
No Fullerton has never been significantly affected by a hurricane.
Infrastructure failure California plan No The Committee determined that any sizeable risks posed by infrastructure failures are adequately
addressed by other hazards in this LHMP.
Landslide FEMA guidance
California plan
Orange County HMP
Yes Landslides can occasionally occur in Fullerton.
Levee failure FEMA guidance
California plan
No The committee determined that hazards related to
levee failure are not an issue of concern for the City.
Lightning FEMA guidance No Although lightning occurs occasionally in Fullerton, it is not sufficiently threatening to be separately
included in this Plan. Any risks are addressed by other hazards in this LHMP.
Metal theft California plan No This issue was not identified by the Committee as a concern in Fullerton.
Methane-containing
soils
FEMA guidance
Regional hazard plans
No There are no methane-containing soil issues identified in Fullerton
Nuclear hazard California plan No Nuclear hazards were not identified as a hazard of concern in Fullerton.
Sea level rise FEMA guidance
California plan
No Fullerton is not a coastal city and therefore cannot be inundated by sea level rise in the foreseeable future.
Severe wind FEMA guidance Yes Severe winds occasionally blow in Fullerton and pose a threat to people and property.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-3
TABLE 3-1: HAZARD EVALUATION FOR FULLERTON LHMP
Hazard
Recommended for
Consideration
Included
in LHMP? Reason for Inclusion or Exclusion
Severe weather and
storms
FEMA guidance Yes Fullerton is at risk from severe weather and storms that threaten public safety and property.
Storm surge FEMA guidance No Fullerton is not a coastal community and cannot be plausibly affected by storm surge.
Subsidence FEMA guidance Yes Fullerton could be at risk of being affected by some subsidence that could endanger property.
Terrorism California plan Yes The Committee determined that terrorism should be included in the LHMP.
Thunderstorm FEMA guidance
California plan
Yes Thunderstorms could pose a danger to Fullerton’s
residents and property. This hazard is discussed as
part of the severe weather hazard.
Tornado or Water
Spout
FEMA guidance Yes This hazard is discussed as part of the severe weather hazard.
Transportation
crashes
California plan Yes Fullerton is frequently impacted by transportation incidents.
Tree Mortality California plan
Orange County HMP
Yes This hazard is discussed as part of the drought and severe weather hazards.
Tsunami FEMA guidance
California plan
Orange County HMP
No Fullerton is not a coastal city and therefore cannot be impacted by tsunamis.
Urban Fires California Plan
Orange County HMP
Yes Fullerton has a history of urban fires that can
endanger public safety and health. This is jointly
discussed with wildfires under Fire Hazards.
Volcano FEMA guidance
California plan
No There are no volcanoes near enough to Fullerton to
reasonably pose a threat.
Wildfires California plan
Orange County Plan
Yes Wildfires in Fullerton are likely due to a large amount of open and natural spaces in the city, such as the
Coyote Hills. This is jointly discussed with urban fires under Fire Hazards.
The Hazard Mitigation Planning C ommittee combined multiple selected hazards into a single category, renamed some hazard types, and discussed some hazards with multiple subcategories in order to streamline the list and make it more accurately reflect the conditions in Fullerton. • Fire Hazards: combines urban and wildland fires.
• Geologic Hazards: includes landslides/mudflows and subsidence • Human-Caused Hazards: features aircraft incidents, civil disturbance or riot, transportation crashes, terrorism, and cyber threats.
• Seismic Hazards: addresses fault ruptures, seismic shaking, and liquefaction. • Severe Weather: includes severe wind, extreme heat, heavy rain, lightning and tornadoes.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-4
After hazard evaluation and the organizational changes made by the Committee, this Plan discusses 10 hazard types:
• Dam Failure
• Disease/Pests
• Drought
• Fire
• Flood
• Geologic Hazards
• Hazardous Materials Release
• Human-Caused Hazards
• Seismic Hazards
• Severe Weather
HAZARD SCORING AND PRIORITIZATION
The Committee followed FEMA guidance for hazard mitigation plans and prior itized each of the 10 hazards. In the initial step, the Committee assigned a score of 1 to 4 in four criteria for each of the 10 hazards. The four criteria are:
• Probability: The likelihood that the hazard will occur in Fullerton in the future. • Location: The size of the area that the hazard would affect. • Maximum probable extent: The severity of the direct damage of the hazard to Fullerton. • Secondary impacts: The severity of indirect damage of the hazard to Fullerton.
The Committee assigned a weighting value to each criterion, giving a higher weight to the criteria deemed more important, and multiplied the score for each criterion by the weighting factor to determine the overall score for each criterion. The weighting values were recommended by FEMA:
• Probability: 2.0
• Location: 0.8
• Maximum probable extent: 0.7
• Secondary impacts: 0.5
Table 3-2 shows the rubric used to assign a score for each criterion.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-5
TABLE 3-2: CRITERION SCORING
Probability
Maximum Probable Extent
(Primary Impact)
The estimated likelihood of occurrence based on historical data. The anticipated damage to a typical structure in the community.
Probability Score Impact Score
Unlikely—less than a 1 percent chance in a given year. 1 Weak—little to no damage 1 Occasional—a 1 to 10 percent chance in a given year. 2 Moderate—some damage, loss of service for days 2
Likely—a 10 to 90 percent chance in a given year. 3 Severe—devastating damage, loss of service for months 3
Highly likely—more than a 90 percent chance in a given
year. 4 Extreme—catastrophic damage,
uninhabitable conditions 4
Location Secondary Impact
The projected area of the community affected by the hazard. The estimated secondary impacts to the community at large.
Affected Area Score Impact Score
Negligible—affects less than 10 percent of the planning area. 1 Negligible—no loss of function, downtime,
and/or evacuations 1
Limited—affects 10 to 25 percent of the planning area. 2 Limited—minimal loss of functions, downtime, and/or evacuations 2
Significant—affects 25 to 75 percent of the planning
area. 3 Moderate—some loss of functions,
downtime, and/or evacuations 3
Extensive—affects more than 75 percent of the
planning area. 4 High—major loss of functions, downtime, and/or evacuations 4
After calculating the overall score fo r each criterion for each hazard, the scores for location, maximum probable
extent, and secondary impact were summed to
determine the total impact score for each hazard. FEMA
guidance recommends multiplying the total i mpact
score by the overall probability score to determine the final score for each hazard. A final score between 0 and 12 is considered a low -threat hazard, 12.1 to 42 is a
medium-threat hazard, and a score above 42 is
considered a high -threat hazard. This final score
determines the prioritization of the hazards.
Table 3-3 shows the individual criterion scores, the final score, and the threat level for each hazard based on the above prioritization process.
Earthquakes are high priority hazards because they are
likely to happen, affect a wide area, and can be very
damaging. Image from FEMA (FEMA News Photo).
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-6
TABLE 3-3: HAZARD SCORES AND THREAT LEVEL
Hazard Type Probability
Impact
Total
Score
Hazard
Planning
Consideration Location
Primary
Impact
Secondary
Impacts
Seismic Hazards 4 4 4 4 64.00 High
Fire (Urban/Wild) 4 2 3 3 41.60 Medium
Drought 3 4 2 2 33.60 Medium
Severe Weather (Heat,
Wind, Rain)
3 4 2 2 33.60 Medium
Dam Failure 2 3 4 4 28.80 Medium
Human-Caused Hazards
(Aircraft, Civil Disturbance,
Transportation Accidents,
Terrorism, Cyber)
3 3 2 2 28.80 Medium
Geologic Hazards
(Landslide/Mudflows,
Subsidence)
3 2 2 3 27.00 Medium
Flooding 3 2 2 2 24.00 Medium
Hazardous Materials
Release)
3 2 2 2 24.00 Medium
Disease/Pests 2 2 2 2 16.00 Medium
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-7
HAZARD PROFILES
DAM FAILURE
Description
A dam failure occurs when a dam holding back the waters of a reservoir is no longer able to control the collection of the water. A dam failure could result from a dam breach in which a section of the dam disintegrates, allowing the reservoir’s waters to escape. A flood caused by a dam breach can move swiftly and be very powerful. Other hazardous situations, such as a major flash flood or strong earthquake, can trigger a dam failure, especially if the dam is aging or deteriorating. A mechanical malfunction c an also cause a dam failure if the dam is not maintained or operated correctly. When assessing dam failure hazards, it is assumed that impacts occur based on a full reservoir.
Location and Extent
Dam inundation maps show areas downstream that would be inundated by water from an unintentional release of water from a dam’s reservoir. All owners of High -Hazard Potential (HHP) dams have the legal liability to provide a map of inundation areas as part o f an Emergency Action Plan. Figure 3 -1 shows the areas in Fullerton that could flood as a result of dam failure. These maps were created using a combination of LIDAR and field survey, in conjunction with US Army Corps of Engineers software. The areas that could flood in the case of a dam breach are not necessarily the same areas that could be inundated by a 100 - year or 500-year flood.
The Army Corps of Engineers uses the Dam Safety Action Classification (DSAC) scale to measure the potential for dam breach. Table 3-4 shows the DSAC ratings.
TABLE 3-4: DAM SAFETY ACTION CLASSIFICATION (DSAC) RATINGS Rating
Numeral Rating Name Description
I Urgent and Compelling
(Unsafe)
Dams where progression toward failure is confirmed to be taking place under normal operations, and the dam is almost certain to fail under normal operations within a time frame from immediately to within a few years without intervention; or the combination of life or economic consequences with probability of failure is extremely high.
II Urgent (Unsafe or
Potentially Unsafe)
Dams where failure could begin during normal operations or be initiated as the consequence of an event. The likelihood of failure from one of these occurrences, prior to remediation, is too high to assure public safety; or the combination of life or economic consequences with probability of failure is very high.
III High Priority
(Conditionally Unsafe)
Dams that have issues where the dam is significantly inadequate or the combination of life, economic or environmental consequences with probability of failure is moderate to high.
IV Priority (Marginally
Safe)
Dams are inadequate with low risk such that the combination of life, economic or environmental consequences with a probability of failure is low, and the dam may not meet all essential USACE engineering guidelines.
V Normal (Adequately
Safe)
Dams considered adequately safe, meeting all essential agency guidelines, and the residual risk is considered tolerable.
Source: Army Corps 2018e.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-8
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Local Hazard Mitigation Plan | Final City Council Draft 3-9
Figure 3-1: Dam Failure Inundation Zones
(Army Corps)
(ACOE)
(ACOE)
(ACOE)
(MWD)
(ACOE)
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-10
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City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-11
Past Events
While California’s dam infrastructure is fairly recent in the state’s history, there have al ready been major
catastrophic dam failure events. One of earliest in
Southern California was the failure of the San
Francisquito Canyon Dam. The dam experienced a
structural failure as a result of insufficient
geotechnical engineering by the then -Los Angel es
Bureau of Water Works and Supply. At midnight of
March 13, 1928, the 205-foot-tall structure gave way,
unleashing a 120-foot-high wave of water traveling 18
miles per hour down the canyon. By 5:30 AM, the
wave had traveled 54 miles from the dam site to the
Pacific Ocean, killing at least 438 people, razing towns, and destroying infrastructure. It was reported that the bodies of victims were recovered from the ocean as far south as the Mexican border. The disaster is considered one of worst engineering failures in US history (Dam Safety Officials 2018a; Rogers 2013).
Another, more recent, dam failure in the region occurred at the Baldwin Hills Dam. On December 14, 1963, a structural failure in the dam caused a breach that unleashed 250 million gallons of reservoir water.
Diligent work by maintenance crews detected the de veloping failure in the dam four hours before it breached, and they, with the cooperation of local law enforcement, were able to successfully evacuate and save nearly 1,500 people downstream from the reservoir. Five lives were lost in the ensuing wave of water, 65 homes were destroyed, and nearly $11 million worth of property damage was incurred (Dam Safety Officials 2018b; CLUI 2018).
In Fullerton itself, only one dam incident has occurred, which involved an extensive episode of winter rains in 2005 inundating the Brea Dam reservoir, causing water to spill over its crest. The Fullerton Golf Course and sections of Bastanchury Road were flooded with water, but no lives were lost. The golf course was damaged, and an adjacent storm channel was eroded by the flood waters (Fullerton 2010).
Risk of Future Events
Due to the presence of several dams within and near Fullerton, large areas of the city could be at risk of inundation in the case of signif icant dam failure. Some of the potential consequences of dam failure are death or injury, people displaced from their homes, damage to existing public and private buildings, damage to infrastructure, loss of services from utilities, loss of government services, and economic losses.
The US Army Corps of Engineer s (ACOE) evaluates and rates dams based on confirmed or unconfirmed safety issues, probability of failure, and the potential consequences.
Prado Dam is an earth -filled dam built in 1941 by the Army C orps of Engineers on the Santa Ana River near the city of Corona i n Riverside County. It is the primary flood control facility of the Santa Ana River watershed and has an area of approximately 10,000 acres. The Army Corps of Engineers Dam Safety Program has given the dam a DSAC III rating, which means it poses a moderate to high potential for The Brea Dam in Fullerton with the basin partially filled.
Image from Fullerton Walks.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 3-12
damage if it fails. Generally, there is water impounded behind the dam during most of the year but during drought events the reservoir can be empty (OCWD 2016; Army Corps 2018a).
Brea Dam is a flood control dam built in 1942 and owned by the Army Corps of Engineers. Located in Fullerton, it controls the flow of water from Brea Creek and its tributaries. This dam and its reservoir are normally empty and intended to detain waters from a rainstorm.
The dam has received a DSAC III rating, which means it poses a moderate to high potential for damage if it fails. The dam has a potential for failure from the erosion of the embankment, overtopping from flooding, and erosion of the flood control channel (Army Corps 2018b).
Carbon Canyon Dam, which completed construction in 1961, is a flood risk management project operated by the Army Corps of Engineers, Los Angeles District. It is near the northern edge of Orange County in Yorba Linda (Army Corps 2018c). The Army Corps of Engineers Dam Safety Program has given the structure a DSAC II rating, which means it means it has a high risk of failure without remediation efforts. The dam has a high potential for failure due to erosion of the embankment (Army C orps 2018c). This dam and its reservoir are normally empty and intended to detain waters from a rainstorm.
Fullerton Dam is a single purpose flood control dam that was built in 1941 as part of the Santa Ana River Mainstem project and is in the eastern section of Fullerton (Army Corps 2018d). The dam was constructed to provide flood risk protection for Fullerton. The dam has a flood risk rating of DSAC IV, which means it is inadequate but poses a low threat to life, the economy, or the environment. The risks of dam failure are related to the potential for seepage and piping along embankment and the outlet conduit (Army Corps 2018d). This dam and its reservoir are normally empty and intended to detain waters from a rainstorm.
The Orange County Reservoir, built in 1941, is an earthen-filled dam in the City of Brea. It is owned by the Metropolitan Water District of Southern California and manages water supply. This dam has not been evaluated by the Army Corps of Engineers so there is no corresponding DSAC rating for this facility. This dam and its reservoir are normally empty and intended to detain waters from a rainstorm.
Climate Change Considerations
Climate change could increase the risk of a dam failure. More frequent and intense episodes of rain storms may increase the likelihood that the reservoir infrastructure of California could become overwhelmed, including the dams that control floodwaters from inundating Fullerton and the rest of Orange County.
Indirectly, increased climate change-induced rains may cause more erosion which could compromise the structural integrity of the dam or the foundation it sits on.
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DISEASE/PESTS
Description
An epidemic is when an infectious disease spreads
beyond a local population, reaching people in a wide
geographical area. A disease that reaches global
proportions is considered a pandemic. The two main
categories that impact the spread of disease are the
ease with which a pathogen moves from person to
person, and the behavior of individuals and societies.
Pests are organisms whose presence is seen as a
nuisance since they are capable of being vectors for
certain diseases. Examples include insects or rodents.
Vector-borne diseases are spread by pests to animals and humans. Sometimes the disease is not spread directly from vector to human but can jump first to an intermediary, like a domesticated animal, where it evolves into a form that can be hosted by humans. These kinds of diseases are referred to as zoonoses.
Diseases and pests of concern in Fullerton include:
• Influenza (the Flu) is a virus that leads to illness in humans, with such symptoms as fever, cough, headache, sore throat, muscle and joint pain, or runny nose. It is one of the most common infections worldwide and kills up to 500,000 people each year (WHO 2014). • Mosquitoes are an insect that feeds upon the blood of humans. In so doing, mosquitoes leave itchy bites but can also transmit diseases t o their victims. Examples of some of these diseases include West Nile Virus and Zika, though West Nile Virus is the more recurrent of the two. • Mice and rats are pests that can transmit diseases or be a vector for other disease -carrying organisms. The most well -known example of this is Bubonic Plague, which was transmitted by fleas burrowed into the fur of rats and mice.
Location and Extent
Diseases can be spread virtually anywhere and are not bound to specific locations in Fullerton. As long as humans are present in a certain area, there is the potential for disease. Some vector -borne diseases, however, may be more prevalent in certain areas of the city. For e xample, street catch basins, storm drains, roadside ditches, flood channels, ravines, and similar places on the public right-of-way can put the Fullerton community at risk of mosquito -borne diseases bec ause these places are breeding grounds for mosquitoes (Fullerton 2010). Garbage dumpsters or open waste may also attract mice and rats.
Most diseases do not have a particular scale to measure their severity or extent, with the exception of influenza. Influenza is measured using the Pandemic Influenza Phases s cale established by the World Health Organization (WHO). Table 3-5 shows this scale and describes each phase.
Vaccination is one method to address the threat of
diseases in Fullerton. Image from TODAY
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Past Events
Vector-borne disease and epidemics have struck Fullerton and/or greater Southern California. Some major cases include:
H1N1: The 2009 H1N1 flu virus, also known as the swine flu, caused global health impacts and illustrated the risk of emerging viruses. In Orange County, there were 226 severe 3 and 57 fatal cases of the H1N1 virus, tracked by the Orange County Health Care Agency (OCHCA) (OCHCA 2009).
Hepatitis A: There was a hepatitis A outbreak that began in San Diego County in November 2016 and later spread to Santa Cruz, Los Angeles, and Monterey counties. The majority of people infected were homeless persons or those using drugs. In October 2017, Governor Brown issued an emergency proclamation that allows the s tate to increase its supply of hepatitis A vaccines in order to control the ongoing outbreak (County of San Diego 2018)
Measles: In 2015, a measles outbreak began, linked to Disneyland in Anaheim. The cause of the outbreak was likely a person infected with measles who vis ited Disneyland and infected other park visitors who were not vaccinated, most of whom were under 18 years old. By the end of 2015, the OCHCA had tracked 35 reported cases. By 2016, however, all cases had been remedied and the number returned to zero (CDC 2015; OCHCA 2017).
West Nile Virus: Between 2013 and 2017, the number of cases of West Nile Virus decreased. The height of West Nile Virus infections was in 2014 with a peak of 280 reported cases. The following year there was a dramatic red uction to 97 rep orted cases. This trend continued into 2017, when only 38 cases were reported (OCHCA 2017).
Risk of Future Events
All of Fullerton is at risk of being affected by a disease or by pests carrying diseases. While the City and regional jurisdictions can take precautions to reduce the spread of diseases, the spread of disease cannot
3 Severe case being defined as one needing intensive care.
TABLE 3-5: PANDEMIC INFLUENZA PHASES
Phase Description
Phase 1 No animal influenza virus is known to have caused infection in people.
Phase 2 An animal influenza virus has caused infection in people. There is a potential pandemic threat.
Phase 3 An animal influenza virus has caused occasional infections or infections in small groups. There may be limited human-to-human transmission, but nothing large enough to sustain community-level outbreaks.
Phase 4 Human-to-human transmission is able to sustain community-level outbreaks. There is a significantly higher risk of a pandemic.
Phase 5 Human-to-human transmission in at least two countries in the same region. A pandemic is likely imminent.
Phase 6 Human-to-human transmission in at least two countries in the same region and in at least one other country outside of the region. A pandemic is underway.
Post-peak Transmission levels are declining below peak levels, although second waves may occur and transmission could return to previous levels or higher.
Post-pandemic Transmission levels have returned to normal levels for seasonal influenza outbreaks.
Source: WHO 2017.
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entirely be eliminated. Some diseases such as influenza return every year since the virus that causes influenza evolves very rapidly. Others such as the measles can be contained so long as the general population remains inoculated against the viruses that cause them.
An especially severe flu pandemic could lead to a high number of illnesses, deaths, and hospitalizations.
Students who are unvaccinated may be excluded fr om school for se veral days, as was the case in 2015 (CDC 2015; OCHCA 2017) . Restrictive measures may have to be placed on public transportation, health care, food delivery, or other services that could potentially spread the disease.
Climate Change Considerations
Climate change is expected to bring warmer temperatures to Fullerton, which may cause the insects, pests, and other vectors that carry disease to remain active for a larger part of the year. This could likely lead to an increase in the threa t of e xposure. Furthermore, pathogens and vectors not currently in Fullerton may migrate into the area in association with the warmer temperatures. As an example, mosquitoes contaminated with yellow fever, dengue fever, and Zika now have an extended range, not seen previously, due to climate change (Mckenna 2017). It is also anticipated that warmer winters will increase the number of early and severe epidemics (Towers 2013).
DROUGHT
Description
A drought is a long period during which precipitation levels a re sig nificantly below normal. The most common effect is that plants dry out and become more susceptible to agricultural pests or diseases. An abundance of dry plant matter may also increase the risk of wildfires or cause fires to be more intense.
In severe cases, droughts can affect urban areas. A significant drought can lead to water shortages, which may force local water suppliers to institute mandatory restrictions on nonessential water use. In extreme cases, there may not be enough water to meet basic health and hygienic needs, requiring communities to find alternative water supplies. Since many communities receive their water from far-away sources, such as the Sierra Nevada or Colorado River, it is common in California to experience “long-distance droughts,” where precipitation levels may be normal in the community itself, but low at the source of the community’s water.
Location and Extent
Droughts are large-scal e events, and so drought risks and conditions are generally equal across all of Fullerton. Furthermore, since Fullerton sources approximately 30 percent of its water non-locally, a drought in those areas could impact Fullerton as well. When precipitation levels are normal or above normal in Fullerton, a drought in the areas where Fullerton’s water comes from can still affect Fullerton’s residents.
The US Drought Monitor Classification Scheme is a common scale used to measure the impact of droughts in different communities across the United States. See Table 3 -5 for a complete description of each drought event classification.
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TABLE 3-6: US DROUGHT MONITOR CLASSIFICATION SCHEME
Category Description Possible Impacts
D0* Abnormally dry Slower growth of crops and pastures.
D1 Moderate drought
Some damage to crops and pastures. Water bodies and wells are low. Some water shortages may occur or may be imminent. Voluntary water use restrictions can be requested.
D2 Severe drought Likely crop and pasture losses. Water shortages are common, and water restrictions can be imposed.
D3 Extreme drought Major crop and pasture losses. Widespread water shortages and restrictions.
D4 Exceptional drought Exceptional and widespread crop and pasture losses. Emergency water shortages develop.
Source: US Drought Monitor 2018a.
* D0 areas are those under “drought watch” but not technically in a drought. They are potentially heading into drought conditions or recovering from drought but not yet back to normal.
Past Events
Fullerton, like the res t of California, has experienced numerous droughts over its history. Each droug ht event has varied in its length, severity, and frequency. One of the earliest recorded droughts in settled California history is the “Great Drought” of 1863 and 1864, which le d to the decline of California’s cattle industry. From 1928 to 1935, the “Dustb owl Droughts” greatly affected the state’s agricultural sector, setting the stage for the development of water infrastructure like the State Water Project and the California Aqueduct. Contemporary statewide water conservation practices have their roots in a severe drought that began in 1976 and ended in 1977. More recent droughts occurred from 1987 to 1992 and in the first decade of the 21st century, from 2007 to 2009 (Cal OES 2018; Kotin and Marion 2014; DWR 2015).
The most recent drought in California’s h istory was also one of the most severe, beginning in 2012 and ending in 2017. All areas of the state were affected by the drought, and by its second year it was already determined to be the worst drought on record in the last 1,200 years (Griffin and Anchu kaitis 2014). By summer 2014, nearly the entire state was experiencing D2 (severe drought) conditions. Fullerton, all of Orange County, and more than 75 percent of California was ranked as having D4 (extreme drought) conditions. Water -saving mandates from the State were in place by 2015, which required all municipalities, including Fullerton, to reduce their water consumption rates by 25 percent (Megerian et al. 2015). Heavy rainfall in the winter of 2016-2017 effectively ended the drought across the state (Boxall 2017), although low levels of precipitation in the winter of 2017-2018 have caused a return of more moderate drought conditions across large sections of California. Figu re 3-2 shows the progression of the drought starting in the summer of 2013 and ending with the most recent drought conditions.
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Figure 3-2: Statewide Drought Conditions from 2013 to 2018
Approximate Location of the City of Fullerton
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Figure 3-3: Statewide Drought Conditions as of March 5, 2019
As of March 2019, approximately 1 percent of California was experiencing at least D1 (Moderate Drought) conditions, and approximately 10 percent of the state was experiencing at least D0 (Abnormally Dry) conditions, which usually is considered to be a “drought watch” period. Large sections of S outhern California, including most of Orange County, were experiencing D0 (Abnormally Dry) or greater conditions.
Figure 3-3 shows statewide drought conditions as of March 5, 2019.
Risk of Future Events
As droughts are expected to continue across Californi a, it is also anticipated that droughts and drought conditions will continue to occur in Fullerton. Areas of concern where drought could impact the community, include vegetation within natural areas and landscaped areas (parks, medians, managed open space areas).
Climate Change Considerations
Climate change is anticipated to affect water supply in Fullerton. Much of Southern California’s water supply comes from the snowpack of the Sierra Nevada in Northern California. It is expected that a warming climate will melt the Sierra Nevada snowpack sooner into the year, shortening the amount of time that the snowpack remains into the spring and summer seasons. Warmer temperatures are also expected to
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cause more precipitation to fall as rain rather than snow, further decreasing the size of the snowpack. As a result, it is likely that less water will be flowing into the reservoirs and aqueducts that supply Southern California. This could add stress to the City’s water supplies, poten tially putting more stress on existing groundwater resources within the region. Climate change is projected to cause an increase in the frequency and intensity of extreme precipitation events, which includes droughts as well as intensive flooding. Additionally, hotter temperatures are expected to increase demand for water supply for landscape maintenance in urban areas. Fullerton’s natural areas in the Coyote Hills are likely to be at risk of being negatively impacted by more frequent and severe droughts in the future.
FIRE
Fire hazards occur when fuel, such as dead vegetation, industrial materials, or buildings, ignite and catch fire. Without human intervention, fire hazards can spread rapidly and affect large swaths of land, both wild and developed. In general, there are two kinds of fires: urban and wild.
Description
Urban fires: Urban fires are fires that emerge in developed areas of a community or city. Generally, these fires affect residential properties, businesses, public spaces, and government facilities. They are capable of inflicting heavy damage, injury, or even death. Urban fires have a number of causes, but some example ignition sources include: downed power lines, breached gas pipelines, improper storage of hazardous or flammable material, or lack of building maintenance. Urban fires may also be intentionally started through arson.
Wildfires: Wildfires begin in natural, undeveloped land. Wildfires sometimes ignite due to natural circumstances, such as intense heat combined with masses of dead vegetation , or lightning strike. Dry vegetation is highly combustible when the weather is hot and dry. Fires can also ignite under windy conditions from the friction caused by vegetation rubbing together. Humans can also start wildfires, either intentionally or unintentionally. A downed power line in a wind event, for example, could catch the surrounding landscaping or buildings on fire, or an unextinguished cigarette tossed into dry grass may ignite and cause a wildfire. Sometimes humans intentionally burn wi ld landscapes, often for land management purposes.
Topography can play a role in influencing the speed and direction of a wildfire. Because heat rises, fires move faster uphill, so a steep slope can make a fire spread faster. Thus, fires are a greater risk in mountainous areas.
The space between the urban and wild zones of land is referred to as the Wildland-Urban Interface (WUI).
The WUI is where the fringe of an urbanized region meets natural landscapes. While some of the land in the WUI has been develo ped, there is likely to be wildla nd in the periphery containing vast quantities of fuel that could ignite. The residents and property owners in these areas are most at risk for incurring property damage or suffering physical harm from fires.
In California, fires are one of the most common hazards in the state, with nearly 5,400 wildland fires and more than 156,000 acres burned between 2011 and 2015 alone (CAL FIRE 2018a).
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Location and Extent
There is no specific scale of measurement for fires apa rt from the destruction they cause (acres bu rned, structures razed, injuries, deaths, cost of damage, etc.). The risk level for wildland areas with an elevated chance of wildfires is measured using a three -tier scale of fire hazard severity zones (FHSZs)—v ery high, high, and moderate. Areas at eleva ted risk of fire are also classified by the corresponding fire response jurisdiction. Federal Responsibility Areas (FRAs) are under the purview of the United States government, including such agencies as: the US Forest Service, the Bureau of Land Management, and the National Park Service. State Responsibility Areas (SRAs) are governed by the California Department of Forestry and Fire Protection (CAL FIRE), and Local Responsibility Areas (LRAs) are responsibility o f local governments, such as counties and mu nicipalities. Figure 3-4 shows areas in Fullerton are designated fire hazard severity zones.
All of Fullerton is potentially at risk of some type of fire hazard. Since 90 percent of the City’s land is currently built-out, mostly with wooden-frame construction (Fullerton 2012b), there is potential for fires to emerge at any location in the city. Several rights -of-way bisect Fullerton, including freeways and railroads. It is possible that an auto collision or rail incident could start a fire that could spread to any of the developments adjacent to the right -of-way. Additionally, Fullerton’s location next to Carbon Canyon and Puente Hills—places where fires are prone to erupt, according to CAL FIRE —means that a fire could start in one of these undeveloped areas and spread to or affect nearby communities, including Fullerton (CAL FIRE 2011b).
Wildfires are a greater risk where there is a diversity of materials that can fuel a fire (OC HMP 2015). The construction of residential development near undeveloped land covered in chaparral, such as in the East and West Coyote Hills, creates a condition highly prone to wildfires (RSG 2018). Many species of chaparral are coated with flammable oils and resins. The presence of this type of brush in Southern California’s natural areas makes the region as a whole at risk of wildfires (NPS 2018).
The East and West Coyote Hills have been designated a very high FHSZ by CAL FIRE (CAL FIRE 2011a).
These hills are one of the few remaini ng open spaces in Fullerton. Other sections of the city have been designated high and moderate FHSZ. These areas include residential developments at the base of the West Coyote Hills and the area surrounding Brea Dam. The St. Jude Medical Center, as well as several City- owned or -operated youth facilities, are also within this elevated fire risk area.
Santa Ana winds, a weather phenomenon described in detail in the “Severe Weather” section are known to exacerbate fire conditions in California. Because Santa Ana events generally occur in the fall and winter seasons, the time when there is usually the greatest amount of fuel available for fires in Southern California, they are particularly dangerous (Abatzoglou et al. 2013). Given Fullerton’s position between the coast and the inland areas combined with the fuel found in the adjacent Puente Hills and Carbon Canyon, the city is at risk of being impacted by fires amplified by the Santa Ana winds.
Past Events
Some of the most recent fires have also been the largest. In fact, the top five largest fires in Califor nia have all occurred since the year 2000 (See Table 3-7).
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TABLE 3-7: TOP FIVE LARGEST FIRES IN CALIFORNIA SINCE 2000 Fire Name Date Acres Burned Structures Razed Deaths
Mendocino Complex July 2018 459,123 280 1
Thomas December 2017 281,893 1,063 2
Cedar October 2003 273,246 2,820 15
Rush August 2012 271,911 (in-state), 43,666
(out-of-state)
0 0
Rim August 2013 257,314 112 0
Source: CAL FIRE 2018b.
In November 2008, dry conditions and Santa Ana
Winds ignited the “Freeway Fire” in Corona which was
spread by Santa Ana Winds in excess of 60 mph across
the region, including the neighboring Orange County
communities of Yorba Linda, Brea, and Anaheim.
Upon containment, it was determined that more than
30,000 acres of land had been scorched, 381 buildings
burned, and numerous city and state parks destroyed
(OCFA 2018).Between the fall and winter months of
2017-2018, a torrent of fires swept across wildland
and urban areas in both northern and southern
California. They included the Thomas Fire, which
burned through 281,893 acres in both Ventura and
Santa Barbara Counties, and at the time was
California’s largest known wildfire. (It was surpassed
by the Mendocino Complex wildfires seven months later.) Multiple wildfires also burned in the northern San Francisco Bay Area during this time, which collectively were the deadliest wildfires in California’s history (CAL FIRE 2018b). Communities near Fullerton were also affected when “Canyon Fire 2” began October 9, 2017 in the neighboring Anaheim Hills and went on to burn 9,217 acres, destroying 25 structures and damaging 55 others. The fire was contained more than a week later on October 17 through multijurisdictional cooperation between CAL FIRE, Orange County Fire Authority, California Highway Patrol, Orange County Sheriff, Caltrans, SoCalGas, and many local fire and police departments (CAL FIRE 2018c).
Santa Ana Winds from the Great Basin are known to
contribute to wildfire risk.
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Figure 3-4: Fire Hazard Zones
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Fullerton has also seen smaller -scale urban and wildfire events in recent years. In 2015, following a prolonged period of drought throughout the state, a wildfire burned through dry vegetation near the Brea Dam, causing evacuations of the Fullerton Sports Complex and Fullerton Golf Course (Vives 2015).
Between 2016 and 2017, it was suspected that a serial arsonist was igniting a series of fires in trash bins in Fullerton. There were more than 15 such fires ignited in a five-month period (CBS Los Angeles 2017) In August 2017, a condominium complex in Fullerton caught fire during the night, causing damage to all three units. The complex was evacuated, and although nobody was injured, the fire caused nearly $200,000 in property damage (Schwebke 2017). In December 2017, a small, half-acre brush fire erupted in Fullerton causing damage to one building. No injuries were reported, and multiple agencies responded to the fire from surrounding local and county jurisdictions (Patch 2017).
Risk of Future Events
There is nothing to suggest that the frequency of fires in Fullerton will diminish in the future. The mostly built-out nature of the city indicates that it is likely that buildings will continue to catch fire. Fullerton’s recent history with arson in 2015 indicates that more arsonists could emerge in both the near - and long- term future. The various natural and undeveloped areas both within and around the City also present the risk that a wildland fire could ignite and affect Fullerton.
Climate Change Considerations
Climate change is expected to exacerbate fire hazards by creating more of the conditions under which they begin. With climate change, overall temperatures and the likelihood of drought in Fullerton will increase, leading to an increased amount of dry vegetation. More intense rain storms as a result of climate change may also create more fuel for wildland fires to burn through. Climate change is also likely to lead to more severe weather events, involving Santa Ana winds which will exacerbate wildfire risk. The link between climate change and urban fire is not well understood, but it is feasible that a severe, climate change–intensified drought could lead to limited water supplies, reducing the effectiveness of firefighting crews responding to urban fires in Fullerton.
FLOOD
Description
A flood occurs when land that does not normally have bodies of water becomes suddenly inundated with water. Flooding can occur after periods of heavy rainfall, whether it occurs as a single extreme episode or as a series of st orms. Drainages and stream courses may flood their banks and shores if their capacity is exceeded by rainwater. When heavy rainfall hits an area where the ground is already saturated, the risk of flooding is high. In developed areas, the presence of pavement and other impervious surfaces means that the ground is less able to absorb water. As a result, rainwater must be carried away in storm channels or waterways.
Floods pose a number of threats to communities and public safety. Flooding can cause property damage, destroy homes, and carry away vehicles or other large debris. Topsoil and vegeta tion can be swept away by floodwaters, leading to erosion. Floodwaters may impede the movement of victims fleeing a flood or of first responders attempting to reach people in need of help.
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Location and Extent
Flood events are measured by their likelihood of occurrence. For instance, a 100-year flood is a flood that has a 1 in 100 (1.0 percent) chance of occurring in any given year. A 500-year flood is a flood th at has a 1 in 500 (0.2 percent) chance of occurring in any given year. The 100-year flood has been designated as the benchmark for major flood events, and thus 100-year floods are referred to as “base floods.” Floodplains are areas that experience frequent flooding. While it is possible for areas outside of these designated floodplains to experience flooding, the areas most likely to experience future flooding are low- lying areas near bodies of water. FEMA is the governmental body responsible for designating which areas of the United States can be classified as floodplains. The three most common designations are:
• Special Flood Hazard Area: The area within a 100-year floodplain. • Moderate Flood Hazard Area: The area outside of the 100-year floodplain but within the 500-year floodplain.
• Minimum Flood Hazard Area: The area outside of the 500-year floodplain.
Within these three designations, FEMA has multiple floodplain categories for each unique environment.
Table 3-8 shows these detailed floodplain categories.
TABLE 3-8: FEMA FLOOD PLAIN CATEGORIES
Category Description
A Within a 100-year flood plain, but the water height of the 100-year flood is not known.
A1-30 or AE Within a 100-year flood plain and the water height of the 100-year flood is known.
AO Within a 100-year flood plain, and the water height of the 100-year flood is between one and three feet but not specifically known.
A99 Within a 100-year flood plain, protected by flood protection infrastructure such as dams or levees.
AH Within a 100-year flood plain, and the water height of the 100-year flood is between one and three feet and is specifically known.
AR Within a 100-year flood plain, protected by flood protection infrastructure that is not currently effective, but is being rebuilt to provide protection.
V Within a 100-year flood plain for coastal floods, but the water height of the flood is not known.
V1-30 or VE Within a 100-year flood plain for coastal floods and the water height of the flood is known.
VO Within a 100-year flood plain for shallow coastal floods with a height between one and three feet.
B Within a 500-year flood plain, or within a 100-year flood plain with a water height less than one foot (found on older maps)
C Outside of the 500-year flood plain (found on older maps) X Outside of the 500-year flood plain (found on newer maps) X500 Within a 500-year flood plain, or within a 100-year flood plain with a water height less than one foot (found on newer maps)
D Within an area with a potential and undetermined flood hazard.
M Within an area at risk of mudslides from a 100-year flood event.
N Within an area at risk of mudslides from a 500-year flood event.
P Within an area at risk of mudslides from a potential and undetermined flood event.
E Within an area at risk of erosion from a 100-year flood event.
Source: CFR 2016.
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In Fullerton the 100-year floodplain is not a contiguous area but consists instead of various pockets across the city. These include a residential area northeast of the intersection of I -5 and SR-91, a swath of land abutting Bastanchury Road between Parks Road and W Malvern Avenue, and other small pockets throughout the Coyote Hills. In contrast, the 500-year floodplain covers a large section of Fullerton. Most of the city south of Malvern Avenue and Chapman Avenue, a multifamily neighborhood across SR-57 from California State University, Fullerton (CSUF), and sections of Harbor Boulevard south of the Brea Dam are included in the 500 -year floodplain category. Figure 3 -5 shows the mapped flood hazard zones for 100 - year and 500-year flood events in Fullerton.
Floodplain mapping studies are provided by the National Flood Insurance Program. Fullerton participates in the program by adopting FEMA-approved floodplain studies, maps, and regulations. These studies may be funded through federal grants; state, city, an d regional agencies; and private parties. The program is designed for flood insurance and floodplain management applications.
Public comments from the online survey suggest that flooding and ponding, has been known to occur following a rainstorm on the following major thoroughfares:
• The intersection of Orangethorpe Ave. and Raymond Ave, • The length of Commonwealth Ave. from S. Richman Ave. to Euclid St. • The length of Brookhurst Road between Orangethorpe Ave. and SR-91 Flooding and ponding was also reported on several smaller, residential streets in Fullerton, including:
• The intersection of N. Yale Ave. and E. Brookdale Pl. • The length of Dorothy Ln. between Raymond Ave. and Acacia Ave. • The length of N. Arroyo Pl. to the extent that it is unusable for evacuations • The length of Julie Ave.
Other reported flooding locations from the online survey can be viewed in the complete survey results section of this Plan ( Appendix B). Generally, these eyewitness accounts help characterize flooding at a scale that may not always show up in FEMA floodplain mapping.
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Figure 3-5: FEMA Flood Zones
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Past Events
Southern California is a semiarid region with inconsistent storm seasons and naturally shallow river channels. It was historically prone to floods that affected the entire region after long periods of rain. The largest flood in the Southern California region was in 1938, when several inches of rain fell over three days, causing rivers across the region to overflow. The Santa Ana River o verflowed, flooding areas i n Fullerton and Anaheim. The Fullerton and Brea dams were constructed in the aftermath of this particular flood, with money from the Works Progress Administration. Widespread flood-caused destruction across Southern California led numerous local governments to pursue a campaign of concretizing river beds, including rivers and creeks in Orange County, to prevent erosion. The following is a list of recorded flood events in Fullerton and Orange County (NOAA 2018a, 2010; Serna et al. 2015):
• Between December 186 1 to January 1862, a 30-day -long period of rain called the “ Noachian Deluge of California” poured across all of California. The Santa Ana River overflowed and spread across all of the low-lying areas of Orange County between Anaheim and the Coyote Hills (present- day Fullerton) in a four-foot-deep sea. Twenty deaths were recorded in Orange County alone. • Heavy rains in January 1916 caused 22 deaths, widespread flooding, and the destruction of a number of boats moored at Newport Beach.
• The most extensive flooding in Southern California history occurred in late January 1916, when 8 to 58 inches of rainfall were recorded in various measuring stations across the region. Numerous dams breached, resulting in property damage and loss of life. Four people died in Orange County. • In 1922, heavy rains flooded various rights -of-way across the region, and the Santa Ana River exceeded its normal surface elevation by three feet.
• In 1922, a six-day-long period of rain dropped as much as 25 inches of rain in some locations across Southern California. Fullerton was inundated with floodwaters, as were other major cities, such as Anaheim and Long Beach.
• Heavy rains on New Year’ s Eve and Day of 1934 impacted cities across Southern California.
Fullerton recorded more than 6 inches o f rainfall. In total, 45 people lost their lives, and some canyons became inundated with floodwaters 10 feet high. • A 1937 rainstorm in February deposited 4.25 inches of rain in nearby Long Beach. A few people were killed in the ensuing flooding, and some dams failed across the region. • In 1938, the deadliest flooding event in Southern California history was caused by a tropical storm.
Up to 30 inches of rain fell in the mountain areas, including 22 inches at the point of origin for the Santa Ana River waters hed. In Orange County, 45 died, including 43 in Atwood (now part of present-day Placentia). Fullerton and the rest of northern Orange County were inundated with floodwaters.
• In 1939, a tropical storm brought heavy rain to all of Southern California, resulting in 45 deaths on land and 48 more deaths at sea.
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• In November 1960, heavy rains inundated northern Orange County, resulting in one death. The resulting floodwaters damaged property and disrupted electricity service. • In November 1963, heavy rains fell on Southern California. More than three inches were recorded in coastal Orange County locations. The flooding injured 6 people. • A December 1964 rainstorm caused flooding that killed 40 people across Los Angeles and Orange Counties.
• Heavy storms in November 1965 dropped between 16 and 20 inches of rain in the mountains of Southern California, causing regional flooding and 15 deaths. • More than 4 inches of rain fell in the mountains during an April 1988 rainstorm, and floodwaters inundated roadways across Southern California.
• Heavy rains in February 1993 caused flooding and road closures in Orange County. • In January 1995, flooding inundated the region, causing an estimated $55 million in property damage and prompting a federal disaster declaration.
• In February 1998, all of Southern California was impacted by heavy rains when 2 to 5 inches fell across the region. Many roads and bridges were washed away or destroyed, and widespread power outages occurred. Property damage reached $100 million worth, and two people lost their lives.
• In March 2003, 3 to 7 inches of rain fell on Southern California, causing region-wide flooding.
Water reached depths of up to three feet on some roadways, causing over 1,000 vehicle collisions. • In January 201 0, a strong storm delivered by the jet stream caused urban flooding throughout Southern California. A medical facility in nearby Santa Ana saw its roof cave in due to the heavy rain.
• In 2014 heavy rains affecting most of Southern California caused flooding o n a section of Bastanchury Road that was nearly a foot deep. Nearby weather stations reported that more than an inch of rain had fallen in a span of three hours.
• In September 2015, flooding of roadways caused severe traffic congestion across Southern California, including Orange County. In the City of Los Angeles, 7,300 people lost power for most of the day, and there more than 500 traffic collisions across the entire region as a result of the road conditions.
Risk of Future Events
There is no indicatio n that the severe rainfall that leads to flooding will abate in the future, either in Fullerton or the greater region of Southern California. While Fullerton may experience prolonged periods of dry or wet years, flood events will likely continue to impact the city.
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Climate Change Considerations
Climate change is expected to alter the frequency of intense precipitation events throughout California, including Fullerton. Intense rainfalls are expected to occur more frequently (perhaps twice as often by the end of the 21st century) and potentially drop more rain (up to 40 percent more). These projected changes likely mean that Fullerton will experience more frequent and more intense flooding, potentially leading to erosion, dam failure, tree mortality, and other potential hazards.
GEOLOGIC HAZARDS
For the purposes of this plan, geologic hazards include landslides and subsidence.
Description
Landslide: Landslides occur when earth on slopes become destabilized, typically after heavy rains, when the precipitation s aturates the soil and makes it less stable, or when significant erosion from rainfall destabilizes the ground. Slopes that have recently burned face a greater risk from rain-induced landslides, as the fires burn up many of the trees, brush, and other veget ation that help stabilize the earth.
Earthquakes may also be a source of landslides as the shaking can destabilize already loosened soils.
Subsidence: Subsidence occurs when the level of the ground decreases, as if the surface is sinking.
Subsidence can either be sudden (as in a sinkhole) or happen gradually over time. It can be caused by mining, groundwater pumping, or fossil fuel extraction, creating empty underground spaces that can collapse and cause the soil above to drop. Erosion, natural cave collapses, and seismic activity can also cause subsidence.
Location and Extent
Landslide: There is the potential for landslides in the steeper portions of the East and West Coyote Hills area due to the sloping topography. Even these areas, however, are designated as having a moderately low risk of landslides due to seismic conditions, and a low likelihood of a landslide under other conditions (Dept. of Conservation 1976). While no definitive scale for measuring landslides exists, landslide events are usually mea sured using the amount of material that is displaced (i.e. the cubic feet of earth that moved). Figure 3 -6 shows the areas in Fullerton that are susceptible to landslides. The California Geological Survey has developed a scale of landslide susceptibility t hat is based on slope steepness and the strength of the underlying rock, with 0 being no susceptibility and 10 being the highest susceptibility.
For the purposes of this Plan, an area with a susceptibility of 7 or above is considered a high-risk area.
Subsidence: The City has identified that the most likely locations for subsidence in Fullerton are the northern and central portions of the city. Other sections of the city are potentially subject to subsidence in the event of a major earthquake (M
w 5.0 or greater), although Fullerton does not have a history of seismically induced subsidence (Fullerton 2012c). In terms of extent, subsidence is typic ally measured by the distance that the ground has sunk from its original elevation (i.e., in feet or inches) or by using the rate of subsidence (i.e., inches or centimeters per year).
There is evidence of subsidence in the southern section of Fullerton and most of Orange County as a result of excessive groundwater pumping in the first half of the 20th century, prior to the development of the City of Fullerton
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California State Water Project, which siphons water from the Owens Valley (USGS 2018a). Now that local groundwater r eserves are replenished regularly, subsidence activity in this area is less likely to occur (Fullerton 2015).
Past Events
Landslide: Major landslides have occurred throughout the Southern California region. For example, landslides were set off by the 1971 San Fernando and 1994 Northridge earthquakes (Dept. of Conservation 1997). Since its founding, Fullerton itself does not have an extensive history of landslide events. The only recorded landslide in the city happened in January of 2005 when a five-day rain storm destabilized an embankment at the 2000 block of N. Euclid Avenue. While the landslide did not cause any injuries, deaths, or significant property damage, the street and an adjacent recreational trail were partially washed out for a few days. During the same episode, a second landslide occurred between blocks 1700 and 1900 on Harbor Boulevard. The resulting destabilization partially washed out Harbor Boulevard but caused no other impacts (Fullerton 2010). City staff have determined that other landslide s occurred prior to Fullerton’s establishment, but it is not known exactly when these landslides occurred or the d egree of their impact, if any.
Subsidence: According to data from the USGS, there are records of historical and current subsidence in the lower section of Fullerton as a result of excessive groundwater pumping in the first half of the 20th century, as discussed above. Due to the decreased reliance on local groundwater aquifers, the overall risk of subsidence has decreased since the 20th century, though some areas of Orange County are reported to be subsiding at historically high rates of more than one foot per year (USGS 2018a).
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Figure 3-6: Landslide Hazards Map
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Risk of Future Events
Landslide: Since most of Fullerton is on flat terrain, the likelihood of a landslide is low. The East and West Coyote Hills, however, have the potential for landslide events, given their topography. Seismic activity in the region also has the potential to start landslides, though it should be noted that seismic shaking in Fullerton has thus far generated no known landslide events. Destabilization of slopes and hills due to intense rainstorms also has the potential to cause future landslides. Fires on the Coyote Hills could cause soil otherwise anchored by vegetation to become loosened and therefore more susceptible to becoming part of a future landslide. Overall the probability of future occurrence within Fullerton is considered occasional.
Subsidence: Since Fullerton does not have a track record of subsidence events, it seems unlikely that subsidence will occur in the city’s future. As long as the possibility exists, however, for a subsidence event to occur, Fullerton could potentially be at risk. Given Fullerton’s ongoing history with petroleum extraction, it is possible that these activities could hasten the arrival of a subsidence eve nt. Similarly, the possibility of an extreme drought in the future could lead to intensified groundwater withdrawals f rom the local water table which could also cause future subsidence. Fullerton’s potential for a significant earthquake also means that the city could experience seismically induced subsidence in the future.
Climate Change Considerations
Landslide: Due to t he variety of factors that lead to landslides, it is possible that climate change could indirectly affect the conditions for landslides. M ore frequent and more intense rains may cause more moisture-induced landslides. Warmer temperatures and more frequent drought conditions may lead to more fires, which could destabilize soils and make future landslide events more likely.
Subsidence: The relationship between climate change and subsidence is not well established.
Nevertheless, it is possible that climate change could indirectly influence subsidence in Fullerton. More intense rainstorms could potentially recharge underground aquifers, which co uld reduce the risk of subsidence. On the other hand, more severe and prolonged periods of droughts may encourage more groundwater withdrawals and increase the risk of subsidence.
HAZARDOUS MATERIALS RELEASE
For the purposes of this Plan, this section dis cusses all nonnuclear and nonradiological hazardous materials release events. Events relating to the release of radiological material were determined to not be relevant in this Plan.
Description
Hazardous materials release refers to a hazard event whereby harmful concentrations of hazardous or toxic substances are released into the environment. Such instances usually occur when storage containers of hazardous materials leak or fail. This can happen because of industrial accidents, vehicle crashes, as a consequence of other disasters (e.g., a flood or earthquake), or as a deliberate act.
The threat that hazardous materials pose to human health depends on the type of material, frequency and duration of exposure, and whether chemicals are inhaled, penetrate skin, or ingested, among other City of Fullerton
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factors. Exposure to hazardous materials can result in short term or long-term effects, i ncluding major damage to organs and systems in the body or death. Hazardous materials could also cause health risks if they contaminate soil, groundwater, and air, potentially posing a threat long after the initial release.
Oil and Gas Operations
Oil and gas operations can cause air pollution, groundwater contamination, or odor nuisances that affect surrounding neighborhoods. Major spills a nd explosions sometimes occur at oil and gas facilities, potentially causing acute or chronic health effects in the af termath. Oil and gas well operations can emit toxic chemicals into the air that are known to cause cancer and have respiratory, neurologic al, gastrointestinal, dermatological, and psychological effects. Studies have found that people living near oil and ga s wells may be more likely to experience eyes, skin, nose, and throat irritation; asthma; or headaches, dizziness, nausea, and abdominal pain.
Oil and gas operations are known to emit volatile organic compounds, which are chemicals that easily evaporate, and other air pollutants that worsen air quality. Wells that are poorly constructed are more likely to lead to oil and gas leaks. Other oil and gas facilities that are poorly constructed or improperly maintained and monitored can lead to leaks that could contaminate aquifers or increase the risk of explosions. Wells can also release hazardous chemicals even if they are abandoned or left idle, if they are not fully cleaned. Additionally, the process of plugging up or abandoning oil wells can release hazardou s materials that may cause several short-term health impacts, headaches, nausea, vomiting, eye and throat irritation, skin rashes, and the exacerbation of pre-existing respiratory conditions, such as asthma.
Other Hazardous Materials
In addition to oil and gas facilities, manufacturing, distributing, and other industrial activities often involve the use of hazardous chemicals. The Departmen t of Toxic Substances Control tracks the evaluation, cleanup, permitting, enforcement, and investigation of potential or current hazardous waste facilities.
There are 79 sites within Fullerton that are undergoing corrective action, evaluation, investigatio n, inspection, or voluntary cleanup. The southwest section of the city, where land uses are primarily industrial, has a concentration of these sites. These sites are being evaluated for the presence of trichloroethylene (TCE) and perchloroethylene (PCE), which are volatile organic compounds that can pose a health risk to people who breathe them or contaminate aquifers used to supply household water.
In addition to these sites, the City is also located on top of a large groundwater aquifer that has experienced contamination from volatile organic compounds, historically used by manufacturing industries in the 1950s, 60s and 70s. To remediate this issue, the Orange County Water District has initiated the North Basin Groundwater Remedial Investigation and Feasibility Study , which aims to monitor and treat the contaminant plume that threatens a number of production wells for t he Cities of Fullerton, Anaheim, and Placentia. With oversight from Federal, and State agencies, OCWD has been working to install the necessary monitoring and extraction wells to ensure that the plume does not contaminate the aquifer further and reduce the vulnerability of production wells from being impacted by these compounds.
These chemicals could have harmful effects on people, depending on how much and how long a person is exposed to them (ATSDR 2018). In particular, PCEs and TCEs could evaporate into the air and be inhaled City of Fullerton
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by persons occupying buildings located on the site (ATSDR n.d.). Children, adolescents, and pregnant women are especially at risk of the health effects associated with these chemicals, which include immune system diseases or pregnancy or birth issues in pregnant women (ATSDR n.d.). Other chemicals that are being evaluated on these industrial sites include benzene, chloroform, and toluene, which are associated with food and beverage manufacturing.
Location and Extent
Oil and Gas Operations
Studies have shown that oil and gas operations can have a negative effect on air quality within roughly 600 feet and cause odo rs that are noticeable within 1,500 feet. Most scientists, public health professionals, and medical professionals agree that sensitive land use, such as housing, schools, faith institutions, hospitals, and water wells, should be at least a quarter mile from an oil or gas well. However, fires, explosions, and other major emergencies can have an impact at a larger distance (Butler et al.).
Oil fields are located in the northern section of the city, and most of them are plugged or abandoned.
Active oil wells operated by the Breitburn Operating LP are located in the East Coyote Hills.
Natural gas is an odorless, flammable gas that is used as a major energy source. Natural gas is distributed through pipelines. There is one Southern California Gas Company natural gas pipeline that runs east-west through the middle of the city. The two primary hazards that natural gas poses are combustion and asphyxiation (Safer America 2017). The gas line shown on Figure 3 -7 is spatially accurate to +/ - 500 feet (USDOT n.d.). A pipeline that bursts or leaks releases flammable gas that could ignite a destructive explosion. The risk of pipeline failure is related to pipeline condition, seismic activity, proximity to power lines, and surrounding population density, which amplifies the magnitude of threat.
Other Hazardous Materials
In Fullerton, there are a number of sites designated by the California Department of Toxic Substances Control as sites containing hazardous materials. These are located throughout the city, and typically include underground storage tanks containing petrochemicals, sites where contaminants have been spilled or improperly dis posed of, and sites that are permitted to store and use hazardous materials in manufacturing processes. Sewer lines also bisect the city i n numerous locations. A break in any of these sewer lines could unleash sewage into the main water supply for the city. Hazardous materials are also transported on highways and railways, many of which pass through Fullerton.
In severe situations, Fullerton may also be at risk of hazardous materials release events on a regional level.
Fullerton is in the South Coast Air Basin (SCAQMD 1999). With the right prevailing wind conditions, airborne toxic material could spread to and impact various parts of the air basin, including sections or all of Fullerton.
Figure 3-8 shows areas that are potential sites for hazardous materials release events.
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Figure 3-7: Oil and Gas Operations
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Figure 3-8: DTSC Hazardous Materials Sites
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Past Events
Fullerton has experienced some hazardous materials release events (Cal EMA 2018):
• In January 2006, 75 gallons of diesel was released when a freight truck collided with a fire hydrant at the intersection of Orangethorpe and Acacia and ruptured the containment chamber on the rig.
The diesel then infiltrated a nearby flood control channel. • In March 2010, a corrosive liquid was released when a forklift breached its containment at the 600 block of S. Acacia St.
• In April 2010, 400 gallons of sewage were released via a manhole; 100 gallons infiltrated a storm drain leading to Break Creek Channel.
• In December 2011, 20 pounds of ammonia were released at the 700 block of S. Raymond when a release valve failed to close completely.
• In January 2015, 195 gallons of sewage leaked from a manhole cover in the 1200 block of North Hollydale. The sewage then contaminated the Fullerton Creek Channel. • In April 2018, 100 gallons of diesel were leaked onto the southbound lanes of SR -57 near S.
Bastanchury when a freight truck collided with the center divider.
Risk of Future Events
Given Fullerton’s history with hazardous materials release and the presence of hazardous materials sites throughout the city, it is very likely that Fullerton will continue experiencing such events in the future. The high volumes of traffic that passes daily through Fullerton or on adjacent highways, freeways and railways creates a possibility that Fullerton could experience a vehicular or railroad transportation-related hazardous materials release event.
Climate Change Considerations
Climate-related natural hazard events, such as an intense flood, could cause transportation crashes or damage storage containers tha t result in a hazardous materials release. Climate-related hazards could also exacerbate the effects and impacts of such events. For example, more intense rains could lead to more runoff from a site that is contaminated with hazardous materials.
HUMAN-CAUSED HAZARDS
For the purposes of this plan, numerous hazard profiles have been grouped under human-caused hazards.
These hazards are: aircraft incident, civil disturbance, cyber threat, terrorism, and transportation incident.
Description
Aircraft Incidents: An aircraft incident refers to when an aircraft has lost control and crashes either into the ground or with another aircraft. This can be the result of human error, malfunctioning navigation equipment, or environmental conditions that prevent safe operation of the aircraft.
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Civil Disturbance: A civil disturbance is an event when the normal operations of the city are either threatened or temporarily interrupted by events such as violent protests, riots, shootings, and armed standoffs. Civil disturbances can occur at a single time or be a string of related events. Property damage of businesses, government facilities, or homes can occur during these events. In extreme situations, death and injury may result from civil disturbances.
Cyber Threats : Cyber threats are when an individual or a group threatens or attempts to disrupt the operations and functioning of the computer systems belonging to private citizens, religious groups, educational institutions, government agencies, or businesses. These t hreats take th e form of online harassment, hacking, or in-person tampering with electronic equipment. Successful cyber threats can lead to service disruptions, infrastructure damage, theft, and in severe instances may cause injury or death.
Terrorism: Terrorism is the use or threat of force to achieve a particular social or political outcome. The goals of terrorism may sometimes be the overturning of a government, the reversal of a public policy, the release of political prisoners, and other such motives. Acts of terror may overlap with acts of war or hate crimes. Increasingly, terrorists strike at the cyber infrastructure that helps keep communities and local governments running, an act known as cyber-terrorism.
Terrorists use a variety of methods to achieve their
goals. Generally, they try to kill or seriously harm
people, or they may attempt to disrupt civil society by destroying property or infrastructure, attacking
government operations at all levels, interrupting
essential public services, creating chaos, or a
combination of some or all of these goals. Firearms
and explosives are the most common weapons
among terrorists, although other means may be used
in lieu or in combination with these. In extreme
situations, terrorists may gain access to weapons of
mass destruction, which typically include suc h deadly
agents as: bioweapons, chemical agents, radioactive
materials, or high-yield explosives. It should be noted that these events are very rare. While incidents of terror caused by foreign individuals or groups receive significant media and public attention, most acts of terror in the United States have been caused by domestic terrorists.
Transportation Incidents: A transportation accident is a crash or other failure involving a vehicle, including a car, truck, or trai n. This can be the result of the vehicle operator making an error or environmental conditions that prevent the vehicle from being safely maneuvered. Examples of transportation accidents include automobile crashes, freight truck collisions, and train crashes or derailments. Aviation transportation accidents are discussed separately in this section. It should be noted that small -scale incidents, such as a minor collision between automobiles, would not count as a hazard. A large -scale collision, however, that involves multiple vehicles and shuts down a freeway could present a hazard to Orange County Sheriff’s deputies arrive at the campus of California State University, Fullerton in case of violent demonstrations. Image from Orange County Register.
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Fullerton because it could deter first responders from reaching victims or prevent residents from evacuating quickly.
Location and Extent
Aircraft Incidents: The Fullerton Municipal Airport is in the southwestern portion of the city, close to the border with Buena Park. The runway for the airport is on an east-west axis, with aircraft approaching from both ends. It is therefore possible that an aircraft incident could occur along any of these approach pathways. Aircraft incidents could also occur at the airport facility itself. Since the year 2000, there have been 22 accidents at FMA as documented by the National Transportation Safety Board (NTSB) database.
From 1984 through September 2004, twenty aircraft accidents occurred within two miles of the airport in the cities of Fullerton and Buena Park (ALUC 2004).
Civil Disturbance: Civil disturbances can arise at any time and place for a variety of reasons. There are, however, some places where such events are more likely to emerge, including city hall, state and federal government centers, jails, police stations, major businesses, university campuses, and places of public assembly.
No definitive scale for measuring civil disturbance ev ents exits, but a number of metrics may be used individually to determine a civil disturbance event’s impact. These measures include:
• Number of facilities affected
• Number of fatalities
• Monetary loss
• Interruptions to communications infrastructure
• Number of people protesting
• Impacts to certain socioeconomic groups (Renn et al. 2011, Cal OES 2018) Cyber Threats: Since computers are so ubiquitous, a cyber threat could appear in virtually any part of the city. In extreme circumstances, a threat could impact the entire city. Cyber threats vary in their length and severity in impact. A minor threat could simply cause computer systems to slow down for a few minutes and not behave as responsively. On the other hand, a major cyber threat could cause a complete shutdown of critical systems, inc luding those used by banks, healthcare institutions, universities, major businesses, and city government.
Cyber threats are not measured in any particular scale, but they can be assessed by determining:
• The type of incident (website defacement, denial of service, unauthorized surveillance). • The use of malicious software.
• The level of security countermeasures that failed in preventing the cyber threat. • The duration of the cyber threat (a few hours, a few days, several weeks, etc.). (Mateski et al. 2012)
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Terrorism: Terrorism can occur anywhere, although public spaces are more common. This includes such places as shopping malls, religious buildings and institutions, schools and universities, hospitals and medical clinics, government centers and complexes, and public gatherings or events. Terrorists may also choose infrastructure such as electric -generating facilities, water treatment plants, dams or reservoirs, railroads, highways, and other such areas. In some cases, private homes or b usinesses may be targeted.
Terrorist acts are typically measured by the fatalities, injuries, and destruction they cause but there is no universally used scale for measuring terrorist events.
Transportation Incidents: Arterial streets, highways, freeways and railways are widespread in and around Fullerton. Major freeways passing through Fullerton include SR -57 (the Orange Freeway) and SR -91 (the Riverside Freeway). Rail infrastructure bisects the northern half of the city from the south. Passenger and freight rail use this right -of-way, including Metrolink, Amtrak, Burlington Northern Santa Fe (BNSF) and Union Pacific (UPRR). Any of these transportation corridors, or others in or around Fullerton, could be the site of a transportation incident that affects the community. Generally, transportation incidents are measured by the number of deaths they cause.
Past Events
Aircraft Incidents: Fullerton and the surrounding area have a history of aircraft accidents, including:
• In 1986, a passenger jetliner collided with a small propeller plane above the nearby city of Cerritos across the county line. The smaller plane was destroyed in the air, and the jetliner crashed into a residential neighborhood below, killing 15 residents o f Cerritos and destroying 16 homes. (Harrison 2016)
• In September 2004, a pilot lost control of their plane during an airshow at the Fullerton Municipal Airport. The plane immediately crashed following take -off, injuring the pilot. ( Aviation Safety Network 2004)
• In August 2016, the pilot of a sma ll propeller plane lost control of the aircraft, sending the plane crashing into the wall of a hangar at the Fullerton Municipal Airport. The pilot and co-pilot suffered minor injuries. (Branson-Potts 2016)
Civil Disturbance: While Fullerton does not have an extensive history of civil disturbance, some notable events are listed below. Many have taken place at the CSUF campus:
• In spring semester in 1970, numerous protests erupted at the campus of CSUF in response to the Vietnam War, a campus visit by then -governor Ronald Reagan, and the massacre at Kent State University in Ohio. Governor Reagan ordered the university to shut down prior to final exams week. In total, more than 60 students and faculty members were arrested across the semester. (Fox 2009)
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• Between July 2011 and January 2014, a series of protests took place in response to death of a Fullerton-based homeless man at the hands of the Fullerton Police Department. At the announcement of the acquittal of the officers involved in the death, violent protests erupted that resulted in the arrest of 13 people. A protester attacked a TV news camera woman, and a Fullerton Police station was defaced with graffiti. (Clay 2014; Winton and Sewell 2011; CBS Los Angeles 2014a)
• In October 2017, scuffles erupted between two sides of a protest at the campus of CSUF when a white supremacist was invited to speak by a campus student group. Objects were thrown from one group at the other, and one woman was reported to have been releasing a can of pepper spray into the air. Officers from the Orange County Sherriff ’s Department and CSUF University Police were present and arrested eight of the demonstrators. (Kopetman 2017) Cyber Threats : Generally, Fullerton does not have a history of cy ber threats. The only event of note occurred following an officer-related beating that resulted in the death of local homeless man, Kelly Thomas. In response, a hacking group called Anonymous threated to hack the website of the Fullerton Police Department. City staff responded by shoring up security. No actual hacking materialized out of the threat (Winton and Grad 2011).
Terrorism: While there are no recorded terrorist events within Fullerton itself, terrorist activity has recently occurred in the area:
• A teenager was arrested in 2014 who was re ported as having threatened terrorist action against event attendees of the US Open of Surfing. (Connelly and Emery 2014) • In May 2015, two Anaheim-based men were arrested at a Transportation Security Administration checkpoint at the Los Angeles International Airport who had reportedly sworn allegiance to the Islamic State of Iraq and Syria (ISIS). One of these men, Muhanad Badawi, was a student at Fullerton College. (Winton 2016)
• In December 2015, a mass shooting and terrorist attack committed by a married couple who had reportedly sworn allegiance to ISIS killed 14 people at a medical facility in San Bernardino. (Global Terrorism Database 2018)
Transportation Incidents: Fullerton has experienced frequent transportation accidents, including:
• In November 1999, a Metrolink train collided with a freight train in near Brookhurst Road in Fullerton. While nobody was killed, 19 people were injured. The collision caused the railroad through Orange County to be temporarily closed and more than 3,500 Metrolink commuters were affected and had to seek alternative routing. (Winslow 2018; Harris et al. 1999; CBS Los Angeles 2018; Cal EMA 2018)
• In February 2018, a passing Amtrak train struck a person who had trespassed onto the righ t-of- way near the Fullerton Train depot. The train was not derailed and the trespasser survived with injuries.
• In March 2018, a man was hit by a passing Metrolink train in an apparent suicide.
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• In April 2018, a freight truck struck the center median of SR-57 near Bastanchury Road in Fullerton and overturned, shutting down the highway for nearly 12 hours. • In July 2018, a passing freight train fatally struck a person who had trespassed onto the right -of- way near the Fullerton Train Depot.
Risk of Future Events
Aircraft Incidents: While it is possible to reduce the risk of aircraft incidents as much as possible, given that aircraft operations are subject to human error, there is always potential for an accident. As long as the Fullerton Municipal Airport continues operations, an aircraft incident could occur, given the history of such events in the area. The Fullerton Municipal Airport is, however, subject to the Airport Environs Land Use Plan (AELUP) adopted by the Airport Land Use Commission (ALUC) pursuant to the Public Utilities Code. In the AELUP, the ALUC, has placed land use restrictions on new uses in a safety zones around the runway based on the accident data and operations of the airport to reduce the potential for loss of life and property. Even without the impact caused by the City’s airport, the high volume of air traffic in the area operating out of other regional airports contributes to the risk of an aircraft accident in Fullerton.
Civil Disturbance: While civil disturbance events may be rare, there is still a possibility that they could occur in the future in Fullerton. Given that a number of civil disturbance events have occurred at the campus of CSUF in the past, it is safe to say that more such events will emerge in the future. Other future civil disturbance events may take place in Dow ntown Fullerton or other areas where large groups of people tend to congregate.
Cyber Threats: Due to the integrated nature of technology into the everyday lives of Fullerton’s residents, businesses, and government operations, it is possible that a cyber threat could emerge in the future. Given that no cyber threats are publicly known to have disrupted the City of Fullerton’s normal operations in the past, the likelihood of a cyber threat severely handicapping the City in the future is unlikely.
Terrorism: Given that terrorist activity has its root causes in a variety of factors— such as global geopolitics, warfare, economics, and religion, etc. —it is impossible to predict whether or not a terrorist attack will o ccur. Since Fullerton does not feature facilit ies of critical national or state importance, however, it is less likely (although possible) that Fullerton will attract the attention of international terrorist groups. Acts of terror committed in Fullerton are more likely to be conducted by smaller organizations or individuals, although the effects may be no less significant.
Transportation Incidents: It is a certainty that transportation accidents will continue. While it is possible to guard against such events and implement safety measures, it is impos sible to prevent every single transportation accident. Fullerton has a history of people trespassing on railroad tracks, and it is likely that people will continue to do this, endangering themselves and others. The large volume of traffic on streets and highways in and around Fullerton also makes it likely that an accident will occur on either of these pieces of transportation infrastructure in the future.
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Climate Change Considerations
Aircraft Incidents: The link between aircraft accidents and climate change is not well understood at this time. Although climate change is not likely to directly increase or decrease the number of aircraft incidents, it is feasible that more instances of severe weather could heighten the risk of an aircraft incident.
Civil Disturbance: It is not expected that climate change will have a direct impact on civil disturbance in Fullerton. It has been suggested, however, that increases in temperature may increase the likelihood of people to take to the streets and gather in crowds, potentially setting the stage for a riot (Khaleeli 2016).
An increase in hot weather in Fullerton could, therefore, potentially increase the risk of civil disturbance.
Hardships created by climate change, such as economic disruptions, could also indirectly increase the risk of civil disturbance.
Cyber Threats: Climate change will most likely not influence cyber threats in Fullerton.
Terrorism: The link between terrorism and climate change is not well understood. It has been suggested, however, that the impacts of a changing climate may exacerbate existing social, political, religious, and ethnic tensions. For example, longer, more intense droughts may restri ct food supply or place limits on economic growth for cities, regions, or even whole countries. Nevertheless, the likelihood of climate change impacting terrorist activity in Fullerton is negligible, since these changes are more likely to impact developments on the national or international level.
Transportation Incidents: Climate change is not likely to impact transportation accidents in Fullerton.
SEISMIC HAZARDS
A seismic hazard is the consequence of earthquakes and other tectonic activity. This Plan in cludes fault ruptures, liquefaction, and seismic shaking as seismic hazards. Landslides, which may be caused by earthquakes, are discussed in the Geologic Hazards section.
Description
Fault Rupture: The shifting and movement of the Earth’s tectonic plates are responsible for seismic events. These tectonic plates can pull away from, move toward, or pass b y each other. As they do, the plates sometimes lock together. This creates tension, and eventually the built -up tension is released like a springboard. The tension dissipates into the Earth’s crust.
The location at which two tectonic plates join is called a fault line. Fault lines are sometimes visible on the Earth’s crust as sudden rifts or anomalies in the continuity of the landscape. In California, the major north- south fault line is the San Andreas Fault —where the North American and Pacific Plates meet . Constant friction between the two plates over the millennia, however, has caused the areas where the two plates intersect to become fragmented, creating new, smaller faults.
The area in the immediate vicinity of a fault line is at risk of damage due to the potential for a fault rupture—the deformation or displacement of land on either side of the fault, which may move a few inches to several feet in opposite directions. Any buildings or infrastructure situated around, on top of, or City of Fullerton
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across a fault line could potentially be severely damaged or destroyed. The direction of the fault rupture depends upon the fault type: dip-slip faults produce vertical shearing, strike-slip faults produce horizontal shearing, and oblique-slip faults produce both vertical and horizontal shearing. A fourth kind of fault, called a “blind” fault, produces virtually no visible displacement of land.
Some faults have emerged fairly rec ently in geologic history. Quaternary faults are faults that have developed any time between the Holo cene Era and the present (within the last 1.8 million years). These faults are especially concerning since they are the most likely to be active and cause future earthquakes.
The Alquist-Priolo Earthquake Fault Zoning Act enables the California State Geologist to designate zones surrounding active faults as Alquist-Priolo Special Study Zones, which is a special regulatory zone that requires additional study, to determine the location of the fault and the limits of the area prohibited from surface construction on top of the known location of an active fault.
Liquefaction: Liquefaction is a kind of seismic event that occurs in response to the sudden shaking of loose, water -saturated soil. When this happens, the ground no longer seems solid but rather like a liquid. Any structures built on top of a zone of liquefaction during a seismic event are at risk of serious damage. Infrastructure, such as pipelines, utility poles, water tanks, and other kinds of critical facilities are also at risk of being affected or destroyed by liquefaction events.
Seismic shaking: Seismic shaking refers to when the ground shakes as a result of an earthquake or other seismic event. Seismic shaking may cause billions of dollars’ worth of property damage across a whole region, but it may also be virtually undetectable to all except seismic measuring tools. Seismic shaking’s severity is determined by how much energy is released, how long the rupture is, and the depth of the origin. Areas that are closest to the epicenter of the seismic event generally experience the most shaking.
The susceptibility of a structure to damage from ground shaking is related to the underlying bedrock or soil as well as the strength of the earthquake itself.
Material that is firm and solid can intensify shor t-period motions, causing stronger shaking, because seismic waves travel faster through harder material than softer material.
KEY TERMS
Spectral
Acceleration: The
maximum
acceleration
experienced by a
building or other
structure during
an earthquake.
Period: The time
it takes to
complete one
cycle of
a seismic wave,
measured in
seconds or
fractions of a
second.
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Location and Extent
Fault Rupture: There are several smaller fault lines that pass through or lie underneath Fullerton. The Puente Hills Blind Thrust System runs north -south through Fullerton. Sections of the Elysian Park and Yorba Linda fault lines pass through Fullerton’s southwestern and southeastern areas respectively. The Coyote Hills faults, a series of smaller, shorter faults, run through northern sections of Fullerton. One of these fault segments, located just north of the City, is located within an Alquist-Priolo Special Study zone. (Dept. of Conservation 2010; USGS 2018b).
In addition to these local faults, there are six major regional faults that could potentially impact Fullerton:
• The closest point of the Whittier-Elsinore Fault is 1.6 miles northeast of Fullerton. • The closest point of the Newport-Inglewood Fault is 9.8 miles southwest of the city. • The closest point of the Sierra Madre/San Fernando Fault is approximately 14 miles north of Fullerton.
• The Palos Verdes Hills Fault is 20 miles southwest of the city at its closest point. • The San Jacinto Fault is 36 miles east of the city.
• The San Andreas fault, the dominant fault system in Southern California, is 37 miles northeast of Fullerton at its closest point.
Figure 3 -9 shows local and regional fault lines, their location relative to Fullerton, and their shake potential.
While significant efforts have been undertaken to identify and map fault lines in Southern California, there are still some fault lines or segments of fault lines that are either unmapped or completely unknown. It is possible for a fault rupture to occur along any of these unidentified faults.
Fault rupture events are usually measured using the distance of displacement of one side of the fault to the other. The longer the length of the fault rupture, the greater the impact of the event.
Liquefaction: Liquefaction can occur in areas with a high level of groundwater.
Generally, areas with a higher water table are at more risk of liquefaction than areas with a lower water table.
Areas of liquefaction potential are delineated on the map in Figure 3-10. Local geology and groundwater conditions, as well as historical events, all influence which areas are susceptible to liquefaction. The Coyote Creek Floodplain in the northwest section of Fullerton contains an abundance of saturated, loose sandy soils at depths less th an 40 feet. These sediment layers hav e the potential to liquefy in the event of an earthquake, causing this area to have a high liquefaction susceptibility. Although the Carbon Creek alluvial fan is composed of loose, sandy material, there is a low suscept ibility because groundwater is relati vely far below the surface. Since liquefaction occurs in areas with highly water saturated soil, areas of liquefaction with slopes are
KEY TERMS
Deep-Seated
Landslide: A
landslide event
generated by a
gradual
accumulation of
water under the
surface of the
ground that
weakens slope
faces. They often
lead to property
damage.
Alluvial Fan:
Geologic
formation in the
shape of a fan
that is formed
when sediments
from mountain
rivers are
deposited on
flatter terrain.
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also known to trigger events known as “deep -seated landslides” which are landslides that occur when water accumulates in the soil underneath the slope’s surface. The areas of West Coyote Hills and East Coyote Hills have a susceptibility to deep-seated landslide.
While liquefaction events are not measured on any standardized scale, multiple factors may be used to assess the size of the event, such as:
• Type of ground material
• Amount of material
• Strength of shaking
• Size of the affected area
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Figure 3-9: Local and Regional Fault Lines Map
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Figure 3-10: Liquefaction Hazards Map
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Seismic shaking: Generally, seismic shaking events are measured using the Modified Mercalli Intensity (MMI) scale, which uses visible damage as a benchmark for each event. A seismic event will have a different MMI measurement in different locations, depending on the amount of damage done. The MMI scale uses Roman numerals ranging from I (1) to XII (12). Table 3-9 shows the MMI scale.
TABLE 3-9: MODIFIED MERCALLI INTENSITY SCALE
Intensity Description Description
I Instrumental Felt only by a very few people, under especially favorable conditions.
II Feeble Felt only by a few people at rest, especially on the upper floors of buildings.
III Slight Noticeable by people indoors, especially on upper floors, but not always recognized as an earthquake.
IV Moderate Felt by many indoors, and by some outdoors. Sleeping people may be awakened.
Dishes, windows, and doors are disturbed.
V Slightly strong Felt by nearly everyone, and many sleeping people are awakened. Some dishes and windows broken, and unstable objects overturned.
VI Strong Felt by everyone. Some heavy furniture is moved, and there is slight damage.
VII Very strong Negligible damage in well-built buildings, slight to moderate damage in ordinary buildings, and considerable damage in poorly-built buildings.
VIII Destructive Slight damage in well-built buildings, considerable damage and partial collapse in ordinary buildings, and great damage in poorly-built buildings.
IX Ruinous Considerable damage in specially designed structures. Great damage and partial collapse in substantial buildings, and buildings are shifted off foundations.
X Disastrous Most foundations and buildings with masonry or frames are destroyed, along with some well-built wood structures. Rail lines are bent.
XI Very disastrous Most or all masonry structures are destroyed, along with bridges. Rail lines are greatly bent.
XII Catastrophic Damage is total. The lines of sight are distorted, and objects are thrown into the air.
Source: USGS 2018c.
Seismic events are also measured using the moment magnitude scale (MMS, denoted as Mw or simply M) which is a measurement of the energy released at the fault rupture. It has replaced the Richter scale, which is less reliable for large earthquakes. The MMS begins at 1.0 and increases as the energy of the earthquake increases. The MMS is a logarithmic scale, meaning that the difference between numbers on the scale multiplies as they increase. For example, an earthquake with 5.0 M w is approximately 1.4 times greater than 4.9 Mw, 32 times greater than 4.0 Mw, and 1,000 times greater than 3.0 Mw.
Fullerton is in a High Seismic Zone, as defined by the Fullerton Building Code, which incorporates the 2016 edition of the California Building Code. There is a high risk of ground-shaking throughout Fullerton. The magnitude or intensity of the shaking will depend on the magnitude of the earthquake and the distance from the epicenter. The Puente Hills Fault has the greatest potential to cause intense ground shaking for this reason.
Past Events
Fault Rupture: The largest recent fault rupture near Fullerton was the 1994 Northridge earthquake, a 6.7 M
w event approximately 42 miles from downtown Fullerton, and the most destructive earthquake in the United States in nearly 100 years. The resulting destruction included property damage to more than 4,000 City of Fullerton
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buildings as well as the destruction of numerous freeway structures across the Los Angeles region (RMS 2004).
More recently, a 5.1 Mw earthquake beneath La Habra in 2014 caused fault rupturing adjacent to but not directly on the Puente H ills and Whittier faults (Graves et al. n.d.). As a result, six gas and water transmission lines were broken in Fullerton (CBS Los Angeles 2014b).
Liquefaction: There is no record of historic or p aleo-seismic liquefaction in the area in and around Fullerton. All potential zones for liquefaction are based on soil susceptibility rather than past events (Dept. of Conservation 1997).
Seismic shaking: Significant seismic shaking events that were felt in Fullerton include the 1994 Northridge earthquake and the 1987 Whittier Narrows earthquake. Both of these quakes caused minor damage to properties, disrupted some city infrastructure, and broke utility lines, though neither caused any significant damage in Fullerton. The most recent significant seismic shaking event that impacted Fullerton was a 2014 5.1-magnitude quake that struck Fullerton as well as the surrounding communities of Brea and La Habra, causing up to $824,000 of damage across the three cities (Palta 2014). The shaking broke water mains and disrupted electrical transmission to nearly 3,000 Southern California Edison customers across northern Orange County (Schwenke and Lin II 2014). Other Table 3-10 shows major earthquakes (at least 6.0 Mw) within 100 miles of downtown Fullerton.
TABLE 3-10: SIGNIFICANT EARTHQUAKES WITHIN 100 MILES OF FULLERTON Event Name Distance (Miles)* Magnitude
1933 Long Beach Earthquake 18 6.4
1948 Desert Hot Springs Earthquake 92 6.0
1952 Kern County Earthquake 97 7.5
1971 San Fernando Earthquake 15 6.6
1986 North Palm Springs Earthquake 77 6.0
1992 Landers Earthquake 89 7.3
1994 Northridge Earthquake 41 6.7
Source: SCEDC 2011.
* Distance between epicenter and downtown Fullerton
Risk of Future Events
Fault Rupt ure: Given the history of fault rupture in and around Fullerton, it is very likely that fault rupturing will occur again in Fullerton’s future. Furthermore, it is suggested that human activity, including the pumping of wastewater into the ground, oil extraction, oil well water injections, and others could lead to seismic and geologic hazards, including additional underground faulting (Graves et al. n.d.). Since oil production and agriculture have caused both petroleum and water to be withdrawn from the grou nd beneath Fullerton, there is a chance that Fullerton could be at higher risk for faulting than other communities in the vicinity that do not have a history of withdrawing subterranean resources.
Liquefaction: As long as the conditions for liquefaction ev ents exist, such an event is feasible. Given Fullerton’s known lack of historical liquefaction events, despite the presence of liquefaction-prone soil, there is a low likelihood that Fullerton will experience a liquefaction event in the foreseeable future.
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Seismic shaking: Since Fullerton is situated in a seismically active area and has experienced seismic shaking in the past, it is nearly inevitable that seismic shaking will occur again in Fullerton’s future. The Third Uniform California Earthquake Rupture Forecast (UCERF3) was released in 2015 and provides the likelihood of a major earthquake on various faults between 2015 and 2044. Table 3 -11 shows the probabilities of a significant earthquake by magnitude on the key fault lines near Fullerton, as estimat ed by the UCERF3 forecast.
TABLE 3-11: EARTHQUAKE PROBABILITIES FOR KEY FAULTS NEAR FULLERTON (2015-2044) Fault
Distance
(Miles)*
Probability
6.7+ Mw 7.0+ Mw 7.5+ Mw 8.0+ Mw
Yorba Linda 3 0.09% 0.08% 0.03% Negligible
Puente Hills 4 0.59% 0.52% 0.19% Negligible
San Joaquin Hills 11 0.40% 0.38% 0.24% Negligible
Whittier 12 1.45% 1.26% 0.66% Negligible
Newport-Inglewood 12 0.95% 0.81% 0.42% Negligible
Palos Verdes 21 3.09% 2.79% 0.10% Negligible
Sierra Madre 21 1.10% 1.06% 0.72% 0.03%
San Jacinto 38 4.24% 4.22% 4.18% 2.31%
San Andreas† 38 20.79% 18.32% 15.71% 6.70%
Source: USGS 2015.
Note: UCERF3 results consist of two individual models (3.1 and 3.2), each of which provides rupture probabilities for each segment of the fault. This table shows the maximum probability for a section of the fault in either model. * Distance between downtown Fullerton and the nearest point of the fault. All distances are approximate. † Southern California segments only.
In addition to the UCERF3 forecasts, which proje ct the odds of a major earthquake on local and regional faults, the US Geological Survey forecasts the severity of seismic shaking in different locations for various plausible earthquake scenarios. Table 3-12 shows the anticipated shaking in Fullerton from some of these scenarios.
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TABLE 3-12: SELECTED SHAKING SCENARIOS FOR FULLERTON
Fault
Magnitude
(Mw) Distance to Epicenter (Miles)* MMI in Fullerton
Peralta Hills 6.6 7 VIII (Destructive)
Whittier 6.9 8 VIII (Destructive)
Anaheim 6.4 4 VIII (Destructive)
Chino 6.6 12 VIII (Destructive)
6.8 13 VIII (Destructive)
Newport-Inglewood
7.0 2 VIII (Destructive)
7.2 14 VII (Very strong)
7.5 75 VIII (Destructive)
Palos Verdes 7.3 19 VIII (Destructive)
7.7 50 VIII (Destructive)
Elsinore
7.0 25 VIII (Destructive)
7.3 23 VIII (Destructive)
7.7 110 VIII (Destructive)
Sierra Madre 7.3 25 VIII (Destructive)
San Jacinto 7.3 42 VIII (Destructive)
San Andreas 7.2 46 VIII (Destructive)
Source: USGS 2018d.
* Distance between downtown Fullerton and the epicenter (the point on the surface above where the fault rupture began).
Climate Change Considerations
Fault Rupture: Generally, there is no known direct connection between fault rupturing and climate change. Some evidence suggests that greater oceanic pr essure on tectonic plates as a result of melting land ice could influence the behavior of seismic events, but there is little to indicate that this would play a major factor in any seismic event, including fault rupturing.
Liquefaction: Changes in precipitation patterns could affect groundwater levels, which could in turn affect the susceptibility of soils in Fullerton to liquefaction. At this time, however, there is no evidence to suggest that climate change affects liquefaction events in a substantial way.
Seismic shaking: Generally, there is no known direct connection between seismic shaking and climate change, although there is some evidence that melting land ice may influence seismic shaking at a global scale. This is unlikely to cause noticeable changes in seismic shaking at a local level.
SEVERE WEATHER
For the purposes of this plan, numerous hazard profiles have b een grouped under severe weather hazards. These hazards are: extreme heat, heavy rain, severe wind, and tornadoes.
Description
Extreme Heat: An extreme heat event is a day when temperatures reach levels that are significantly higher than normal. In California, extreme heat has been defined as any day when the maximum temperature surpasses 98 percent of all prior historic high temperatures for the area, using the time between April and October from 1961 to 1990 as the baseline. Extreme heat events differ fro m region to region based on the area’s climate. An extreme heat event in the Central Coast area of California will likely have a lower City of Fullerton
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threshold than an extreme heat event in the Central Valley. A succession of extreme heat events is generally referred to as a heat wave.
Humidity plays a factor in the
perceived heat that people feel.
Generally, humidity will make a
hot day feel even hotte r than a
dry day even though the
temperature may be the same.
This difference between ac tual
heat and apparent heat is called
the heat index. As an example, a
100°F day with 50 percent
humidity will feel like a 118°F
day (NOAA 2018b). Figure 3-11
shows NOA A’s National
Weather Service Heat Index.
Extreme heat is dangerous for a variety of rea sons. The human body cannot withstand long periods of heat and will suffer heat exhaustion and dehydration if precautions are not taken. Severe extreme heat may cause h eatstroke, when internal body temperatures surpass 105°F. Without intervention, organ failure and even death can result. The elderly are especially at risk of extreme heat events, as are people who spend time or work predominantly outside, such as agricultural or construction workers.
Heavy Rain: During severe weather events such as strong storms, rain can fall at such a high rate that it cannot drain away fast enough. The resulting heavy rain can cause flooding, leading to inundation and potential damage to buildings, road networks, public areas, utilities, and other critical pieces of infrastructure. In California, heavy rainfall events are often short, intense bursts of rain, but in some cases heavy rain can persist for multiple days.
Severe Wind: Wind is simply the movement of air caused by differences in atmospheric temperature.
High pressure air will naturally move to areas of low air pressure. Usually, the distance between these high and low pressure zones is far. On occasion, however, these low and high pressure zones may be near one another. When this happens, air will flow dramatically, creating high-speed winds.
When winds are fast enough, they can cause property damage to homes, public facilities, utilities, and other infrastructure. They can also uproot or topple mature trees or pick up debris and send it careening through the air. This debris can injure or even kill bystanders who may find themselves stranded outside.
High speed winds can also deposit this debris in the middle of rights-of-way, such as roads, freeways, and railways, blocking exit routes for would-be evacuees or impeding access to first responders trying to reach wounded people.
Tornado: A tornado is a unique kind of extreme wind event that occurs when a vertical column of wind oscillating at very high speeds makes contact with earth. These kinds of conditions usually occur during electrical storms. Tornadoes can cause severe damage and injure or kill people. While these events are Figure 3-11: NOAA Heat Index
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rare in California, some tornadoes emerge under unique conditions. In especially rare circumstances, the extreme heat generated by wildland fires has been demonstrated to create circling towers of wind which are effectively tornadoes (Holthaus 2018). More common wind events that exhibit similar speeds to those of tornadoes include downbursts, microbursts, and derechos. Like tornadoes, these events are generated by thunderstorm conditions.
Location and Extent
Extreme Heat: Extreme heat events may occur anywhere in Fullerton. The threshold for an extreme heat day in Fullerton is 98.4°F (Cal-Adapt 2018).
Heavy Rain: The location and size of a rain event varies depending on regional geography as well as regional and global weather events. For example, small precipitation events may occur in only one particular section of Fullerton. In contrast, a large rain event could inundate a majority of Orange County as well as other jurisdictions.
As a whole, California’s precipitation varies from year to year depending on how much moisture the state receives from atmospheric rivers. Atmospheric rivers are corridors along which wet air travels from the tropics to continents. When the moisture arrives in California, it may precipitate as rain or snow. One of the most commonly known atmospheric rivers in California is the “Pineapple Express,” which brings moist air from the ocean surrounding Hawai’i to California. During certain years, an immense amount of moisture may be transported along the atmospheric rivers that cross over California, leading to severe rains (NOAA 2015).
Another weather phenomenon influencing rainfall in
southern California —“El Niño,” officially referred to
as the “Southern Oscillation” or “El Niño -Southern
Oscillation (ENSO)” —can cause increased rainfall,
particularly during the winter months. ENSO is
caused by warming of the surface of the eastern
tropical Pacific Ocean, leading to evaporation of
warm, moist air into the atmosphere. Winds bring
this moisture to the eastern Pacific and the American
continents, where it fal ls as rain. ENSO does not
always lead to increased rainfall by default but, in
general, it can increase the chances for a winter with
higher-than-usual precipitation (NOAA 2014, 2016).
Rain events are usually measured by amount of precipitation that falls. Table 3-13 categorizes rain events by the amount of precipitation per hour.
A rainy day at the campus of California State University, Fullerton. Image from Mihaylo College of Business.
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Severe Wind: In southern California, the most common type of severe wind event is called the Santa Ana winds. High pressure over Nevada and Utah, often during the fall and winter months, forces air down from the high desert toward the ocean. As the winds descend, they heat up and increase in speed, sometimes carrying particulate matter and aggravating the respiratory health of those who have allergies (Scripps Health 2012; UCSD 2016). Fullerton is often affected by Santa Ana winds blowing through the Santa Ana Mountain range. Santa Ana winds are a leading cause of wildfires in California. More information on this is available in the “Fire” section.
Generally, winds are measured using the Beaufort scale, developed in 1805, which categorizes wind events on a scale of force 0 to force 12 using their speed and impacts. Any wind that is classified as force 9 or above is generally considered to be a severe wind event. Table 3 -14 shows how the Beaufort scale classifies wind events in detail.
TABLE 3-13: MEASURING HEAVY RAIN EVENTS
Rain Type Description
Heavy rain More than 4 mm per hour but less than 8 mm per hour.
Very heavy rain Greater than 8 mm per hour.
Moderate shower Greater than 2 mm, but less than 10 mm per hour.
Heavy shower Greater than 10 mm per hour, but less than 50 mm per hour.
Violent shower Greater than 50 mm per hour.
Source: USGS 2016.
mm = millimeter
TABLE 3-14: BEAUFORT SCALE
Force Speed (mph) Description
0 0 to 1 Calm: Smoke rises vertically and the sea is flat 1 1 to 3 Light air: The direction of wind is shown by smoke drift, but not wind vanes. 2 4 to 7 Light breeze: Wind is felt on the face, leaves rustle, and wind vanes are moved. Small wavelets appear on the ocean, but do not break.
3 8 to 12 Gentle breeze: Leaves and small twigs are in motion, and light flags are extended. Large wavelets appear on the ocean and crests begin to break. 4 13 to 18 Moderate breeze: Dust and loose paper become airborne, and small branches are moved.
Small waves appear on the ocean.
5 19 to 24 Fresh breeze: Small trees begin to sway and moderate waves form. 6 25 to 31 Strong breeze: Large branches are in motion, and using an umbrella becomes difficult.
Large waves begin to form.
7 32 to 38 Near gale: Whole trees are in motion and walking against the wind can be hard. Foam from breaking waves is blown in streaks.
8 39 to 46 Gale: Walking is difficult and twigs break off trees. 9 47 to 54 Severe gale: Slight structural damage. Crests of waves begin to topple. 10 55 to 63 Storm: Trees are uprooted and considerable damage to structures. Very high waves form in long, overhanging crests.
11 63 to 72 Violent storm: Widespread damage. Exceptionally high waves form, and the ocean is completely covered in foam.
12 73 and above Hurricane: Devastating damage. On the ocean, the air is filled with foam and spray.
Source: NWS 2018.
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Tornado: Tornado events are measured with the Enhanced Fujita (EF) scale. The EF scale uses observations of tornado damage, rather than the actual wind speed itself, as the measure. Table 3 -15 shows the EF scale.
TABLE 3-15: ENHANCED FUJITA SCALE
Rating Speed (mph) Description
EF0 65 to 85 Light damage: There is some damage to chimneys, branches are broken off trees, and shallow-rooted trees fall. Signboards damaged.
EF1 86 to 110 Moderate damage: Surfaces are peeled off roofs, and moving vehicles are blown off roads. Mobile homes are pushed off foundations or overturned.
EF2 111 to 135
Considerable damage: Mobile homes are demolished, and roofs are torn off framed houses. Large trees are snapped or uprooted, and light objects become missiles. Cars are lifted off the ground.
EF3 136 to 165
Severe damage: Roofs and some walls are torn off well-constructed houses. Trains are overturned, and most trees in forests are uprooted. Heavy cars are lifted and thrown.
EF4 166 to 200
Devastating damage: Well-constructed houses are leveled, and structures with weak foundations are blown away. Cars are thrown, and large objects become missiles.
EF5 201 and above
Incredible damage: Strong frame houses are leveled and blown away. Vehicle-sized objects are thrown over 300 feet. Bark is stripped off trees, and incredible phenomena occur.
Source: NOAA 2006a, 2006b.
Past Events
Extreme Heat: Historically, Fullerton has, on average, experienced four extreme heat days per year between 1960 and 1990 (Cal-Adapt 2018). More recent local temperature data measured by the Fullerton Municipal Airport indicates that highest monthly mean maximum temperature in Fullerton between the years 2000 and 2019 occurred in September 2012 , with the mean maximum temperature recorded at
92.7°F (NWS 2019). Given that the threshold for extreme heat days is five degrees hotter at a 98.4°F, it is clear that extreme heat days are not a regular occurrence in Fullerton’s history.
On occasion, however, Fullerton has experienced days of extreme heat:
• On September 1, 2017, southern California felt the brunt of a heat wave that caused temperatures to exceed 100°F in Inland Orange County. (NOAA 2018a)
• On October 23, 2017, the entire Southern California region was hit by a heat wave that lasted until the 25th. Fullerton Airport measured a peak temperature of 104°F on the 24th. (NOAA 2018a) • In July 2018, heat waves continually impacted Southern California throughout the month, breaking heat records across the region. The maximum temperature on July 6 in Los Angeles was 111°F and in Santa Ana was 114°F. A second, less-powerful heat wave heat hit on July 25. (Arango 2018; Serna and Newberry 2018)
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Heavy Rain: Fullerton has experienced heavy rain events that have inundated the community. Most recently, Fullerton was affected by a series of strong storms in the winte r of 2016 and early 2017 that brought immense rainfall to California, including Fullerton (Coats 2017; Graham 2016). In 2014 heavy rains affecting most of southern California caused flooding on sections of Bastanchury Road that was nearly a foot deep. Nearby weather stations reported that more than an inch of rain fell in a span o f three hours.
In December 2013, rain showers poured on the coastal and inland areas of southern California, depositing between a quarter inch to half an inch of rain. Sections of Orange County between Placentia and Yorba Linda were affected, and streets in Anaheim were flooded. In January 2010, a strong storm delivered by the jet stream caused urban flooding throughout Southern California. The roof of a medical facility in nearby Santa Ana caved in due to the heavy rain (NOAA 2018a). Other past heavy rain events are included in the list of historical floods earlier in this chapter.
Severe Wind: There have been several strong wind events recorded in and around Fullerton (NOAA 2010, 2018a):
• In November 1957, Santa Ana winds exacerbated wildland fires, endangered air traffic, and triggered sandstorms in the Fontana area.
• In April 1962, strong Santa Ana winds howled throughout the region, uprooting trees, causing property damage and interrupting power transmission to customers. • In November 1996, Santa Ana winds blew at 35 to 45 miles per hour throughout most of southern California, although winds were recorded close to 100 miles per hour in certain areas. In December 1996, gusts were reco rded in Fremont Canyon near Tustin at 111 miles per hour. Injuries were recorded in Huntington Beach when a 60 -foot tree was uprooted by the winds and fell on top of people.
• In October 1997, a fire caused by scrap metal was carried by 45 -mile-per-hour Santa Ana winds throughout the Santa Ana Mountains, causing widespread property damage in eastern Orange County.
• In October 1998, a thunderstorm sent destructive winds through Orange County. Trees everywhere were uprooted and blown onto vehicles and buildings. A power outage affected more than 18,000 utility customers across the communities of Los Alamitos, Rossmor, Cypress, Tustin, Santa Ana, and Garden Grove.
• In October 2007, winds up to 85 miles per hour blew through Fremont Canyon near Tustin. These winds c aused extensive damage to houses and vehicles. The winds also exacerbated existing wildland fires, causing widespread evacuations and the burning of more than 49,000 acres. • In November 2008, strong Santa Ana winds exacerbated and spread the Freeway Comple x Fire, one of the most destructive fires in Southern California history. Mo re than 30,000 acres were burned.
Tornado: There are no documented events of tornadoes occurring within Fullerton. Some tornadoes or near tornado events have occurred in the surrounding area, however. Specifically:
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• A tornado in March 1952 struck Santa Monica, killing three people and damaging some property. • In February 1962, a tornado occurred in Irvine which uprooted trees and felled some utility poles. • A series of tornadoes began in El Segundo and Huntington Beach in February 1978 which blew over utility poles and uprooted trees onto cars. Six people were also injured. In total, the tornadoes caused up to $3 million in property damage.
• In March 1986, a tornado impacted Anaheim and damaged some buildings in 1.25-mile-long path. • Across December 2004 and January 2005, a series of funnel clouds was observed in Fullerton, but a tornado was never generated (NOAA 2010).
In terms of fire-generated tornadoes or tornado-like events, the most recent example occurred during the Carr Fire in Northern California. Intens e heat from the blaze created a rotating cloud of wind and smoke that was reportedly six miles high. The observed damage from these winds was similar to that caused by winds of 140 mph or higher (Holthaus 2018).
Risk of Future Events
Extreme Heat: Extreme heat events occur annually in Fullerton a few times each year. All expectations are that the probability they will occur again in the future is highly likely and anticipated to increase in the future.
Heavy Rain: There is no indication that rainfall or severe rain hazards will abate either in Fullerton or the greater region of Southern California in the future. While Fullerton may experience prolonged periods of dry or wet years, all expectations are that the probability they will occur again in the future is highly likely and anticipated to increase in the future.
Severe Wind: Given Fullerton’s history of severe wind events, it is very likely that wind events will continue to impact the city. The most probable source of wind events in the future will likely originate from the Santa Ana winds or extreme storms. All expectations are that the probability they will occur again in the future is highly likely.
Tornado: While there is a chance that a tornado could emerge in Fullerton or begin somewhere else in Orange County and enter the city’s boundaries, the rarity of the specific wind conditions that lead to tornadoes means that the risk of a tornado impacting Fullerton is low.
Climate Change Considerations
Extreme Heat: The primary effect of climate change is warmer overall global temperatures. In fact, the five hottest years on record have been within the last decade (Climate Central 2018). Among these, 2016 was the hottest year on record, and 2017 was the second hottest (WMO 2018). It is expected that these warming trends will continue and therefore bring the potential for hotter, more frequent extreme heat events. For Fullerton specifically, it is predicted that the average number of extreme heat days per year could increase from 4 to 16 or even 30 by the end of the 21st century (Cal Adapt 2018).
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Local Hazard Mitigation Plan | Final City Council Draft 3-69
Heavy Rain: Climate change is expected to alter rainfall patterns in southern California, including Fullerton. As the climate warms, rain events are predicted to become more intense. It is likely that Fullerton will e xperience more rain inundation events that lead to flooding, erosion, dam failure, tree mortality, and other potential hazards.
Severe Wind: It is anticipated that the atmospheric rivers that deliver storms to Southern California may intensify as a result of climate change. While the average number of storms in Southern California will remain more or less the same, storms are expected to incre ase in strength by 10 to 20 percent (Oskin 2014). This increase in storm intensity may also bring more intense winds to the Southern California region, including Fullerton. It is not yet known if climate change will affect the frequency or intensity of Santa Ana wind events.
Tornado: It is not generally known whether or not climate change will increase the number of tor nadoes in Southern California. Climate change will likely lead to more frequent and more powerful fires, though, which could set the stage for more fire-generated tornadoes (Holthaus 2018). Given how rare extremely powerful fires of this nature are in Fullerton, however, the risk of a fire-generated tornado occurring that could impact the city is low.
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CHAPTER 4
4. THREAT ASSESSMENT
Chapter 3 discussed the hazards that are at risk of occurring in City of Fullerton. Whereas “risk” is defined as the possibility that an event will occur, a hazard “threat” is the potential harm to people, ecosystems, buildings, and economic activity.
This chapter discusses the key facilities and population that is threatened by hazards. It also discusses how certain assets or populations are more vulnerable to hardship caused by a hazard and may find it more difficult preparing for, evacuating from, or re covering from a hazard event. This chapter summarizes the physical threat to critical faci lities and facilities of concern, the social threat to vulnerable populations, and threats to the economy, transportation system, or environment or other areas of concern.
KEY FACILITIES
Critical facilities are properties that should receive priority in recovery efforts because they serve important functions in the execution and provision of emergency services to the City. Critical facilities in Fullerton include City administration buildings, water tanks and pumps, public safety buildings such as police and fire stations, schools, and bases of operations for City maintenance activities. These facilities may also serve as assembly points or temporary shelters or play a supportive role in preparing for and recovering from hazard events . Facilities of concern are not critical for City operations but could have elevated risk. Critical facilities and facilities of concern may be owned by the City, other agencies, or private companies.
The Hazard Mitigation Planning Committee identified 167 critical facilities and 69 facilities of concern that fall into several different categories based on their function. These facilities were chosen based on the city’s determination as well as their jurisdiction over them. Schools are community resources owned and operated by th e local school districts. The City actively coordinates with these districts to ensure the facilities can help support emergency management needs. Table 4 -1 shows the number of critical facilities and facilities of concern in each category, the total es timated value of the facilities in each category, and examples of the facilities in each. Appendix D has a complete list of the critical facilities and facilities of concern. Figure 4-1 maps all of the critical facilities and facilities of concern in Fullerton within their geographic context. Some facilities are not shown on the map due to security concerns about their locations.
The threat assessment for critical faci lities looks at the number and types of facilities that lie within the areas of elevated risk for different hazards. Hazard events may damage or destroy these facilities, leaving them unable to function or with limited capacity. Repair or reconstruction work may be necessary to make these facilities fully operational. Facilities outside of the elevated risk hazard areas may still be affected by hazards, although the risk (and therefore chance of damage) is lower.
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Figure 4-1: Map of Critical Facilities and Facilities of Concern in Fullerton
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TABLE 4-1: FULLERTON KEY FACILITIES
Facility Type Critical Facility Facility of Concern Total Community Services 5 3 8
Education 0 44 44
Emergency Gathering Areas 5 0 5
Energy 2 0 2
Medical 1 22 23
Museum 1 0 1
Municipal Government 9 0 9
Transportation 71 0 71
Utility 33 0 33
Water and Sewage 40 0 40
Total 167 69 236
VULNERABLE POPULATIONS
The threat analysis identifies segments of the population that may be disproportionately impacted by hazard events in relationship to where these hazards occur . A hazard event can have very different impacts on groups or individuals, based on their age, socioeconomic status, physical and mental condition, and other demographic factors or living conditions that affect thei r resilience to natural hazards . For example, a hurricane or other severe weather event can have a greater impact on older adults who suffer from chronic illnesses and may become unable to take their medications or access the services or technologies that they depend on.
Households with the following characteristics may be more vulnerable to hazard events:
• Households with at least one person with a disability . Households in which a person living with a disability lives alone or lives with others . Persons with disabilities may have reduced mobility may rely on others for care. Depending on their disability, they may not have the resources or ability to protect or mitigate damages to their homes or property. • Households living below the poverty level. Households with an inc ome below the poverty level are less likely to have the financial resources to prepare for or cope with the impacts of hazard events. For a family of four, the annual household income for a household living below the poverty level is $25,100 (Heathcare.gov, 2018). If a hazard event significantly disrupts the local economy, they could face significant hardship recovering from the event. • Households with at least one person over 65 . Persons over the age of 65 may have limited mobility or suffer from medical co nditions. A hazard event could exacerbate existing health complications or injuries in the aftermath of an event. Senior citizens living alone are especially at risk because they may have a more difficult time getting needed assistance before, during, or after a hazard event.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-6
• Renter Households: Renter households may have limited control over the resilience of their home.
They could be unaware of signs of disrepair or more serious structural conditions. They may be subject to negligence from absentee or unresponsive landlords and live in unsafe housing conditions that are left unaddressed. Some renter households, especially undocumented, lower - income, or immigrant households, may not report safety issues or code violations to authorities out of fear of landlord retaliation or jeopardizing their jobs, housing stability, or residency. Almost half of households in Fullerton are renters.
The following tables show the population and hou seholds within Fullerton, as well as the percentage of people within a group that could be more vulnerable.
TABLE 4-2: FULLERTON POPULATION AND HOUSEHOLDS
City of Fullerton Total
Population 139,044
Households 44,929
Median Household Income (adjusted to 2018 $) $74,642
Sources: ACS Estimates 2012-2016; ESRI 2018 Demographic and Income Profile.
TABLE 4-3: FULLERTON VULNERABLE POPULATIONS
Vulnerable Population Metric %
Percentage of renter households 46%
Percentage of households with at least one person living with a disability 20% Percentage of households living under poverty limit 13% Percentage of population aged 65+ 12%
Percentage of 65+ population living alone 21%
Sources: ACS Estimates 2012-2016; ESRI 2018 Demographic and Income Profile.
There are other groups that may be more vulnerable during a hazard event than the general population— such as people living in homelessness, undocumented immigrants, persons who live with certain chronic diseases, persons who are socially isolated, or households that live in areas with limited vehicular access.
These groups are vulnerable because they may experience greater hardship evacuating or recovering from a hazard event than the general population. The most recent federally mandated, “point -in-time” count of the homeless population in Orange County was conducted in April of 2018 and revealed that the overall homeless population in Northern Orange County had increased from 2017, including the homeless population in Fullerton. Specifically, 1,837 homeless individuals were counted among Northern Orange County cities, including: Anaheim, Brea, Buena Park, C ypress, Fullerton, La Habra, Los Alamitos, Orange, Placentia, Stanton, Villa Park, and Yorba Linda (Replogle 2019). While localized data for Fullerton’s portion of the homeless population is not available at this time, a hazard even t that strikes any of these cities or a regional hazard event that impacts all of Northern Orange County simultaneously can impact the homeless population and cause migrations of homeless individual s and groups across city borders . This could lead to an overwhelming of local homeless services.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-7
OTHER COMMUNITY ASSETS
Other features or aspects of a community, such as important services, infrastructure networks, natural ecosystems, or local economic activities could also be disproportionately affected by a hazard event.
THREAT PROFILES
DAM FAILURE
Physical Threat
As mentioned in Chapter 3, dam inundation flooding as a result of a dam failure can be very destructive due to the quantity of water that is released in a short period of time. A dam failure can be caused by an earthquake or other strong force or as a result of structural issue, such as an eroded embankment or flood control channel.
Table 4-4 shows the key facilities threatened by flooding hazards from at least one dam. The threat of dam inundation in Fullerton is high due to the presence of multiple dams surrounding the City. Dam inundation would primarily affect the flatter, lower elevation southern section of the city, potentially impacting 133 key facilities. The boundaries of dam inundation maps show downstream areas that would be inundated by at leas t two feet of water. Several bridges, nursing facilities, hospitals, educational facilities, and municipal divisions are in the path of one or more dam inundation areas. Figure 4 -2 shows the critical f acilities and facilities of concern located within dam inundation areas. When the flood inundation waters from the dam failure event reach these facilities, they can their impede operations through short circuiting any unprotected power equipment. Any amen ities or small structures, such as seating or portable sheds, at these facilities that are not securely fastened would likely be toppled by the force of the flood waters. Any underground rooms with apertures to the surface would likely become flooded.
Some dams pose a greater threat than others due to their capacity and operational status. According to the Army Corps of Engineers Dam Safety ratings, the Carbon Canyon, Prado, and Brea Dams are at a high risk of failure. Because of their size, they would also cause a significant degree of environmental, social, and economic damage if they failed (Army Corps n.d.b). Fullerton Dam presents a moderate to high risk of failure. The OC Reservoir has not been given a Dam Safety rating; however, this assessment has determined it presents a low threat to residents and key facilities.
Prado Dam
Table 4-5 shows the key facilities that are in the inundation path of Prado Dam. Prado Dam has a storage capacity of almost 217,000 acre-feet (Army Corps n.d.a). Due to its large storage capacity, the dam could inundate several cities in Orange County if it failed, assuming all the water was released at once. More minor breaches would likely have less sever e impacts. In Fullerton, a failure of Prado Dam could impact 78 critical facilities and 22 facilities of concern.
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Local Hazard Mitigation Plan | Final City Council Draft 4-8
TABLE 4-4: FACILITIES AT RISK OF DAM FAILURE INUNDATION BY ALL DAMS Facility Type Critical Facility Facility of Concern Grand Total Community Services 5 1 6
Education 0 25 25
Energy 2 0 2
Medical 0 10 10
Museum 1 0 1
Municipal Government Division 7 0 7
Emergency Gathering Areas 3 0 3
Transportation 57 0 57
Utility 4 0 4
Water and Sewage 18 0 18
Grand Total 97 36 133
TABLE 4-5: PRADO DAM INUNDATION AREA
Facility Type Critical Facility Facility of Concern Total Community Services 5 1 6
Education 0 14 14
Emergency Gathering Areas 2 0 2
Medical 0 7 7
Museum 1 0 1
Transportation 42 0 42
Municipal Government 6 0 6
Total 56 22 78
Carbon Canyon
Table 4-6 shows the key facilities that are in the inundation path of Carbon Canyon Dam. A failure of Carbon Canyon Dam could impact 51 critical facilities and 15 facilities of concern, including several schools and transportation routes. Floodwaters from an inundation of this dam could affect neighborhoods north of State Route 91 and south of Chapman Avenue.
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Local Hazard Mitigation Plan | Final City Council Draft 4-9
Figure 4-2: Critical Facilities and Facilities of Concern in Dam Inundation Areas
(ACOE)
(ACOE)
(ACOE)
(MWD)
(ACOE)
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TABLE 4-6: CARBON CANYON DAM INUNDATION AREA
Facility Type Critical Facility Facility of Concern Total Community Services 3 1 4
Education 0 12 12
Emergency Gathering
Areas 1 0 1
Medical 0 2 2
Transportation 29 0 29
Municipal Government 3 0 3
Total 36 15 51
Brea Dam
Table 4-7 shows the key facilities that are in the inundation path of Brea Dam. A failure of the Brea Dam would impact 58 critical facilities and 20 facilities of concern. Brea Dam’s inundation path could potentially affect the neighborhoods in the city south of Malvern Avenue and west of Raymond Avenue.
TABLE 4-7: BREA DAM INUNDATION AREA
Facility Type Critical Facility Facility of Concern Total Community Services 4 1 5
Education 0 14 14
Emergency Gathering Areas 3 0 3
Medical 0 5 5
Museum 1 0 1
Transportation 45 0 45
Municipal Government 5 0 5
Total 58 20 78
Fullerton Dam
Table 4 -8 shows the key facilities that are in the inundation path of Fullerton Dam. A failure of the Fullerton Dam would impact 29 critical facilities and 20 facilities of concern. A breach of the Fullerton Dam would flow from the dam’s location north of the California State University campus southwest along the Fullerton Creek. The flood channel would play a role in mitigating the threat of a potential inundation.
OC Reservoir
The dam failure of the OC reservoir is unlikely to affect any households or key facilities. The reservoir’s inundation area would be limited to Craig Regional Parkas the inundation area for the OC Reservoir dam is largely outside of Full erton’s city boundaries and the small section that crosses into Fullerton is contained by the reservoir of Fullerton Dam. In a scenario where the reservoir of Fullerton Dam may be full, and the dam compromised structurally it is possible that a sudden release of water from a breach of City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-12
the OC Reservoir could overwhelm the Fullerton Dam and cause it to also breach but such a scenario is highly unlikely.
Social Threat
A dam failure event could cause significant destruction, particularly if there is little or no advance warning.
Residents could quickly lose access to water, power, roads, communication services, and transportation routes.
Table 4-9 shows the social vulnerability of the dam inundation zone. Almost half or more households in a dam inundation zone are renters. Additionally, there are a greater number of households living in poverty in potential dam inundation areas compared to the City as a whole. Households in these areas have a lower average median household income compared to the City average, indicating that this population would have less disposable income to recover from a dam inundation event.
TABLE 4-8: FULLERTON DAM INUNDATION AREA
Facility Type Critical Facility
Facility of
Concern Total
Community Services 2 1 3
Education 0 13 13
Medical 0 6 6
Transportation 23 0 23
Utility 1 0 1
Municipal Government 3 0 3
Total 29 20 49
TABLE 4-9: DAM INUNDATION ZONE, THREATENED POPULATION METRICS Threatened
Population Metric
Brea
Dam
Carbon
Canyon
Dam
Prado
Dam
Fullerton
Dam
Orange
County
Reservoir
City of
Fullerton
Population 54,863 58,892 58,924 29,878 0 139,044
Households 16,166 17,579 17,340 8,273 0 44,929
Median household income
(adjusted to 2018 $) $59,526 $54,779 $59,410 $63,234 0 $74,642 Renter Households 55% 59% 55% 48% 0 46%
Percentage of households with
at least one person living with
a disability
22% 19% 22% 22% 0 20%
Percentage of households
living under poverty limit 17% 17% 17% 16% 0 13%
Percentage of population aged
65+ 9% 8% 9% 11% 0 12%
Percentage of 65+
population living alone 21% 20% 21% 21% 0 21%
Sources: ACS Estimates 2012-2016; ESRI 2018 Demographic and Income Profile.
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DISEASES AND PESTS
Physical Threat
It is unlikely that diseases would pose any physical threat to key facilities in Fullerton.
Social Threat
A disease epidemic could affect everyone in Fullerton to some degree, from a mild inconvenience to a fatal condition. Vulnerability is highly dependent on the type of disease, but in general, pregnant women, senior citizens, young persons, people with weakened immune systems, and people living in homelessness face the greatest threat. Persons who live alone and become significantly ill— especially senior citizens and persons with disabilities—could face an elevated threat if they are unable to take care of themselves.
Additionally, a large concentration of vulnerable persons living together could lead to a widespread epidemic. Of particular concern are isolated communities with a large population of infirm or vuln erable groups, such as nursing homes or retirement communities.
Other Threats
A major o utbreak of a disease could stress healthcare facilities and systems in and around Fullerton, potentially causing a decline in medical services. Such an outbreak could a lso prevent many people from going to work, which would harm the economy and affect the quality of many local services.
DROUGHT
Physical Threat
Drought is a regional issue that could affect all areas and critical facilities throughout the City. The primary threat from drought events is a reduced water supply, which would most directly impact the City’s water supply. Reduced rainfall leads to a reduction in groundwater recharge, which is the primary water source for the City. While droughts of short duration may not impact the groundwater aquifer, prolonged periods of drought may affect the City’s ability to sustainably withdraw water.
Drought also has a number of secondary impacts that could affect the City and its critical facilities .
Reduced precipitation and irrigation resulting from drought can affect plants and vegetation increasing the risk of fire. In addition, during prolonged drought trees can become stressed making them susceptible to disease and/or prone to falling over or experiencing damage due to sudden branch drop syndrome.
These impacts typically occur as a result of strong winds that can stress the trees limbs and root systems.
This is a particular concern in the West Coyote Hills, which has a very high potential for wildfire risks, and the East Coyote Hills, which includes the Panorama Nature Preserve and other open spa ces (CAL FIRE 2011). In 2015, almost 70 trees in Hillcrest Park died from the drought, including mature trees (Ponsi 2015).
Key critical facilities susceptible during a drought include water pumps and water delivery infrastructure, which may require modification if groundwater elevations decrease significantly requiring wells to be drilled deeper into the aquifer. In addition, flood control infrastructure, and wastewater systems may be impacted, because lower rates of storm water runoff and sewage conveyance, would decrease flows, City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-14
which could allow solid materials and trash to accumulate and clog systems (Schwab 2013) . These types of damages can be subtle and occur over a long period (Schwab 2013).
Social Threat
In urbanized areas, social threats stemming from droughts or water shortage may become extreme enough that public health is at risk. If water supply is extremely cur tailed or permanently interrupted, significant health impacts could occur. While this is highly unlikely, a prolonged drought occurring over several years could require the City to take extreme measures to reduce water consumption. Typically, these measures include incentivizing use reduction and install ation of efficient technologies that rely on less water. If the drought persists or consumption doesn’t align with available water supplies, jurisdictions typically resort to financial mechanisms (incentives/disincentives) that reduce water demand. Ultimately prolonged droughts have a tendency to increase the costs of water production, due to increased pumping costs from deeper parts of the aquifer, enhanced treatment due to concentration of constituents in the water, and reduced revenues due to the reduction in water usage. While most households in the City may be able to absorb these cost increases, l ower income households may struggle with this added expense, placing greater stress on this segment of the population.
Other Threat
A drought could have far- reaching regional health and environmental impacts, all of which cannot be sufficiently addressed in this report. One of the most serious consequences is that a region can deplete its groundwater supply during prolonged -droughts. Droughts can also affect the recreational and aesthetics features of a community. On a community scale, it can negatively impact large, shady mature trees that would take years to replace. The cost of coping with a drought, including infrastructure repairs and open space maintenance and can absorb a high percentage of the city’s budget.
FIRE
Physical Threat
There are approximately 44 key facilities located within a Fire Hazard Severity Zone (FHSZ). The majority of these are water pumps or sewage facilities, creating a significant risk to the city’s water infrastructure.
Water pumps can fail if they lose power during a fire, hampering firefighting efforts. Addition ally, excessive water use from firefighting efforts can lower wat er pressure in pipes and raise the risk of contamination. Lower water pressure can cause non -potable water to backflow or make it easier for contaminants to be drawn in (USEPA 2002).
As shown in Table 4-10, there are a number of medical-related facilities, such as assisted living and nursing facilities, in the wildfire hazard zone. In the event of a wildfire, these facilities may require specialized evacuation to ensure the safety of their occupants due to the high vulnerability of the person s living in these facilities. Figure 4-3 shows the critical facilities and facilities of concern located in fire hazard severity zones.
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TABLE 4-10: KEY FACILITIES THREATENED BY WILDFIRE
Facility Type
Moderate Fire
Hazard
Severity Zone
High Fire
Hazard
Severity Zone
Very High Fire
Hazard Severity
Zone Total
Emergency Gathering
Areas 1
0 1 1 2
Medical 2 1 2 2 5
Municipal Government 1 0 0 1 1
Transportation 1 2 0 1 3
Water and Sewage 1 3 4 26 33
Total 6 7 31 44
1 – Critical Facilities
2 – Facilities of Concern
Social Threat
Fullerton’s wildfire hazard zones are h ome to approximately 14,600 residents, most of who m live in the Very High FHSZ, as shown in Table 4 -11. Of the vulnerable populations, there is a large population of seniors (over 65) living in an FHSZ. Nearly one quarter (22 percent) of the population liv ing within a medium, high, or very high FHSZ are seniors, compared to 12 percent within the City as a whole. In the moderate and high FHSZ, 24 percent of residents are seniors. In the very high FHSZ, 18 percent of the populations are seniors. Senior residents could be living with disabilities or debilitating medical conditions, have limited mobility options, or rely on caregivers for assistance. They may rely on medication, service animals, wheelchairs, or walkers or require family assistance when evacuating their homes (American Red Cross 2009).
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Figure 4-3: Critical Facilities and Facilities of Concern in Fire Hazard Severity Zones in Fullerton
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TABLE 4-11: FIRE HAZARD SEVERITY ZONE THREATENED POPULATIONS Threatened Population Metric
Moderate and
High Fire Hazard
Severity Zone
Very High Fire
Hazard Severity
Zone City of Fullerton
Population 9,882 4,701 139,044
Households 3,277 1,571 44,929
Median household income (adjusted to 2018
$) $117,435 $121,154 $74,642
Renter Households 19% 15% 46%
Percentage of households with at least one
person living with a disability 23% 23% 20%
Percentage of households living under poverty
limit 4% 6% 13%
Percentage of population aged 65+ 24% 18% 12%
Percentage of 65+ population living
alone 19% 19% 21%
Other Threat
Large wildfires can have a costly and devastating toll on a community. Approximately 60 percent of the land uses within the FHSZ are residential. Flying embers can easily ignite the roofs of homes and other buildings that are not constructed with fire-resistant roofs and rapidly spread fire throughout a region. In addition to residential property, wildfires can damage water pipes and cause water contamination. Plastic water pipes can melt under extreme heat and cause ash, debris, and burned plastic resins to contaminate drinking water (Wilson 2018). In the aftermath of a fire, major damages to commercial, medical, or other nonresidential buildings could cause a significant number of people to permanently lose employment.
FLOODING
Physical Threat
Flooding from a 100-year or 500-year storm event will primarily affect the southern section of the city, where the terrain is relatively flat. In the event of a major storm, runoff will flow rapidly to southern Fullerton from the higher-elevation northern areas of the city. Whereas a 100-year flood threatens just 2 critical facilities, a 500 -year flood threatens 102 key fac ilities, among these are Fullerton City Hall and Community Center. Table 4-12 shows the key facilities threatened by flooding in the City. Figure 4-4 also maps the critical facilities and facilities of concern in Fullerton relative to the floodplain areas. Any facilities inundated with floodwaters are likely to experience power outages if the flood disrupts nearby electrical power grids. Computers and other electronic equipment stored on the ground would become inoperable and destroyed. Streets would become flooded and motorists as well as emergency personnel may not be able to reach their destinations.
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Figure 4-4: Critical Facilities and Facilities of Concern in Fullerton’s Floodplains
Map includes Letters of Map Revision through February 23, 2018 City of Fullerton
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TABLE 4-12: CRITICAL FACILITIES AND FACILITIES OF CONCERN AT RISK OF FLOODING Facility Type
100-Year Flood 500-Year Flood
Facility of
Concern Critical Facility
Facility of
Concern Critical Facility
Community Services 0 0 1 6
Education 0 0 18 0
Energy 0 0 0 2
Medical 0 0 5 0
Municipal Government 0 0 0 5
Emergency Gathering
Areas
0 0 0 2
Transportation 0 0 0 49
Utility 0 0 0 2
Water and Sewage 0 2 0 12
Total 0 2 24 78
Social Threat
Approximately 45 percent of Fullerton residents live in either the 100-y ear or 500-year f lood zone. A majority of these households are renters, which means they risk losing their homes after a devastat ing flood. Whereas a 100-year flood would impact just 2,344 residents, a 500-year flood would directly impact 60,788 persons and 17,962 households. Slightly less than a quarter of the city’s households in either the 100-year or 500-year flood zone includes a person living with a disability. Compared to the city as a whole, there are 3 to 4 percent more residents living in poverty in the 100- and 500-year flood zone respectively.
Additionally, 7 to 8 percent of people in the 100- and 500-year flood zone are over the age of 65.
Lower-income persons in flood-prone areas may be unable to afford flood insurance premiums or flood- proofing improvements to their homes. Following the aftermath of a flood, they may f ace homelessness or significant financial losses that are difficult to overcome. Persons 65 years of age or more are more likely to have health conditions that could limit their ability to evacuate or recover from a flood. Table 4 - 13 shows the social vulnerability in this hazard zone.
Other Threat
Floodwaters can transport debris that blocks roadways and hinders transit, emergency response services, and evacuations. Serious floods could cause erosion of the soil around utility lines and interrupt services.
Damage to a large number of homes or businesses may slow local economic activity.
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Local Hazard Mitigation Plan | Final City Council Draft 4-24
TABLE 4-13: FLOOD HAZARD ZONE THREATENED POPULATIONS
Threatened Population Metric
100-Year
Flood Hazard
Zone
500-Year
Flood Hazard
Zone
City of
Fullerton
Population 2,344 60,788 139,044
Households 918 17,962 44,929
Median household income (adjusted to 2018 $) $37,337 $57,173 $74,642 Renter Households 74% 58% 46%
Percentage of households with at least one person
living with a disability 24% 20% 20%
Percentage of households living under poverty limit 16% 17% 13% Percentage of population aged 65+ 7% 8% 12%
Percentage of 65+ population living alone 23% 21% 21%
Sources: ACS Estimates 2012-2016; ESRI 2018 Demographic and Income Profile.
GEOLOGIC HAZARDS
Landslides/Mudflows
Physical Threat
There are currently three critical facilities, all of which are pump stations, in potential earthquake-induced landslide areas, shown in Table 4-14. Although accurate mapping data for rainfall-induced landslide areas is not available, landslides are a risk on all steep hillsides. In areas with steep slopes, long periods of rainfall can trigger a landslide which could impact roads. There are also a number of residences, schools, and nursing or assisted living facilities in the East and West Coyote Hills region that could potentially be impacted by rainfall -induced landslides or roads stalled by debris. Figure 4-5 shows the critical facilities and facilities of concern that could be impacted by a landslide in Fullerton.
TABLE 4-14: FULLERTON DAM INUNDATION AREA
Facility Type Critical Facility Facility of Concern Total Utility 3 0 3
Social Threat
As shown in Table 4-15, there are 1,532 people and 446 households living within an earthquake-induced landslide zone, which is only a small percentage of the city’s population, and very few of whom are renters.
This population does not exhibit a significant social vulnerability in terms of income, age, and disability.
However, 37 percent of the senior population in this area lives alone. Seniors, persons with disabilities, and others who have mobility challenges may not be able to hastily evacuate their homes if a force triggers a landslide on their property.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-25
TABLE 4-15: FULLERTON THREATENED-POPULATION METRICS IN EQ- INDUCED LANDSLIDE ZONE
Vulnerable Population Metric
EQ-Induced Landslide
Zone City of Fullerton
Population 1,532 139,044
Households 446 44,929
Median household income (adjusted to 2018 $) $144,783 $74,642 Renter Households 16% 46%
Percentage of households with at least one person living with a disability 22% 20%
Percentage of households living under poverty limit 6% 13% Percentage of population aged 65+ 12% 12%
Percentage of 65+ population living alone 37% 21%
Sources: ACS Estimates 2012-2016; ESRI 2018 Demographic and Income Profile.
Other Threats
Landslides may block r oadways for weeks or even months. Such an event in Fullerton could cause long- term disruptions to the roadway network, hindering emergency response services. Underground utility lines in slide-prone areas or above -ground lines built on or above them, can be damaged in a landslide, causing service outages. Landslides could affect sensitive ecological areas around the community, causing localized harm to the region’s ecosystem, although widespread disruptions are unlikely.
Homes and businesses are typically damaged or destroyed by landslides. In addition to potentially causing significant injuries or fatalities, this can cause economic harm and create a need for long-term emergency sheltering and temporary housing until these buildings can be reconstructed. Utility lines, such as power lines or water pipes, may be broken by a landslide, interrupting important services.
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Figure 4-5: Critical Facilities and Facilities of Concern in Landslide Zones in Fullerton
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Local Hazard Mitigation Plan | Final City Council Draft 4-29
Subsidence
Physical Threat
There is evidence of current or historical land subsidence in Fullerton as a result of excessive groundwater pumping, particularly in the southern section of the city (USGS 2018). Subsidence can have an effect on both the built and natural environment. Because water lines are gravity driven, a change in elevation as a result of subsidence could make the system more inefficient. Sinking of the ground could also reduce the distance to the groundwater table, which could raise the risk of contamination from hazardous materials.
Subsidence could also irreversibly decrease an aquifer’s capacity to store water (USGS 2017) . Although accurate subsidence mapping data is not available, many important critical facilitie s could be gradually affected by subsidence in Fullerton and may require further study to examine their function and safety.
Social Threat
Subsidence is a concern for everyone because it could have a significant effect on large-scale systems such as utility infrastructure, open space, and aquifers. In addition, subsidence could affect the safety of homes.
Buildings could gradually sink as a result of subsidence, causing minor issues such as cracks or misalignments of doors and windows, or more costly probl ems such as sinkholes. These issues could impact residents living in older homes, which may not have been built with foundations reinforced with steel. Because insurance companies may not cover damages caused by subsidence or other geologic hazards, lower-income households may find it financially difficult to cope with subsidence.
Other Threats
If subsidence occurred in Fullerton, the impacts could be widespread. In addition to potentially damaging buildings throughout the community, subsidence could damage roads and rail lines as well as underground pipes such as water, wastewater, and natural gas. This could create more congestion on Fullerton’s transportation networks and interrupt key utility services.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-30
HAZARDOUS MATERIALS
Physical Threat
Hazardous materials, including chemicals used as byproducts of industrial activities, natural gas and oil pipeline ruptures could be a significant threat to human and environmental health if they are not properly stored, managed, and contained. Oil and nat ural gas lines could rupture, exposing flammable or toxic chemicals. A short section of the Crimson Pipeline carries crude oil cuts through the northeast corner of Fullerton. In addition, several oil pipelines carrying crude oil and refined product run thr ough La Habra , Brea, Anaheim, and Buena Park. SoCalGas also runs a subterranean natural gas pipeline through the middle of the city that nearly divides northern and southern Fullerton in half. Although pipeline failures are low -frequency events, they can have disastro us consequences. Ruptures could lead to fires and explosions that cause serious injuries or fatalities as well as environmental contamination of waterways.
Oil and gasoline could contaminate groundwater and lead to costly and multiyear cleanup efforts if released into waterways.
In addition, records from the Department of Toxic Substances Control have found harmful levels of toxic chemicals that have leached into the soil as a result of industrial activities. These chemicals can leach into the soil and pot entially contaminate groundwater aquifers. Figure 4 -6 shows the critical facilities and facilities of concern that are nearby to hazardous materials sites in Fullerton.
Social Threat
The most concerning impact of hazardous chemicals and materials is their impact on human health.
Hazardous chemicals used in oil and gas operations and hazardous materials used in other industrial operations could have harmful effects on certain groups, depending on how much and how long a person is exposed t o them (ATSDR 2017) . In particular, PCEs and TCEs could evaporate and expose persons occupying buildings located on the site to these compounds (ATSDR n.d.b). Crude oil pipelines can have high concentrations of hydrogen sulfide (H2S), which is a poisonous and flammable gas t hat can cause death in low exposures (Butler et al. 2018). Children, adolescents, and pregnant women are especially at risk of health risks associated with these chemicals. The health risks include immune system diseases or pregnancy or birth complications (ATSDR n.d.b).
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-31
Figure 4-6: Critical Facilities and Facilities of Concern Near Hazardous Materials Sites in Fullerton
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Local Hazard Mitigation Plan | Final City Council Draft 4-32
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Local Hazard Mitigation Plan | Final City Council Draft 4-33
HUMAN-CAUSED HAZARDS
Physical Threat
Organizations or agencies that protect important information, such as finance institutions, hospitals, government buildings, or universities, could be the target of cyber threats. A terrorist event could involve the intentional failure of dams, oil and gas pipelines, or other ma jor infrastructure that would cause widespread destruction . The use of bioweapons, chemical agents, radioactive materials, or high -yield explosives could impact a community’s water supply or overall exposure to hazardous materials . Civil disturbances could lead to large-scale damages to public or private property.
Social Threat
The human-caused hazards discussed above could threaten the lives of large numbers of people. Areas that draw large crowds, such as busy commercial areas, airports, or campuses, could be more at risk from a terrorist event or civil disturbance. Transportation accidents, such as aircraft failures, train, or truck accidents present a greater threat to people living in these areas and working in these industries.
Additionally, civil disturbances, cyber threats, or terrorist events could be politically motivated and target specific populations. Therefore, sociopolitical, ethnic, or religious minorities could face a greater threat than the general population.
SEISMIC HAZARDS
Seismic hazards can cause widespread damage or destruction to buildings and other structures. All buildings in the community, including all critical facilities and facilities of concern, are threatened by earthquakes, although the threat varies depending on which fault line is responsible for the event. In general, facilities closest to the fault line face the highest threat. The fault line most likely to cause a significant earthquake in Fullerton is the Puente Hills fault, which runs through the southern half of the city.
A serious seismic event could slow economic activity and the provision of key services. Government administration nodes can be impaired if key facilities are damaged, and seismic damage to local hospitals could hinder medical care. A seismic event could potentially impact the electrical grid, potable water and sewage services, transportation networks, and communication services.
Liquefaction
Physical Threat
A significant section of the lower southwest section of the city would be affected by liquefaction, potentially impacting 109 key facilities . As shown in Table 4-16, a seismic event could cause liquefaction that damages bridges, education facilities, utility infrastructure, and several other critical facilities and facilities of concern. Figure 4 -7 maps the critical facilities and facilities o f concern in Fullerton that are located within liquefaction hazard zones.
Social Threat
Liquefaction could affect 57,376 residents and 16,874 households, with more than half renting. Persons in the liquefaction hazard zone are slightly more likely to live under the poverty limit than the average City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-34
Fullerton resident, and households in the liquefaction hazard zone are also somewhat more likely to include a person with disabilities. Table 4-17 shows the social vulnerability in the liquefaction hazard zone.
TABLE 4-16: KEY FACILITIES THREATENED BY LIQUEFACTION
Facility Type Critical Facility Facility of Concern Total Community Services 4 1 5
Education 0 14 14
Energy 2 0 2
Emergency Gathering Areas 3 0 3
Medical 0 7 7
Museum 1 0 1
Municipal Government 7 0 7
Transportation 54 0 54
Utility 1 0 1
Water and Sewage 15 0 15
Total 87 22 109
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-35
Figure 4-7: Critical Facilities and Facilities of Concern in Liquefaction Zones in Fullerton
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Local Hazard Mitigation Plan | Final City Council Draft 4-36
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Local Hazard Mitigation Plan | Final City Council Draft 4-37
TABLE 4-17: FULLERTON THREATENED-POPULATION METRICS IN LIQUEFACTION ZONE Vulnerable Population Metric Liquefaction Zone City of Fullerton Population 57,376 139,044
Households 16,874 44,929
Median household income (adjusted to 2018 $) $61,844 $74,642 Renter Households 52% 46%
Percentage of households with at least one person living with a disability 22% 20%
Percentage of households living under poverty limit 16% 13% Percentage of population aged 65+ 10% 12%
Percentage of 65+ population living alone 20% 21%
Sources: ACS Estimates 2012-2016; ESRI 2018 Demographic and Income Profile.
SEISMIC SHAKING AND SURFACE FAULT RUPTURE
Physical Threat
All critical facilities and facilities of concern are threatened by seismic shaking, but structures that risk the most damage are those that are not seismically retrofitted or are built on unstable or water -saturated foundations. Seismic shaking can trigger other hazard events, including liquefaction, landslides, and subsidence.
Surface fault rupture could damage any building or infrastructure within the rupture zone. The Puente Hills fault line in the southern section of the city threatens utility lines and other critical facilities. A fault rupture could burst the natural gas transmission line that runs near and crosses the Puente Hills fault line.
Because natural gas is a flammable substance, a rupture can release natural gas into the air and ignite an explosion (IBHS 2018) . Figure 4-8 shows the critical facilities and facilities of concern in Fullerton that could be impacted by seismic shaking or fault rupture.
Social Threat
Seismic shaking and fault rupture pose a significant threat to populations living or working near structures that are not retrofitted to withstand seismic activity. This could include lower -income households who are unable to afford the cost of seismically retrofitting their homes or rent ers living in subst andard housing. S enior citizens (especially those living alone) and lower -income households could have more difficulty recovering from a seismic event that causes significant damage to their home.
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Local Hazard Mitigation Plan | Final City Council Draft 4-39
Figure 4-8: Critical Facilities and Facilities of Concern in Seismic Shaking and Fault Rupture Zones in Fullerton
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SEVERE WEATHER
Physical Threat
Severe weather could affect all parts of Fullerton, so all critical facilities and facilities of concern are within this hazard zone. The two most common severe weather events that could affect Fullerton include high winds and extreme heat.
Severe Winds
Intense winds likely present the greatest threat to physical structures, particularly from trees or branches that fall on buildings and cause substantial damage. Older structures that have deferred maintenance or have not been retrofitted for high wind conditions may suffer greater damage in compa rison to newer/updated structures. Utility lines and wooden utility poles face an elevated threat from wind, as do buildings without reinforced roofs.
Extreme Heat
Very high temperatures can cause roads to deform and buckle as concrete expands in the heat, especially in weaker spots in the pavement, such as areas that have not been maintained well. Power lines and other sections of the electrical grid are less effective in higher temperatures and may suffer damage due to stress during extreme heat events.
Buildings with dark pavement will absorb more heat than the surfaces with vegetation or lighter material, which are better at reflecting the sun’s energy. This urban heat island effect is strongest during hot periods when the sun is strongest.
Heavy Rain
Heavy rain would damage any structures with poorly constructed roofs and could also erode the soil around building foundations. Heavy rain could also lead to flash flooding which would damage unelevated structures in flood zones. Heavy rains are most likely to cause damage to structures located on slopes, where the risk of erosion is the highest. Landslides triggered by heavy rains would damage any structures located below the landslide’s starting point.
Tornado
Since tornadoes can occur anywhere in the city it is not possible to determine which structures would be impacted by a tornado event. However, any structures that have unsecured cladding or accessories (such as roof shingles, weather vanes, or radio antennas) are anticipated to experience some degree of damage. It is unlikely that any structure in Fullerton would be entirely demolished a by a tornado event since tornadoes in California rarely reach that degree of destruction.
Social Threat
Severe Winds
Events such as severe winds and winter weather can harm people throughout Fullerton but have a greater effect on the safety of homeless persons and persons who work outdoors. Lower -income households, who may not be able to afford homes built or retrofitted to withstand powerful winds, could also have difficulty coping or recovering from heavy winds or storms.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 4-42
Extreme Heat
Whereas a heat event can be relatively harmless for those with a reliable means for staying hydrated and cool, it can be deadly for othe rs. Young children, the elderly, or people suffering from serious medical conditions are physiologically more vulnerable to heatstroke. Some senior citizens also take medicines that can make it harder for their bodies to maintain a safe internal temperatur e, creating an additional threat from extreme heat events. Young children may not be aware of the signs of dehydration or ways of protecting themselves from heatstroke.
People living in homelessness are at a high risk of health complications during heat waves, especially if they are unsheltered. According to data counts by the OC Health Care Agency, in 201 7, there were approximately 4,800 individuals experiencing homelessness in the county, with over 50 percent unsheltered, approximately 25 percent in emer gency shelters, and 20 percent in transitional shelters (OCGov 2017). During a heat wave, these people are very vulnerable to heatstroke, especially if they are unable to reach a cooling center.
Sudden spikes in heat can catch people by surprise. Stores can rapidly sell out of fans, air -conditioning units, or drinking water during a heat-wave. Lower-income households or those with limited mobility may be unable to acquire sufficient insulation or cooling devices without significant advance preparations.
Heavy Rain
Heavy rain events pose a threat to any groups in Fullerton who are not able to access adequate shelter.
People who are homeless most often live in tents or informal structures that may protect against minor rains but are inadequate against a heavy rain event. Heavy rain can lead to flash flooding which could sweep away any informal dwellings located within drainages and stream courses. Additionally, vulnerable populations living in older homes that have outdated building materials may experience damage during significant rain events. If affected groups have limited incomes or lack the resources to make necessary repairs or maintain the structures, retrofit of these structures may be hindered.
Tornado
Tornadoes, like all severe weather events, pose a threat to those who lack adequate shelter. Any vulnerable populations that are unable to access shelter before a tornado event, are at risk of being injured or killed. In addition, populations living in older, unmaintained buildings are also likely to be at greater risk of impact from a tornado.
Other Threats
Debris from high winds and other severe weather events can block roadways, disrupting the local transportation network. This in turn can affect transit and emergency response personnel, who may be unable to reach certain areas of the community or may have to take alternative routes.
High temperatures can trap pollutants close to the ground and can potentially worsen air quality beyond what is acceptable under federal health standards.
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 5-1
CHAPTER 5
5. HAZARD MITIGATION STRATEGY
STRATEGY DEVELOPMENT PROCESS
Fullerton’s hazard mitigation strategy is a comprehensive set of actions—hazard mitigation actions—that are intended to reduce the impacts of hazard events. These actions will help to protect the safety and well-being of residents and visitors, critical facilities and facilities of concern, other buildings and structures, key services, the local economy, and other important community assets. Some actions will also help with emergency preparedness, enabling the community to more effectively respond to hazard events. Although preparedness actions are not a required component of an LHMP, the Hazard Mitigation Planning Committee chose to include them because they support a robust overall mitigation strategy.
USE OF HAZARD AND THREAT ASSESSMENT
The Committee relied in part on the hazard profiles and threat assessments in this Plan to develop the actions in the mitigation strategy. The Committee prepared a comprehensive set of mitigation actions that respond to the r elevant hazard situations and provide protection to residents, businesses, and community assets in Fullerton. The Committee took care to ensure that the mitigation actions will help to reduce damage from the most frequent types of hazard events, the most significant that may reasonably occur, and those with the greatest potential to harm the community. The Committee also drafted mitigation actions that will help protect the most vulnerable members of the community and the most vulnerable local assets.
CAPABILITIES ASSESSMENT
The capabilities assessment is a review of the existing local agencies, public policies, funding sources, individuals, and other resources that can support hazard mitigation activities in Fullerton. The hazard mitigation actions build off of the existing success of these resources and leverage their capabilities to support improved resiliency in the community. The capabilities assessment looked at the following types of resources:
• Personnel resources: City staff and volunteers, and staff and volunteers at other agencies. • Plan resource: Advisory or enforceable plans adopted by the City or other agencies. • Policy resource: Policies adopted and implemented by the City or other agencies. • Technical resource: Data and tools available to the City.
Table 5-1 shows the capabilities assessment for Fullerton. A key addition to this table is the identification of plan integration activities from the previous LHMP. These activities have been highlighted within the capabilities assessment table as “Plan Integration Components”.
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Local Hazard Mitigation Plan | Final City Council Draft 5-2
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Local Hazard Mitigation Plan | Final City Council Draft 5-3
TABLE 5-1: CAPABILITIES ASSESSMENT
Resource
Name
Type of
Resource Ability to Support Mitigation Website
City of Fullerton
Building Code Policy
resource
The Fullerton Building Code and associated standards (Residential Code, Mechanical Code, Electrical Code, etc.) are a set of regulations that govern how new buildings are constructed. These standards are published by the state and are adopted by local communities, sometimes with amendments to make the codes more locally applicable. Mitigation actions to construct buildings to a safer standard, allowing them to better resist damage during a hazard event, may be made part of future building code updates. https://www.cityoffullerton.
com/gov/departments/dev_
serv/building_n_permits/def
ault.asp
Capital
Improvement Plan
Plan resource The Fullerton Capital Improvement Plan is a set of construction projects planned for City-owned buildings, facilities, and infrastructure. It is updated every year as part of the City’s annual budget and includes projects for the next 5 years. Mitigation actions to retrofit existing City-owned structures or to build new ones that are better able to resist damage may be implemented by including these projects in the Capital Improvement Plan in the future.
https://www.cityoffullerton.
com/gov/departments/publi
c_works/capital_improveme
nts_programs/capital_impro
vement_program_overview.
asp
Plan
Integration
Component
Several mitigation actions from the previous LHMP were integrated into major capital improvement projects that were completed or in progress by the City since previous adoption.
Community
Development
Department
Personnel
resource
The Fullerton Community Development Department consists of the Building Division, Code Enforcement Division, Housing and Neighborhood Services, and Planning Division. The department is responsible for approving building permits, ensuring that buildings and private property comply with appropriate standards, conducting short-term and long-term planning activities in the community, and coordinating activities that preserve and enhance the character of Fullerton’s neighborhoods. As part of these duties, the department enforces the Fullerton Building Code and all land use regulations. Mitigation actions related to the construction of new structures or retrofits or improvements to existing structures may be implemented through future plan processing by Community Development Department staff. Currently, the Hazard Mitigation Planning Committee leader for Fullerton is in the Community Development Department and is responsible for coordinating updates to the City’s LHMP. https://www.cityoffullerton.
com/gov/departments/dev_
serv/default.asp Community
Emergency
Response Team
Personnel
resource
The Fullerton Community Emergency Response Team (CERT) is a group of volunteers trained in disaster preparedness, public safety, traffic control, and emergency response. CERT members can conduct disaster preparedness activities as well as light emergency response activities when disaster situations occur. The program is managed by the Fullerton Fire Department. Mitigation actions related to community training and education may be further implemented through expansion or revisions to the CERT program.
https://www.cityoffullerton.
com/gov/departments/fire/e
mergency_preparedness/cer
t/default.asp
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 5-4
TABLE 5-1: CAPABILITIES ASSESSMENT
Resource
Name
Type of
Resource Ability to Support Mitigation Website
Emergency
Operations Plan
Plan Resource The Fullerton Emergency Operations Plan is a comprehensive document that provides direction and guidance to City Departments and personnel during an emergency situation.
N/A
Plan
Integration
Component
Incorporation of information from the LHMP informed the relocation of the City’s Emergency Operations Center.
Fire Department Personnel
resource
The Fullerton Fire Department provides fire protection and firefighting services in Fullerton. The department’s responsibilities include taking preparatory steps to prevent fires or limit their destruction.
Mitigation actions related to reducing the likelihood of fires or minimizing injury and damage from fires may be implemented through fire department staff.
https://www.cityoffullerton.
com/gov/departments/fire/a
bout_fire_department/defa
ult.asp
General Plan Plan resource The Fullerton General Plan is the long-term, comprehensive blueprint for development and changes in the community. The policies in the general plan address land uses, public safety, environmental protection, transportation, and others. The general plan serves as a framework for mitigation actions, establishing the overarching policies for mitigation activities. Mitigation actions may be directly incorporated into the general plan to provide a stronger enforcement mechanism. https://www.cityoffullerton.
com/gov/departments/dev_
serv/general_plan_update/d
efault.asp
Plan
Integration
Component
Upon adoption of the previous LHMP, the City integrated the document into the General Plan to ensure compliance with AB 2140.
Human Resources
Department
Personnel
resource
The Fullerton Human Resources Department is responsible for staff recruitment and training, as well as Risk Management functions for the City. Mitigation actions that relate to staff training may be implemented through the Human Resources Department.
https://www.cityoffullerton.
com/gov/departments/hr/de
fault.asp
Landscape
Maintenance
Division
Personnel
resource
The Fullerton Landscape Maintenance Division, part of the Public Works Department, is responsible for maintaining the City’s parks, reservoir basins, hiking trails, and other City properties. It manages tree trimming and the preparation of Fullerton’s Community Forest Management Plan. Mitigation actions that involve responding to tree mortality, drought resilience of public landscapes, and pest management fall under the purview of the Landscape Maintenance Division. https://www.cityoffullerton.
com/gov/departments/publi
c_works/landscape/default.a
sp
Parks and
Recreation
Department
Personnel
resource
The Fullerton Department of Parks and Recreation is responsible for neighborhood centers, parks, trails, and museums and managing classes and special events offered to the community. The Parks and Recreation Commission studies policy recommendations related to parks and recreation concerns, projects, and programs. This Department also provides programs and services for Fullerton’s senior population and connects seniors with transportation vouchers and bus passes. Mitigation actions involving community outreach and designations of Parks and Recreation facilities as emergency shelters may be implemented by this department.
https://www.cityoffullerton.
com/gov/departments/parks
_n_recreation/default.asp
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 5-5
TABLE 5-1: CAPABILITIES ASSESSMENT
Resource
Name
Type of
Resource Ability to Support Mitigation Website
City Manager’s
Office
Personnel
Resource
The Fullerton City Manager Department has executive oversight of citywide operations, policy development, and fiscal planning and manages economic development, public information, city clerk, and city council services. The department also holds the Economic Development, City Clerk’s Office, and the Public Information Office. The Public Information Office coordinates all external communication between the City and citizens, including news releases, social media, and general information management.
https://www.cityoffullerton.
com/gov/departments/city_
manager/default.asp
Police Department Personnel
resource
The Fullerton Police Department is charged with maintaining public safety in the community. As part of this work, the police department is responsible for conducting emergency preparedness activities, investigating criminal activity, and directing traffic. Mitigation actions that relate to the safe movement of traffic (e.g., during evacuations), the public safety of residents during emergency events, and terrorism-related activities may be implemented through police department staff. Because emergency preparedness is part of the department’s responsibilities, the police department can also widely implement other types of mitigation actions through coordination with other departments and agencies. http://www.fullertonpd.org/
Public Information
Office
Personnel
resource
The Fullerton Public Information Office, a part of the City Manager’s Office, is responsible for disseminating critical information to the public in a timely manner. The Office writes and publishes press releases, manages the City’s social media outlets, and distributes general information. https://www.cityoffullerton.
com/gov/departments/city_
manager/public_information
/default.asp
Public Works
Department
Personnel
resource
The Fullerton Public Works Department is responsible for constructing and maintaining City-owned facilities and infrastructure, including roadways, sidewalks, parks, and open space areas. Mitigation actions that involve constructing or retrofitting City-owned facilities and infrastructure may be implemented through Public Works Department staff.
https://www.cityoffullerton.
com/gov/departments/publi
c_works/divisions.asp
Water Division Technical
resource
The Fullerton Water Division, part of the Department of Public Works, is a municipally owned water supplier. The Division’s responsibilities also include building and maintaining the local water infrastructure, ensuring water quality, and conducting water conservation programs. Mitigation measures related to water use and water supply may be implemented in collaboration with City staff. https://www.cityoffullerton.
com/gov/departments/publi
c_works/water_system/defa
ult.asp
Orange County
Orange County
Fire Authority
Personnel
resource
The Orange County Fire Authority (OCFA) provides fire protection and firefighting services to the unincorporated areas of Orange County and many incorporated communities. Fire-related mitigation actions that require coordination with the county may be implemented in collaboration with OCFA staff. http://ocfa.org/
City of Fullerton
Local Hazard Mitigation Plan | Final City Council Draft 5-6