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San Clemente, California
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AGENDA REPORT
CITY OF SAN CLEMENTE
CITY COUNCIL MEETING
CITY OF SAN CLEMENTE
Meeting Date: August 19, 2025 Agenda Item: 10E.
Submitted By: Community Development
Prepared By: Adam Atamian, Community Development Director Subject:
..titl e
WILDFIRE PREVENTION PROGRAM - UPDATE ON CURRENT ACTIVITIES, AND PROPOSED EXTENSION OF THE CITY’S PILOT GOAT-GRAZING PROJECT, AND EXPANSION OF THE
WEED ABATEMENT PROGRAM, INCLUDING A REQUEST TO AWARD A NEW PROFESSIONAL SERVICES CONTRACT TO E. STEWART AND ASSOCIATES, INC. FOR
WEED ABATEMENT SERVICES, RELATED SUPPLEMENTAL APPROPRIATIONS AND MAKING ..body FINDINGS UNDER THE CALIFORNIA ENVIRONMENTAL QUALITY ACT Fiscal Impact:
Staff is requesting City Council consideration of three distinct items, each with fiscal impacts. The first consideration is a request to consider a supplemental appropriation not to exceed $100,000, in account number 001-452-43890, to extend the Pilot Goat-Grazing Project until March 31, 2026.
The second consideration is a request to confirm the City’s commitment of a 25% match for a Hazard Mitigation Grant Program application, which staff is currently developing. The entire grant amount being sought is $8,550,000, of which the local match of 25% would be up to $2,137,500.
Much of the 25% match is anticipated to be covered through in-kind contributions of labor and services, contributions from private property owners such as HOAs for the aspects of the project occurring on privately-owned open space, volunteer labor, potentially other state and county grant sources, and with additional funds being required from the City's General Fund.
The third consideration is a request to appropriate additional funds for the City’s existing Weed Abatement Program. Currently, $160,000 is provided in the General Fund for the FY 2026 Weed Abatement Program (Program 452). $135,900 of that amount is dedicated for weed abatement services, including abatement of private and public properties, and the remaining $24,100 is for additional areas of Orange County Fire Authority (OCFA)-recommended defensible-space clearance services. Due to the rising costs of vegetation management, the community’s heightened focus on fire safety, and the recent expansion of the City’s designated Fire Hazard Severity Zones, staff is requesting to increase the total cost of the program by $96,060, for a total program cost of $256,060. This results in a total cost of $181,060 for weed abatement services for private and public properties, and $75,000 for additional areas of OCFA-recommended defensible-space clearance services. The breakdown of the total supplemental appropriation of $96,060 that is requested is $45,160 in 001-452-43470 and $50,900 in 001-452-43890.
Summary:
The City is working to strengthen its wildfire preparedness through strategic planning and community engagement. Staff has submitted a $250,000 grant application to develop a Community Wildfire Protection Plan (CWPP). A CWPP will help develop and organize the City’s 1 Attachment 1
Meeting Date: August 19, 2025 Agenda Item: 10E.
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Wildfire Prevention Program by guiding fuel reduction project priorities, support Firewise USA community designations, and enhance access to state and federal funding. Additionally, the City is preparing its application for City-inclusion on CalFIRE’s Fire Risk Reduction Community List (FRRCL) before the October 1, 2025 deadline. FRRCL designation will provide priority consideration for wildfire prevention grants and formally recognize the City’s adoption of key fire safety measures, such as updated Fire Hazard Severity Zone maps, a compliant General Plan Safety Element, and active defensible-space enforcement.
The City is also advancing multiple wildfire prevention and vegetation management initiatives to protect life, property, and infrastructure in its wildland-urban interface areas while the CWPP is developed. Building on its successful 2025 Pilot Goat-Grazing Project, the City has applied for $518,535 from CalFIRE’s Wildfire Prevention Grant Program to expand fuel reduction treatments on 348.36 acres of publicly-owned open space, benefiting more than 2,600 nearby homes and 113 commercial properties. If successful, this grant would fund such work to occur between March 2026 and March 2028. In the shorter-term, City staff seeks City Council’s direction on an option to extend the Pilot Goat-Grazing Project until March 31, 2026 by appropriating $100,000 to extend the Pilot Goat-Grazing Project, and directing staff to initiate a Request for Proposals to identify a contractor to conduct the work. The areas proposed for this project under CalFIRE’s Wildfire Prevention Grant Program is shown in Figure 1, below:
Figure 1
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Concurrently, the City is pursuing an $8,550,000 Hazard Mitigation Grant Program (HMGP) award from the California Office of Emergency Services (CalOES) to implement a long-term Wildfire and Vegetation Management Program across 5,300 acres of open space, incorporating goat grazing, mechanical and hand-work vegetation removal, native-vegetation restoration, and public education and outreach. In order to facilitate the submission of this application, staff requests City Council approval to confirm the 25% required local match in an amount up to $2,137,500. The areas proposed for this project under HMGP is shown in Figure 2, below.
Figure 2
Both projects (funded through CalFIRE’s Wildfire Prevention Grant Program and HMGP) align with the City’s 2024 Local Hazard Mitigation Plan (LHMP) and regional wildfire protection strategies, and, if awarded, will be implemented in collaboration with OCFA and community partners.
Given rising vegetation management costs, expansion of the City’s Fire Hazard Severity Zones, and heightened community expectations for proactive fire prevention, the City’s Weed Abatement Program (WAP) has grown increasingly vital. Following a vendor review, staff determined that E.
Stewart and Associates, Inc. (Stewart) is uniquely qualified to provide the services necessary to 3 Legend
Sub ct Open Space
Development Buffer (150 ft)
- R.Mcl5 lluffM (SO rt)
Meeting Date: August 19, 2025 Agenda Item: 10E.
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meet the City’s operational needs due to their local presence, technical expertise, established agency relationships, and proven track record over 29 years. Staff recommends awarding a contract, for $256,060 to Stewart to continue WAP operations, which includes clearing approximately 86 City-owned parcels and enforcing weed abatement on private properties. This contract will ensure timely and effective fire-risk reduction ahead of peak wildfire conditions while maintaining the City’s high standards for environmental stewardship and public safety.
Background:
Wildfire Prevention Program Activities:
1. Extension of Pilot Goat-Grazing Project
In early 2025, the City of San Clemente launched an innovative pilot goat-grazing project aimed at reducing wildfire risk through sustainable vegetation management. The initiative, which began in February, employs a herd of approximately 20 goats to graze on overgrown brush and invasive plants across 10 acres near Vista Hermosa Sports Park.
The program was spearheaded by a local resident, Mike Kay, a former volunteer firefighter who relocated to San Clemente after losing his home in the 2017 Tubbs Fire in Sonoma County. He provided the animals free of charge and constructed a 100-by-150-foot enclosure on City property to manage their grazing and protect them from predators.
The pilot program was scheduled to run for three months, during which time the animals grazed on a designated City-owned parcel, consuming dry brush and non-native vegetation such as mustard and thistle. Community response has been overwhelmingly positive, with residents expressing enthusiasm for the eco-friendly approach.
To facilitate continuation of this program in the short term (until March 31, 2026), staff is presenting an option for City Council’s consideration that is discussed in more detail later in this report in the “Discussion” Section.
To facilitate continuation of this program in the near term (to occur during fiscal years 2026 through 2028), City staff have submitted a grant application to CalFIRE’s Wildfire Prevention Grant Program to expand the successful Pilot Goat-Grazing Project into a larger-scale hazardous fuels reduction initiative. The project seeks $518,535 in funding to treat 348.36 acres of wildland-urban interface (WUI) open space within the City’s Local Responsibility Areas (LRAs), all located in Very High and High Fire Hazard Severity Zones.
The project builds on the City’s three-month pilot project, which demonstrated the effectiveness of prescribed goat grazing in reducing wildfire risk and controlling invasive plant species. Using lessons learned from the pilot, the proposed program would do the following:
Deploy goat herds strategically to remove dense, fire-prone vegetation (e.g., black mustard, artichoke thistle) and create defensible space adjacent to neighborhoods, commercial areas, and evacuation routes.
Protect 2,665 nearby residences and 113 commercial properties located within ½ mile of treatment areas.
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Restore ecological health by improving soil quality, controlling invasive species, and supporting native vegetation.
Implement a public education campaign to increase wildfire preparedness, promote defensible space, and raise awareness about the benefits of goat grazing. Collaborate with OCFA and regional partners to ensure alignment with broader wildfire mitigation efforts.
The project aligns with the City’s 2024 LHMP, which prioritizes vegetation management and explicitly recommends exploring alternative fuel modification methods such as goat grazing.
The grant would also help the City sustain project benefits by integrating goat grazing into its long-term wildfire mitigation strategy and leveraging future grant opportunities for maintenance and program expansion.
If awarded, the project will be implemented in two annual grazing cycles with monitoring, community outreach, and interagency coordination, including compliance with CEQA and local conservation easements. By reducing hazardous fuels and increasing community engagement, the project will protect lives, property, and critical infrastructure while serving as a scalable model for wildfire resilience in Southern California.
2. Long-Term Wildfire and Vegetation Management Program In June 2025, the City of San Clemente successfully submitted a Notice of Interest for funding through the California Office of Emergency Services (Cal OES) Hazard Mitigation Grant Program (HMGP) to implement a comprehensive Wildfire and Vegetation Management Program. The City is currently working on the full application for this program, which is due September 15, 2025. The application seeks approximately $8,550,000 in total project funding, with a 25% local match, to reduce hazardous vegetation across its 5,300 acres of public and private open space.
The program builds upon the City’s successful Pilot Goat-Grazing Project and expands it into a multi-year effort incorporating:
Strategic goat grazing to manage vegetation in steep or inaccessible terrain. Mechanical and hand-crew vegetation removal to reduce hazardous fuel loads. Native vegetation restoration to create fire-resilient landscapes. Collaboration with HOAs and private property owners to address high-risk privately owned parcels.
Public education and community volunteer programs to strengthen wildfire prevention awareness.
The grant application is supported by the City’s recently adopted Local Hazard Mitigation Plan (LHMP), the Orange County Community Wildfire Protection Plan (CWPP), updated Fire Hazard Severity Zone (FHSZ) maps, and historical fire data documenting significant wildfires such as the Grundy Fire (1976) and Cristianitos Fire (2017).
If awarded, the project will directly mitigate wildfire hazards by lowering fuel loads, creating additional defensible space buffers between development and the wildland-urban interface 5 Meeting Date: August 19, 2025 Agenda Item: 10E.
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(WUI), and reducing ember-driven fire risks in the City’s WUI. This program will protect approximately 17,943 properties identified as at-risk for wildfire damage, while improving ecological conditions and providing a scalable model for regional wildfire mitigation.
The City anticipates using this funding to launch planning, environmental studies, and phased vegetation management work in 2026, with sustained annual treatments to ensure long-term risk reduction.
3. Community Wildfire Protection Plan
A Community Wildfire Protection Plan (CWPP) is a planning and funding prioritization tool created by the Healthy Forests and Restoration Act of 2003 as an incentive for communities to engage in comprehensive forest and fire hazard planning and to help define and prioritize local needs. The plan focuses on protections for existing development, and may address wildfire response, hazard mitigation, community preparedness, and/or structure protection. A local CWPP is one of the most effective ways to influence where and how federal agencies implement fuel reduction projects on federal lands, and how additional federal funds may be distributed for projects on nonfederal lands. CWPP’s are not required by the State or Federal government, but a CWPP development or update process can be leveraged to meet multiple local, tribal, regional, state, and federal priorities and requirements.
The City’s adopted LHMP includes Mitigation Action No. 50, which states that the City will, “Consider developing a Community Wildfire Protection Plan to further reduce wildfire risk and enhance resilience.” In response to the heightened need to address wildfire preparedness and the current availability of grant funding offered through the U.S. Forest Services’ Community Wildfire Defense Fund Grant, City staff developed a grant application to cover the costs of creating a CWPP. The grant application was submitted on March 14, 2025 and provides nomatch funding of up to $250,000 specifically for the creation of a CWPP. If the City is successful in the application process, City staff anticipates initiating this process immediately thereafter with the assistance of consultants contracted though the appropriate Request For Proposals (RFP) process. Should the need arise to acquire other grant funds if the application is not successful, City staff are aware of other opportunities available and would begin the process to apply for those funds.
4. Firewise Communities Program
The Firewise USA program, led by the National Fire Protection Association, offers a structured approach for communities to enhance their wildfire resilience in California. This initiative promotes collaborative efforts among residents, local fire departments, and other key stakeholders to bolster the fire resistance of homes and their surroundings. Integral to California’s wildfire preparedness strategy, the program is supported by CalFIRE’s Community Wildfire Preparedness & Mitigation Division, aiding communities in achieving Firewise designation. Achieving Firewise USA recognition is a collaborative and ongoing process. Each step is designed to empower residents and stakeholders to work together to enhance their local area’s wildfire resilience. The program allows neighborhoods and HOAs, between 8 and 2,500 homes, to apply for this designation.
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The LHMP includes Mitigation Action No. 37, which states: “To assist neighborhoods and HOAs with becoming a Firewise USA community, prepare a City-wide Community Wildfire Risk Assessment utilizing approved Firewise approaches and methodologies. Include action plan templates for neighborhoods to reduce ignition risks, such as community-level actions, educational activities, and suggested homeowner improvements. Promote the Community Wildfire Risk Assessment as a tool for use in applying to become a Firewise USA community.” As part of the CWPP, the City will prepare a City-wide Community Wildfire Risk Assessment, which is an integral step in the City’s effort to assist neighborhoods and HOAs with becoming Firewise USA communities. City staff anticipates implementing Mitigation Action No. 37 subsequent to the completion of the City-wide Community Wildfire Risk Assessment portion of the CWPP. However, individual neighborhoods and HOAs are able to embark on the process to become a recognized Firewise Community beforehand.
5. Fire Risk Reduction Community List (FRRCL)
The City is actively preparing an application to be included on the California FRRCL, a designation administered by CalFIRE that identifies communities demonstrating a strong commitment to wildfire prevention and risk reduction. Communities on the FRRCL receive priority consideration for CalFIRE’s wildfire prevention grants and may benefit from additional support in implementing vegetation management and hazard mitigation projects.
The FRRCL application period for the current application cycle closes on October 1, 2025, with successful applicants formally listed on July 1, 2026 for a two-year designation. To qualify, the City will demonstrate compliance with CalFIRE’s required criteria, which include:
Adoption of Very High Fire Hazard Severity Zone (VHFHSZ) maps; An up-to-date Safety Element in its General Plan;
An LHMP;
A documented process for reviewing development projects in fire-prone areas; Implementation of additional wildfire risk reduction measures such as defensible space enforcement, community education programs, and vegetation management initiatives.
The City is currently compiling evidence of compliance with these criteria, including its recently updated LHMP, ongoing weed abatement and vegetation management programs, and cooperative efforts with OCFA. In addition, the City is preparing supporting documentation such as ordinances, inspection protocols, and public outreach materials that demonstrate its commitment to reducing wildfire hazards.
If approved, the FRRCL designation will strengthen the City’s eligibility for state wildfire mitigation funding and reinforce San Clemente’s proactive leadership in reducing fire risk for its residents and businesses in the wildland-urban interface.
Weed Abatement Program:
Each year, the City Council adopts a resolution pursuant to California Government Code Section 39561, which finds and declares weeds and trash on vacant and unoccupied parcels to be a 7 Meeting Date: August 19, 2025 Agenda Item: 10E.
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seasonal and recurrent fire hazard nuisance. The City’s WAP was established with the intent of reducing the possibility of weed- and debris-fueled fires. Since its adoption, the City has contracted with professional service providers for the administration and implementation of the WAP. The WAP includes the clearing of approximately 86 City-owned, non-developed parcels, reservoirs, well and pumping station sites, as well as any vacant, privately-owned parcels not cleared by their owners prior to a deadline established annually by resolution of the City Council.
The work performed under the WAP’s professional services contract consists of the administration, notification, inspection, and removal of noxious and dangerous weeds and trash located upon the streets, sidewalks, private properties, and parkways within the corporate limits of the City. Additionally, every year, OCFA staff, the Program contractor, and the Community Development Director inspect City property for compliance with the City’s fire safety standards.
During those inspections, OCFA recommends areas in need of additional fire-clearance work.
The average annual cost to the City for the last five years of the entire WAP is $160,169 with the single most expensive year (FY2024) costing $176,842. Costs related to the clearing of noncompliant private properties are passed on to the property owners and are not reflected in these amounts. Due to the rising costs of vegetation management, the community’s heightened focus on fire safety, and the recent expansion of the City’s designated Fire Hazard Severity Zones, staff is recommending awarding and executing a new WAP contract and increasing the annually budgeted amount of the WAP. More information on this request is provided in the “Discussion” Section below.
Discussion:
Wildfire Prevention Program Activities:
1. Near-term Extension of Pilot Goat-Grazing Project
On June 3, 2025, staff presented the City Council with a request to continue and expand the pilot goat-grazing project until December 31, 2025. Attachment 2 provides a copy of the agenda report related to that item. Staff indicated that the cost to extend the program would be $100,000. At that meeting, the City Council directed that this item be continued to a future meeting for further City Council consideration.
While the City is actively applying for grants to provide the funding necessary to provide goatgrazing services in an expanded capacity beyond the initial pilot project, including both the CalFIRE Wildfire Prevention Grant Program and the HMGP discussed above, the City will not know whether its grant applications are successful until early next year and the middle of next year, respectively. Staff seeks the City Council’s direction on whether to appropriate funding at this time to provide goat-grazing services in the near-term while staff await responses on the success of the grant programs currently being developed or already submitted.
For the City Council’s consideration, staff has included a draft Resolution 25-116 (Attachment 1) to allocate up to $100,000 for near-term goat-grazing services. The resolution also extends the timeframe for this project to cover the spring of 2026, should these funds allow for goat grazing to continue past December 31, 2025. Due to the cost of this program, City staff will 8 Meeting Date: August 19, 2025 Agenda Item: 10E.
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need to initiate a Request For Proposals process to establish a contract for goat-grazing services. The contract would be presented for the City Council’s approval at a future meeting if the contract amount exceeds the City Manager’s authorization limit of $75,000.
2. Long-Term Wildfire and Vegetation Management Program As discussed in the “Background” Section above, the HMGP application seeks approximately $8,550,000 in total project funding, with a 25% local match, to reduce hazardous vegetation across its 5,300 acres of public and private open space. The 25% match results in a nonfederal cost share (City commitment) of $2,137,500.00. The City anticipates its matching funds to come mostly from in-kind contributions of labor and services, contributions from private property owners such as HOAs for the aspects of the project occurring on privatelyowned open space, volunteer labor, and potentially other state and county grant sources, if and when applicable. There will likely be some additional funds required from the City's General Fund, but staff is working to tailor this program in a way that over the proposed 4-year HMGP-funded program, the costs do not create a significant burden on the General Fund.
As part of the City’s application for the HMGP, the City will need to confirm its commitment to the 25% match. Staff is requesting the City Council consider proposed Resolution 25-117 (Attachment 3) which provides direction to City staff to submit the HMGP application that includes a 25% match of up to $2,137,500.
3. Weed Abatement Program:
The City’s WAP has become an increasingly critical component of the City’s wildfire prevention strategy due to the rising costs of vegetation management, the community’s heightened focus on fire safety, and the recent expansion of the City’s designated Fire Hazard Severity Zones. These factors, coupled with higher contractor pricing for specialized fuel-reduction work and the growing need for proactive clearance in both City-owned and private parcels, have made it necessary to secure a new contract for WAP services. To ensure the program’s continued effectiveness and cost-efficiency, staff has evaluated available vendors and determined that Stewart, a local vendor, is uniquely qualified to meet the City’s operational requirements.
Pursuant to City Policy 201-2-1, Procurement Policy and Procedure, staff recommends awarding this contract based on two exemptions contained in Section XI, Exemptions To the Formal and Informal Solicitation Process. The first exemption is A.1.2, which reads in pertinent detail “that compliance with the bidding requirements and procedures is inefficient, impractical, or not in the best interest of the City, based on specifically identified conditions and supported by substantial evidence in the record.” The second exemption is A.1.8, which states: “The proposed professional service provider has unique familiarity with the project, subject area, or possesses other attributes that make the provider uniquely qualified to provide the services….” Following a review of potential vendors, staff determined that Stewart is the only qualified provider that meets the City’s operational requirements and is uniquely qualified and, therefore, recommends awarding the contract, under these exemptions, supported by the following findings:
Geographic and Logistical Advantages: Stewart is the only provider headquartered within a 30-minute drive of the City. Their local presence enables rapid deployment, flexible 9 Meeting Date: August 19, 2025 Agenda Item: 10E.
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scheduling, and timely response to urgent fire-risk situations, such as red flag weather events or emergency clearance requests.
Technical Expertise: Stewart has extensive experience with fire fuel reduction techniques, including hand thinning, chipping, and mastication, and is uniquely qualified to perform this work on steep slopes and in environmentally sensitive areas within the City. Their team includes wildland fire specialists, licensed arborists, and professionals with environmental compliance knowledge, ensuring proper habitat protection. Agency Collaboration and Trust: Stewart has an established working relationship with the OCFA and other fire prevention agencies in the region, and regularly coordinates with these agencies to implement fire-clearance recommendations within City limits. Proven Track Record: Stewart has successfully administered the City’s weed abatement program for the past 29 years, consistently demonstrating high performance, cost control, and exemplary customer service. Their familiarity with the City’s processes and requirements significantly reduces the risk of service interruptions or performance deficiencies.
Specialized Equipment: Stewart possesses specialized equipment suited for work in the City’s wildland-urban interface areas, including low-ground impact machinery that minimizes environmental disturbance.
Market Limitations: A review of prior solicitations, RFP responses, and publicly advertised services indicates that Stewart is the only vendor capable of delivering the full scope of services required, including administration of weed abatement for privately-owned parcels in compliance with Government Code Section 39561.
Based on these factors, staff has determined that Stewart has unique familiarity with the project and is the only feasible provider for the WAP. Furthermore, utilizing the City formal bidding procedures for this contract would be inefficient, impractical, and not in the best interest of the City, as it would not result in identifying a consultant better suited for the work required by this contract.
The proposed contract amount of $256,060 (for weed abatement on public and private properties, and OCFA-recommended defensible-space clearance services) represents an increase of $96,060 over the current contract’s maximum fixed cost, due in large part to the rising costs of vegetation management, the community’s heightened focus on fire safety, the recent expansion of the City’s designated Fire Hazard Severity Zones, higher contractor pricing for specialized fuelreduction work, and the growing need for proactive clearance in both City-owned and private parcels. This amount exceeds the currently budgeted total of $156,000. Attachment 4 provides a draft Resolution 25-118 that appropriates an additional $96,060 for the WAP (Program 452), and awards a new contract to Stewart, provided as Exhibit A to that resolution.
Council Options:
Adopt Resolution No. 25-116 to allocate $100,000 to extend the Pilot Goat-Grazing Project until March 31, 2026, adopt Resolution 25-117 to confirm the City’s commitment of the 25% match for the HMGP grant application, and adopt Resolution 25-118 to award a new Weed Abatement Contract to E. Stewart and Associates, Inc., and allocate an additional $96,060 to the WAP budget.
Modify and then adopt Resolutions Nos. 25-116, 25-117, and 25-118. 10 Meeting Date: August 19, 2025 Agenda Item: 10E.
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Continue the item with the direction to staff to provide additional information. Do not approve Resolutions Nos. 25-116, 25-117, and 25-118. This would result in the City not extending the Pilot Goat-Grazing Project, not confirming the City’s commitment of the 25% match for the HMGP grant application, and not approving a new Weed Abatement Contract.
Environmental Review/Analysis:
The extension of the goat-grazing program is categorically exempt from the California Environmental Quality Act (CEQA) under Class 1 § 15301(h) (Existing Facilities), Class 4, § 15304 (Minor Alterations to Land), Class 7, § 15307 (Actions by Regulatory Agencies for Protection of Natural Resources), and Class 8, § 15308 (Actions by Regulatory Agencies for Protection of the Environment) and is statutorily exempt under Public Resources Code §§ 21080(b)(4) (Emergency Projects) and § 21080.42 (SB 131—Fire Prevention Exemption), as the activity consists of fuel-modification work to reduce the risk of wildfires, and invasive and nonnative vegetation, that degrades the natural environment.
The commitment to a 25% local match for the HMGP application is not a “project” pursuant to the California Environmental Quality Act (CEQA), as it has no potential for resulting in either a direct or physical change in the environment or a reasonably foreseeable indirect physical change in the environment. Appropriate CEQA determinations will be made for specific projects to carry out the program contemplated by the HMGP-funded wildfire prevention program, if such application is successful, when considered at a later date.
The execution of a contract for weed abatement and fuel-modification work to reduce wildfire risk is not a “project” pursuant to the California Environmental Quality Act (CEQA), as it has no potential for resulting in either a direct or physical change in the environment or a reasonably foreseeable indirect physical change in the environment. Appropriate CEQA determinations will be made for specific projects to provide wildfire prevention services and abate the nuisance of weeds when considered at a later date.
Recommended Actions:
Staff Recommendation ..recommendation
STAFF RECOMMENDS that the City Council approve Resolutions Nos. 25-116, 25-117, and 25- 118, which will accomplish the following, respectively:
1. Appropriate $100,000, in account number 001-452-43890, to extend the Pilot Goat-Grazing Project until March 31, 2026, direct City staff to initiate a Request for Proposals process to establish a contract for goat grazing services, and determine that the project is statutorily and categorically exempt from the California Environmental Quality Act under various provisions; and
2. Confirm the City’s commitment to the 25% match for the HMGP application of up to $2,137,500 anticipated to be covered by in-kind contributions of labor and services, contributions from private property owners such as HOAs for the aspects of the project occurring on privately-owned open space, volunteer labor, potentially other state and county grant sources, and the City's General Fund; and
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3. Award and authorize the City Manager to execute a Professional Services Agreement by and between the City of San Clemente and E. Stewart and Associates, Inc., in an amount not to exceed Two Hundred Fifty-Six Thousand, Sixty Dollars ($256,060) for the Weed Abatement Program, consisting of weed abatement and related defensible-space clearance services, and appropriate an additional $96,060 to Program 452 – Weed Abatement: $45,160 in 001-452- 43470 and $50,900 in 001-452-43890.
..end
Attachments:
1. Proposed Resolution 25-116 – Appropriating funds to extend the Goat Grazing Pilot Project and finding the project categorically and statutorily exempt from the California Environmental Quality Act
2. City Council Agenda Report on Extension of Goat Grazing Pilot Project, dated June 3, 2025
3. Proposed Resolution 25-117 – Confirming the City’s 25% match for the HMGP Application
4. Proposed Resolution 25-118 – Awarding and Authorizing the City Manager to execute a Weed Abatement Contract to E. Stewart and Associates, Inc., Appropriating an Additional $96,060 to Program 452 – Weed Abatement.
5. Professional Services Agreement with E. Stewart and Associates, Inc.
Notification:
E. Stewart and Associates, Inc.
Orange County Fire Authority
12 Attachment 1
RESOLUTION NO. 25-116
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
SAN CLEMENTE, CALIFORNIA, APPROPRIATING FUNDS
TO EXTEND THE PILOT GOAT-GRAZING PROGRAM FOR
WILDFIRE PREVENTION PURPOSES, DIRECTING STAFF
TO INITIATE A REQUEST FOR PROPOSALS, AND
FINDING THE PROJECT EXEMPT FROM THE
CALIFORNIA ENVIRONMENTAL QUALITY ACT (CEQA)
UNDER SECTION 15301, 15304, 15307, 15308 (14 CCR §
CLASS 1: EXISTING FACILITIES, CLASS 4: MINOR
ALTERATIONS TO LAND, CLASS 7: ACTIONS BY
REGULATORY AGENCIES FOR PROTECTION OF
NATURAL RESOURCES, CLASS 8: ACTIONS BY
REGULATORY AGENCIES FOR PROTECTION OF THE
ENVIRONMENT), AND STATUTORILY EXEMPT UNDER
PUBLIC RESOURCES CODE §§ 21080(b)(4) (EMERGENCY
PROJECTS) AND § 21080.42 (SB 131 - FIRE PREVENTION
EXEMPTION)
WHEREAS, the City Council recognizes the heightened risk of wildfire in the City’s Very High and High Fire Hazard Severity Zones and has adopted a Local Hazard Mitigation Plan prioritizing vegetation management to reduce that risk; and WHEREAS, the City’s 2025 Pilot Goat Grazing Program successfully reduced hazardous fuel loads in targeted wildland-urban interface (WUI) areas, and extending the program to maintain and expand these fire-prevention benefits is in the City’s and the public’s best interest; and
WHEREAS, the extension will provide for goat-grazing services through March 31, 2026, pending the outcome of state and federal wildfire-prevention grant applications; and
WHEREAS, the City Council desires to appropriate up to $100,000 from the General Fund to extend the Pilot Goat-Grazing Program and direct staff to initiate a Request For Proposals for continued grazing services; and WHEREAS, the City Council finds the extension of the goat-grazing program is categorically exempt from the California Environmental Quality Act (CEQA) under Class 1 § 15301(h) (Existing Facilities), Class 4, § 15304 (Minor Alterations to Land), Class 7, § 15307 (Actions by Regulatory Agencies for Protection of Natural Resources), and Class 8, § 15308 (Actions by Regulatory Agencies for Protection of the Environment)and is statutorily exempt under Public Resources Code §§ 21080(b)(4) (Emergency Projects) and § 21080.42 (SB 131—Fire Prevention Exemption), as the activity consists of fuel13 Resolution No. 25-116 Page 2
modification work to reduce the risk of wildfires, and invasive and non-native vegetation that degrades the natural environment.
NOW THEREFORE, the City Council of the City of San Clemente does hereby find, determine, and resolve as follows:
SECTION 1. The above recitals are true and correct and incorporated herein fully by reference as findings.
SECTION 2. Based upon its review of the entire record, including the Staff Report, any public comments or testimony presented to the City Council, and the facts outlined below, the City Council hereby finds and determines that the proposed project is categorically exempt from CEQA pursuant to State CEQA Guidelines Sections 15301(h) (Class 1: Existing ), 15304 (Class 4: Minor Alterations to Land), 15307 (Class 7: Actions by Regulatory Agencies for Protection of Natural Resources), and 15308 (Class 8:
Actions by Regulatory Agencies for Protection of the Environment), and is statutorily exempt under Public Resources Code §§ 21080(b)(4) (Emergency Projects) and § 21080.42 (SB 131—Fire Prevention Exemption).
The Class 1 exemption specifically exempts from further CEQA review the operation, repair, maintenance, and minor repair of existing public or private facilities and topographical features involving negligible or no expansion of use beyond that existing at the time of the lead agency's determination. This exemption covers, but is not limited to, maintenance of existing landscaping, native growth, and water supply reservoirs. The project does not change the existing general use of properties. Thus, the project qualifies for the Class 1 exemption.
The Class 4 exemption specifically exempts from further CEQA review the minor public or private alterations in the condition of land, water, and/or vegetation which do not involve removal of healthy, mature, scenic trees except for forestry and agricultural purposes. This exemption covers, but is not limited to, fuel management activities within 30 feet of structures to reduce the volume of flammable vegetation, provided that the activities will not result in the taking of endangered, rare, or threatened plant or animal species or significant erosion and sedimentation of surface waters. This exemption shall apply to fuel management activities within 100 feet of a structure if the public agency having fire protection responsibility for the area has determined that 100 feet of fuel clearance is required due to extra hazardous fire conditions. Thus, the project qualifies for the Class 4 exemption.
The Class 7 exemption specifically exempts from further CEQA review the actions taken by regulatory agencies as authorized by state law or local ordinance to assure the maintenance, restoration, or enhancement of a natural resource, where the regulatory process involves procedures for protection of the environment. This exemption covers, but is not limited to, agency actions aimed at safeguarding natural resources through regulatory procedures, provided there’s no physical construction involved. Thus, the project qualifies for the Class 7 exemption.
14 Resolution No. 25-116 Page 2
The Class 8 exemption specifically exempts from further CEQA review actions taken by regulatory agencies, as authorized by state or local ordinance, to assure the maintenance, restoration, enhancement, or protection of the environment where the regulatory process involves procedures for protection of the environment. The purpose of the pilot goat-grazing project is to protect the City’s environmental resources by reducing risk of wildfires, and invasive and non-native vegetation that degrades the natural environment. Thus, the project qualifies for the Class 8 exemption.
Furthermore, none of the exceptions to the use of the Class 1, 4, 7, and 8 categorical exemptions identified in State CEQA Guidelines section 15300.2 apply. The project will not result in a cumulative impact from successive projects of the same type in the same place over time. The pilot goat-grazing project consists of regular maintenance activities to reduce the risk of fires in the City. There are no unusual circumstances surrounding the project that result in a reasonable possibility of a significant effect on the environment because the project is limited to the removal of weeds, and invasive and non-native vegetation that degrades the natural environment within the City’s open space areas. The project will not damage scenic resources, including trees, historic buildings, rock outcroppings, or similar resources. The project does not include any hazardous waste sites, and the project will not cause a substantial adverse change in the significance of a historical resource. The project will be carried out on open space-zoned properties with no historical resources affected. And the project has no possibility of a direct or foreseeable indirect significant impact on the environment. Thus, the Class 1, 4, 7, and 8, and 21 exemptions apply.
Additionally, the pilot goat-grazing project is statutorily exempt under Public Resources Code §§ 21080(b)(4) (Emergency Projects) and § 21080.42 (SB 131—Fire Prevention Exemption) in that it consists of specific actions necessary to prevent or mitigate an emergency—namely, the imminent threat of wildfire in areas designated as Very High and High Fire Hazard Severity Zones. The project’s vegetation management activities are directly intended to reduce flammable fuel loads and create defensible space to protect life, property, and critical infrastructure from catastrophic fire events. Under § 21080.42, the work qualifies for the fire prevention exemption because it involves wildfire risk reduction in compliance with applicable environmental protection measures, is located in a wildland-urban interface area, and does not exceed the acreage limitations set forth in the statute. Thus, the project qualifies for both the emergency project and fire prevention statutory exemptions. Thus, no further environmental review is required.
SECTION 3. The City Council hereby approves a supplemental appropriation of up to $100,000 from the General Fund to extend the Pilot Goat-Grazing Program through March 31, 2026.
SECTION 4. The City Council directs the City Manager, or their designee, to initiate a Request For Proposals for goat-grazing services to extend the Pilot GoatGrazing Program through March 31, 2026, and return to Council for contract award if the amount exceeds the City Manager’s authorization limit.
15 Resolution No. 25-116 Page 2
SECTION 5. The City Clerk shall certify to the passage and adoption of this resolution and enter it into the book of original resolutions.
PASSED AND ADOPTED this ___ day of _____________________, ____.
ATTEST:
City Clerk of the City of Steve Knoblock, Mayor of the
San Clemente, California City of Clemente, California
16 Resolution No. 25-X1 Page 3
STATE OF CALIFORNIA )
COUNTY OF ORANGE ) §
CITY OF SAN CLEMENTE )
I, LAURA CAMPAGNOLO, City Clerk of the City of San Clemente, California, do hereby certify that Resolution No. 25-116 was adopted at a regular meeting of the City Council of the City of San Clemente held on the _______ day of _______________________, _________, by the following vote:
AYES:
NOES:
ABSENT:
IN WITNESS WHEREOF, I have hereunto set my hand and affixed the official seal of the City of San Clemente, California, this _____ day of _________________, ________. __________________________
CITY CLERK of the City of
San Clemente, California
Approved as to form:
____________________________
Elizabeth A. Mitchell, City Attorney
17 910 Calle Negocio
2nd Floor
San Clemente, California
www.san-clemente.org
AGENDA REPORT
CITY OF SAN CLEMENTE
CITY COUNCIL MEETING
CITY OF SAN CLEMENTE
Meeting Date: June 3, 2025 Agenda Item: 10C.
Submitted By: City Manager
Prepared By: Andy Hall, City Manager
Subject:
..titl e
CONSIDERATION OF EXTENDING THE GOAT GRAZING NOXIOUS WEED AND FIRE FUEL REDUCTION PILOT PROGRAM UNTIL DECEMBER 31, 2025 ..body
Fiscal Impact:
All costs associated with the initial phase of the pilot program were donated by the owner of the goats, Mr. Mike Kay. The extension and expansion of the program will cost $100,000 for the period of July 1 through December 31, 2025. Funding has not been identified and would need to be appropriated from the General Fund balance.
Summary:
In response to both a significant increase in noxious weeds and potential fire fuel in the open space areas of San Clemente, the City Council authorized a goat grazing pilot program for a specified parcel of City owned property. The initial phase of the program was completed donated by Mike Kay, the owner of the goats. The program included the goats, the construction of a goat enclosure, and grazing of noxious weeds and grasses that can also become fire fuel (and a donkey named Steve). In addition to the grazing, Mr. Kay provided educational and volunteer opportunities. The City provided the property and water for the animals.
Background:
In October of 2024, a goat grazing program was
established to reduce noxious weeds and fire fuels
on open space owned by the City of San Clemente.
The original pilot program concluded in April of 2025
and an assessment of the program was conducted
between the owner of the Goats, Mr. Mike Kay, and
members of staff. The program was successful in
the assigned location for weed and fire fuel removal,
as expected, and the public response was
overwhelmingly positive.
Following discussion with staff, the owner of the
goats, who is also an experienced fire fighter, has
suggested that there remains a lot of work to do on the City owned property and would like to extend and expand the program. Staff is supportive of the proposed expansion, but suggest that the timeframe be limited to December 31, 2025. The proposed timeframe would allow the pilot project to continue while the community fire preparation program is prepared by staff for future consideration by the City Council. It is anticipated that the fire preparation program will include 1 Attachment 2
18 Meeting Date: June 3, 2025 Agenda Item: 10C.
CITY OF SAN CLEMENTE
goat grazing as one of the strategies in reducing the likelihood of fire in the community. The expansion of the pilot project would increase the number of goats from about 20 to about 100 goats and address more than 30 additional acres of City owned open space located south of Vista Hermosa Park and perhaps other areas of City owned open space. In order to extend and expand the project, Mr. Kay is seeking $100,000 in funding that will be used to:
Continue the grazing program until December 31, 2025
Expand the enclosure and add necessary animal care items Conduct environmental review for additional City owned lands for grazing Conduct outreach and education for local homeowner’s associations Provide some funding for general expenses associated with the program (feeding, transportation, etc.)
As the program matures from a pilot program into a more consistent effort, a permanent program could include a comprehensive citywide grazing plan to reduce noxious weeds and reduce fire fuels.
Council Options:
Terminate the pilot project and restore the current site to its previous condition. Expand the pilot project and authorize a supplemental appropriation from General Fund balance to provide funding for the additional efforts.
Provide alternative direction to the City Manager.
Environmental Review/Analysis:
Action to expand the project in and of itself is not defined as a project by the California Environmental Quality Act. However, goat grazing with an expanded foot print will require additional environmental review and may need additional City Council action.
Recommended Actions:
Staff Recommendation ..recommendation
Staff recommends an extension and expansion of the pilot project. To date, the current pilot project has been successful and supported by residents. An additional six months to study the issue and become more familiar with the limitations of the grazing program can ensure the activity is adequately addressed in the preparation of the community fire preparation program. ..end
Attachment:
None.
Notification:
None.
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