Existing law, the California Emergency Services Act, authorizes the Governor to declare a state of emergency, and local officials and local governments to declare a local emergency, when specified conditions of disaster or extreme peril to the safety of persons and property exist, and authorizes the Governor or the appropriate local government to exercise certain powers in response to that emergency. Existing law defines 3 conditions or degrees of emergency for purposes of these provisions.

This bill would additionally include a landslide among those conditions constituting a state of emergency or local emergency.

Existing law, the California Emergency Services Act, authorizes the Governor to declare a state of emergency, and local officials and local governments to declare a local emergency, when specified conditions of disaster or extreme peril to the safety of persons and property exist, and authorizes the Governor or the appropriate local government to exercise certain powers in response to that emergency. Existing law defines 3 conditions or degrees of emergency for purposes of these provisions.

This bill would additionally include a landslide among those conditions constituting a state of emergency or local emergency.

Existing law, the California Emergency Services Act, authorizes the Governor to declare a state of emergency, and local officials and local governments to declare a local emergency, when specified conditions of disaster or extreme peril to the safety of persons and property exist, and authorizes the Governor or the appropriate local government to exercise certain powers in response to that emergency. Existing law defines 3 conditions or degrees of emergency for purposes of these provisions.

This bill would additionally include a landslide and preexisting conditions exacerbated by climate change among those conditions constituting a state of emergency or local emergency.

Existing law, the California Emergency Services Act, authorizes the Governor to declare a state of emergency, and local officials and local governments to declare a local emergency, when specified conditions of disaster or extreme peril to the safety of persons and property exist, and authorizes the Governor or the appropriate local government to exercise certain powers in response to that emergency. Existing law defines 3 conditions or degrees of emergency for purposes of these provisions.

This bill would make nonsubstantive changes to those provisions. additionally include a landslide and preexisting conditions exacerbated by climate change among those conditions constituting a state of emergency or local emergency.

Existing law, the California Emergency Services Act, authorizes the Governor to declare a state of emergency, and local officials and local governments to declare a local emergency, when specified conditions of disaster or extreme peril to the safety of persons and property exist, and authorizes the Governor or the appropriate local government to exercise certain powers in response to that emergency. Existing law defines 3 conditions or degrees of emergency for purposes of these provisions.

This bill would make nonsubstantive changes to those provisions.

GOVERNOR′S VETO

GV Bill Id:AB 986

Author:(Muratsuchi)

As Enrolled Ver:September 16, 2025

2/3 vote

SUMMARY

This bill adds "landslide" to the conditions constituting a state of emergency or a local emergency.

Senate Amendments

Adds a coauthor and makes other non-substantive changes.

Governor′s Veto Message

This bill would add a "landslide" to the conditions under which the Governor may proclaim a State of Emergency and local authorities may proclaim a Local Emergency.

I appreciate the author′s goal to clarify paths to emergency proclamations, but this bill is unnecessary. Under existing law, California′s Emergency Services Act already grants the Governor broad authority to proclaim a State of Emergency in response to "conditions of disaster or extreme peril to the safety of persons and property." In addition to the enumerated list of exemplary events, this language encompasses comparable events such as landslides, mudslides, and related geologic hazards without the need for further statutory amendment.

My administration has exercised and will continue to exercise the authority to respond decisively to landslides and associated hazards; adding "landslide" as a separate enumerated condition in statute would not expand these powers or provide additional tools for communities or first responders. In fact, it could be interpreted to suggest that events not explicitly identified in statute are ineligible for an emergency proclamation, which would unduly limit a Governor′s power to respond to disasters.

COMMENTS

Declaring Emergencies: Among other things, the California Emergency Services Act gives the Governor authority to proclaim a state of emergency in an area affected or likely to be affected when: conditions of disaster or extreme peril exist; the Governor is requested to do so upon request from a designated local government official; or the Governor finds that local authority is inadequate to cope with the emergency. Local governments may also issue local emergency proclamations, which is a prerequisite for requesting the Governor′s Proclamation of a State of Emergency.

Current statute provides multiple examples of conditions that may constitute an emergency, including, but not limited to, earthquakes, fires, and floods. This bill would add landslide to that list. However, neither the Governor, when making a state of emergency declaration, and a city or county, when making a local emergency declaration, are limited to declaring a disaster for only the examples provided in statute. A catch-all statement in Government Code Section 8558 (b) and (c) authorizes state of emergency and local emergency declarations for "other conditions," as specified.

Recent Efforts to Add Conditions Constituting a State of Emergency or Local Emergency: In 2024, Senator Allen ran a substantively similar bill to add "landslide" to the conditions constituting a state of emergency or a local emergency (SB 1461(Allen) of 2024). This bill died on the Assembly inactive file at the end of the 2023-2024 session.

In 2021, Senator Dodd and Assemblymember Levine each ran a bill that would have added a "deenergization event" to conditions that constitute a local emergency (AB 1403 (Levine) of 2021) and state of emergency (SB 52 (Dodd) Chapter 597, Statutes of 2021), respectively. SB 52 (Dodd) was signed by the Governor, while AB 1403 (Levine) was vetoed with the following message: "This legislation is unnecessary, as existing statute provides broad emergency authority when disaster conditions are met." The following year, SB 468 (Dodd, Chapter 537, Statutes of 2022) added "electromagnetic pulse attack" to the list of conditions constituting a state of emergency or a local emergency and was signed by the Governor.

Landslides: The California Geological Survey (CGS) classifies landslides based on the type of material (rock or soil) and the type of movement (falls, topples, spreads, slides, or flows). CGS provides technical input and advice to Cal OES during and after major landslide events and wildfires to anticipate post-fire debris flows. They produce reports for OES and local emergency agencies to help evaluate ongoing hazards and plan recovery efforts. The California Department of Conservation monitors and maps landslides across the state, providing regular updates on their website.

According to the Author

"In recent decades, natural disasters in California have become more frequent and severe, due in part to climate change. On the Palos Verdes Peninsula, land movement that began gradually in the 1950s has accelerated to as much as four inches per week. This increased movement has displaced residents and threatens essential infrastructure, including roads, sewer lines, and utility systems. Despite the serious risks and costs posed by accelerating land movement, current law does not explicitly recognize them as qualifying events for state emergency assistance. AB 986 adds "landslides" to the list of qualifying events to give affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure."

Arguments in Support

According to the City of Rancho Palos Verdes, "AB 986 expands the definition of disasters constituting a state of emergency or a local emergency under the California Emergency Services Act to include landslides... By doing so, the bill gives affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Senate Committee on Appropriations:

1. Unknown potentially significant cost pressures in the event that a state of emergency is called due to a landslide (General Fund, special fund, and federal funds). The actual fiscal impact will depend on, among other things, the severity of the landslide, area(s) impacted, emergency response strategy required, and the duration of the state of emergency proclamation.
2. No additional costs to the Office of Emergency Services (OES).

VOTES

ASM EMERGENCY MANAGEMENT: 6-0-1

YES: Ransom, Hadwick, Arambula, Bains, Bennett, Calderon

ABS, ABST OR NV: DeMaio

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

ASSEMBLY FLOOR: 79-0-0

YES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

SENATE FLOOR: 40-0-0

YES: Allen, Alvarado-Gil, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Choi, Cortese, Dahle, Durazo, Gonzalez, Grayson, Grove, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Niello, Ochoa Bogh, Padilla, Pérez, Reyes, Richardson, Rubio, Seyarto, Smallwood-Cuevas, Stern, Strickland, Umberg, Valladares, Wahab, Weber Pierson, Wiener

ASSEMBLY FLOOR: 80-0-0

YES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Johnson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

UPDATED

VERSION: September 16, 2025

CONSULTANT: Ryan Fleming / E.M. / (916) 319-3802 FN: 0002134

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 986

Author:(Muratsuchi)

As Amended Ver:August 29, 2025

Majority vote

SUMMARY

This bill adds "landslide" to the conditions constituting a state of emergency or a local emergency.

Senate Amendments

Adds a coauthor and makes other non-substantive changes.

COMMENTS

Declaring Emergencies: Among other things, the California Emergency Services Act gives the Governor authority to proclaim a state of emergency in an area affected or likely to be affected when: conditions of disaster or extreme peril exist; the Governor is requested to do so upon request from a designated local government official; or the Governor finds that local authority is inadequate to cope with the emergency. Local governments may also issue local emergency proclamations, which is a prerequisite for requesting the Governor's Proclamation of a State of Emergency.

Current statute provides multiple examples of conditions that may constitute an emergency, including, but not limited to, earthquakes, fires, and floods. This bill would add landslide to that list. However, neither the Governor, when making a state of emergency declaration, and a city or county, when making a local emergency declaration, are limited to declaring a disaster for only the examples provided in statute. A catch-all statement in Government Code Section 8558 (b) and (c) authorizes state of emergency and local emergency declarations for "other conditions," as specified.

Recent Efforts to Add Conditions Constituting a State of Emergency or Local Emergency: In 2024, Senator Allen ran a substantively similar bill to add "landslide" to the conditions constituting a state of emergency or a local emergency (SB 1461). This bill died on the Assembly inactive file at the end of the 2023-2024 session.

In 2021, Senator Dodd and Assemblymember Levine each ran a bill that would have added a "deenergization event" to conditions that constitute a local emergency (AB 1403) and state of emergency (SB 52), respectively. SB 52 (Dodd) was signed by the Governor, while AB 1403 (Levine) was vetoed with the following message: "This legislation is unnecessary, as existing statute provides broad emergency authority when disaster conditions are met." The following year, SB 468 (Dodd, Chapter 537, Statutes of 2022) added "electromagnetic pulse attack" to the list of conditions constituting a state of emergency or a local emergency and was signed by the Governor.

Landslides: The California Geological Survey (CGS) classifies landslides based on the type of material (rock or soil) and the type of movement (falls, topples, spreads, slides, or flows). CGS provides technical input and advice to Cal OES during and after major landslide events and wildfires to anticipate post-fire debris flows. They produce reports for OES and local emergency agencies to help evaluate ongoing hazards and plan recovery efforts. The California Department of Conservation monitors and maps landslides across the state, providing regular updates on their website.

According to the Author

"In recent decades, natural disasters in California have become more frequent and severe, due in part to climate change. On the Palos Verdes Peninsula, land movement that began gradually in the 1950s has accelerated to as much as four inches per week. This increased movement has displaced residents and threatens essential infrastructure, including roads, sewer lines, and utility systems. Despite the serious risks and costs posed by accelerating land movement, current law does not explicitly recognize them as qualifying events for state emergency assistance. AB 986 adds "landslides" to the list of qualifying events to give affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure."

Arguments in Support

According to the City of Rancho Palos Verdes, "AB 986 expands the definition of disasters constituting a state of emergency or a local emergency under the California Emergency Services Act to include landslides... By doing so, the bill gives affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Senate Committee on Appropriations:

1. Unknown potentially significant cost pressures in the event that a state of emergency is called due to a landslide (General Fund, special fund, and federal funds). The actual fiscal impact will depend on, among other things, the severity of the landslide, area(s) impacted, emergency response strategy required, and the duration of the state of emergency proclamation.
2. No additional costs to the Office of Emergency Services (OES).

VOTES:

ASM EMERGENCY MANAGEMENT: 6-0-1

YES: Ransom, Hadwick, Arambula, Bains, Bennett, Calderon

ABS, ABST OR NV: DeMaio

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

ASSEMBLY FLOOR: 79-0-0

YES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

UPDATED

VERSION: August 29, 2025

CONSULTANT: Ryan Fleming / E.M. / (916) 319-3802 FN: 0001603

 THIRD READING  

Bill No: AB 986

Author: Muratsuchi (D), et al.

Amended: 8/29/25 in Senate

Vote: 21

SENATE GOVERNMENTAL ORG. COMMITTEE: 15-0, 7/8/25

AYES: Padilla, Valladares, Archuleta, Ashby, Blakespear, Cervantes, Dahle, Hurtado, Jones, Ochoa Bogh, Richardson, Rubio, Smallwood-Cuevas, Wahab, Weber Pierson

SENATE APPROPRIATIONS COMMITTEE: 7-0, 8/29/25

AYES: Caballero, Seyarto, Cabaldon, Dahle, Grayson, Richardson, Wahab

ASSEMBLY FLOOR: 79-0, 6/3/25 - See last page for vote

SUBJECT: State of emergency and local emergency: landslides and climate change

SOURCE: Author

DIGEST:

This bill adds “landslide” to the conditions constituting a state of emergency or local emergency.

ANALYSIS:

Existing law:

1. Authorizes, pursuant to the California Emergency Services Act (ESA), the Governor to declare a state of emergency, and local officials and governments to declare a local emergency, when specified conditions of disaster or extreme peril to the safety of persons and property exist, as specified.

This bill adds “landslide” to the conditions constituting a state of emergency or local emergency.

Background

Author Statement. According to the author’s office, “in recent decades, natural disasters in California have become more frequent and severe, due in part to climate change. On the Palos Verdes Peninsula, land movement that began gradually in the 1950s has accelerated to as much as a foot per week. This increased movement has displaced residents and threatens essential infrastructure, including roads, sewer lines, and utility systems. Despite the serious risks and costs posed by accelerating land movement, current law does not explicitly recognize them as qualifying events for emergency assistance. AB 986 adds ‘landslides’ to the list of qualifying events to give affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure.”

California Emergency Services Act. The ESA was enacted in 1970, and established the Office of Emergency Services (OES) within the Governor’s Office. Under the ESA, OES is charged with coordinating statewide emergency preparedness; post emergency recovery and mitigation efforts; and the development, review, approval, and integration of emergency plans.

The ESA gives the Governor broad authority to proclaim a state of emergency in an area affected or likely to be affected when: a) conditions of disaster or extreme peril exist; b) the Governor is requested to do so upon request from a designated local government official; or c) the Governor finds that local authority is inadequate to cope with the emergency. Local governments may also issue local emergency proclamations, which is a prerequisite for requesting the Governor’s Proclamation of a State of Emergency.

Specifically, the ESA defines a “state of emergency” as the duly proclaimed existence of conditions of disaster or of extreme peril to the safety of persons and property within the state caused by conditions such as air pollution, fire, flood, storm, epidemic, riot, drought, cyberterrorism, sudden and severe energy shortage, (deenergization event – specifically only for a local emergency), electromagnetic pulse attack, plant or animal infestation or disease, the Governor’s warning of an earthquake or volcanic prediction, or an earthquake, or other conditions, other than conditions resulting from a labor controversy or conditions causing a “state of war emergency,” which, by reason of their magnitude, are or are likely to be beyond the control of the services, personnel, equipment, and facilities of any single county, city and county, or city and require the combined forces of a mutual aid region or regions to combat, or with respect to regulated energy utilities, a sudden and severe energy shortage requires extraordinary measures beyond the authority vested in the Public Utilities Commission.

The ESA grants the Governor certain special powers during a declared state of emergency, which are in addition to any other existing powers otherwise granted. For example, the ESA empowers the Governor to expend any appropriation for support of the ESA in order to carry out its provisions, as well as the authority to make, amend, and rescind orders and regulations necessary to carry out the ESA. The orders and regulations shall have the force and effect of law.

The ESA is generally considered to give a governor broad authority to declare a state of emergency or local emergency beyond the existing list of conditions. Specifically, the ESA states “other conditions, other than conditions resulting from a labor controversy or conditions causing a ‘state of war emergency,’ which, by reason of their magnitude, are or are likely to be beyond the control of the services, personnel, equipment, and facilities of any single county, city and county, or city and require the combined forces of a mutual aid region or regions to combat.”

To that end, Governor Newsom noted in his veto of AB 1403 (Levine, 2021) which would have added a “deenergization event” to the list of conditions constituting a state of emergency that the “legislation is unnecessary, as existing statute provides broad emergency authority when disaster conditions are met.”

There are currently 59 open state of emergency proclamations in California proclaimed by the Governor as of June 18, 2025. Event types for these states of emergency include: 2024 December Storms; Los Angeles County Fires and Windstorm Event; 2024 Bird Flu; wildfire prevention projects; droughts; and tree mortality.

Notably, in September of 2024, Governor Newsom declared a state of emergency in the City of Rancho Palos Verdes due to the impacts of the acute acceleration of land movement on the provision of basic utility services. As part of the proclamation, the Governor ordered:

1. All agencies of the state government utilize and employ state personnel, equipment, and facilities for the performance of any and all activities consistent with the direction of OES and the State Emergency Plan. Also, all residents are to obey the direction of emergency officials with regard to this emergency in order to protect their safety.
2. OES shall provide assistance to local governments, if appropriate, under the authority of the California Disaster Assistance Act, Government Code section 8680 et seq., and California Code of Regulations, Title 19 section 2900 et seq.

‘Till the Landslide Brought Me Down. This bill proposes to add “landslide” to the list of conditions in the ESA noted above that constitute a state of emergency or a local emergency. The California Department of Conservation tracks and maps landslides in California and provides regular updates on their internet website. In the 1970s, the California Geological Survey (CGS) prepared a series of “Geology for Planning” and “Environmental Geological Analysis” reports and maps for local agencies in urban areas. These products were designed to assist local agencies in urbanizing areas. These products were designed to assist local agencies in evaluating hazards and developing policies that consider landslide hazards as residential development spread into landslide-prone terrain.

Following the 1982 El Nino storms in the San Francisco Bay area, the Landslide Hazard Mapping Act mandated new maps to show landslides and landslide hazards. Landslide Hazard Identification Maps were prepared by CGS for use by local government planners from 1986 to 1995. A set of three to four maps was prepared for each map study area, usually encompassing a USGS 7.5-minute topographic quadrangle map. Current active landslide mapping programs at CGS, and their respective products, include: the Forest and Watershed Geology Program; Seismic Hazards Program; Highway Corridor Landslide Hazard Mapping; and technical reports and disaster response.

Portuguese Bend Landslide Complex. The Portuguese Bend Landslide Complex is a longstanding, multifaceted landslide system located on the south flank of the Palos Verdes Peninsula, predominately within the City of Rancho Palos Verdes. Spanning approximately 240 acres, it comprises several interconnected prehistoric and active landslide blocks, collectively forming part of the ancient Altamira Landslide Complex. These deep-seated rock slides typically mobilize along weak bedding planes within the Miocene-era Altamira Shale, a clay-rich layer that softens and lubricates when saturated. After lying dormant for millennia, the area reactivated in 1956, triggered by roadway construction and urban irrigation that elevated groundwater on the slope, displacing homes and prompting costly litigation.

Movement continues today at rates varying seasonally, from inches to feet per year, tracked through modern GPS and optical-satellite technologies. Ongoing remediation efforts, including dewatering wells, drainage control, and road repairs, aim to slow (but cannot stop) this dynamic landscape, which remains one of the most persistently active landslide complexes in the United States.

But Time Makes You Bolder. In recent years, and with varying levels of success, legislators have attempted to expand the conditions constituting a state of emergency or local emergency. For example, SB 468 (Dodd, Chapter 537, Statutes of 2022) added “electromagnetic pulse attack” to the list of conditions constituting a state of emergency or a local emergency. SB 532 (Dodd, Chapter 557, Statues of 2017) added “cyberterrorism.” SB 52 (Dodd, Chapter 597, Statutes of 2021) added “deenergization event” to the list of conditions constituting a local emergency.

Alternatively, Governor Newsom vetoed AB 1403 (Levine, 2021), writing that the “bill would specify that conditions constituting a state of emergency under the ESA may include a deenergization event, defined as a planned power outage. This legislation is unnecessary, as existing statute provides broad emergency authority when disaster conditions are met.”

Additionally, SB 1455 (Hertzburg, 2020) which would have added “electromagnetic pulse attack” to the list of conditions was never referred out of the Senate Rules Committee, and AB 2306 (Donnelly, 2012) which would have added “border security,” failed passage in the Assembly Governmental Organization Committee.

It is important to keep in mind that the conditions listed in the ESA, which this bill seeks to expand, are not exhaustive or intended to be the only conditions that can be used by the Governor to declare a state of emergency or local emergency.

Related/Prior Legislation

SB 1461 (Allen, 2024) would have added “landslide” to the conditions constituting a state of emergency or a local emergency, as specified. (Died on the Assembly Inactive File)

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

According to the Senate Appropriations Committee, unknown potentially significant cost pressures in the event that a state of emergency is called due to a landslide (General Fund, special fund, and federal funds). The actual fiscal impact will depend on, among other things, the severity of the landslide, area(s) impacted, emergency response strategy required, and the duration of the state of emergency proclamation. No additional costs to OES.

SUPPORT: (Verified 8/29/25)

California Association of Realtors

City of Rancho Palos Verdes

City of Rolling Hills Estates

City of Thousand Oaks

County of Los Angeles

Edison International and Affiliates

League of California Cities

Los Angeles County Sanitation Districts

Orange County Transportation Authority

Palos Verdes Peninsula

South Bay Cities Council of Governments

Southern California Edison

OPPOSITION: (Verified 8/29/25)

None received

ARGUMENTS IN SUPPORT: In support of this bill, the City of Rancho Palos Verdes writes that, “[c]limate change induced landslides have posed a severe threat to the City, the Palos Verdes Peninsula, and other regions across California. Rancho Palos Verdes, situated atop one of the largest and most active ancient landslide zones in the nation, has experienced this firsthand. The Portuguese Bend Landslide Complex has seen accelerated movement in recent years due to extreme weather cycles marked by prolonged drought followed by intense rainfall during the 2023-24 Winter Storms. In some parts, land movement had been measured at up to 12 inches per week, undermining the stability of homes, roads, and utilities.”

Further, “[t]his ongoing land movement has caused significant damage to public infrastructure and strained the City’s finances. The ongoing rehabilitation of Palos Verdes Drive South, a major arterial road that serves thousands of residents and visitors on the Peninsula and surrounding cities have cost the City and ratepayers millions of dollars and continue to create traffic hazards. Homeowners in affected areas face structural damage, reduced property values, and the risk of evacuation as the lands continues to shift beneath them.”

And, “[d]espite the increasing frequency and severity of such impacts, current California law does not explicitly classify landslides as disasters eligible for state emergency assistance. This gap prevents cities like Rancho Palos Verdes from accessing state resources and technical support that are urgently needed to respond to and recover from these ongoing events. Without this designation, local governments are left to shoulder the entire financial and logistical burden, which is unsustainable and leaves residents at heightened risk.”

ASSEMBLY FLOOR: 79-0, 6/3/25

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

Prepared by: Brian Duke / G.O. / (916) 651-1530

9/2/25 18:08:47

**** END ****

SENATE COMMITTEE ON

Senator Anna Caballero, Chair

2025 - 2026 Regular Session

AB 986 (Muratsuchi) - State of emergency and local emergency: landslides and climate change

Bill Summary:

AB 986 adds “landslides” to the list of conditions constituting a state of emergency or local emergency.

*********** ANALYSIS ADDENDUM – SUSPENSE FILE ***********

The following information is revised to reflect amendments

adopted by the committee on August 29, 2025

Fiscal Impact:

• Unknown potentially significant cost pressures in the event that a state of emergency is called due to a landslide (General Fund, special fund, and federal funds). The actual fiscal impact will depend on, among other things, the severity of the landslide, area(s) impacted, emergency response strategy required, and the duration of the state of emergency proclamation.
• No additional costs to the Office of Emergency Services (OES).

Author Amendments:

Add Senator Allen as a principal coauthor.

-- END --

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anna Caballero, Chair

2025 - 2026 Regular Session

AB 986 (Muratsuchi) - State of emergency and local emergency: landslides and climate change

Bill Summary:

AB 986 adds “landslides” to the list of conditions constituting a state of emergency or local emergency.

Fiscal Impact:

• Unknown potentially significant cost pressures in the event that a state of emergency is called due to a landslide (General Fund, special fund, and federal funds). The actual fiscal impact will depend on, among other things, the severity of the landslide, area(s) impacted, emergency response strategy required, and the duration of the state of emergency proclamation.
• No additional costs to the Office of Emergency Services (OES)

Background:

Generally, the Emergency Services Act defines a “state of emergency” as the duly proclaimed existence of conditions of disaster or of extreme peril to the safety of persons and property within the state caused by conditions such as air pollution, fire, flood, storm, epidemic, riot, drought, cyberterrorism, sudden and severe energy shortage, electromagnetic pulse attack, plant or animal infestation or disease, the Governor’s warning of an earthquake or volcanic prediction, or an earthquake, or other conditions, other than conditions resulting from a labor controversy or conditions causing a “state of war emergency.”

Proposed Law:

Adds landslides to the list of conditions of disaster or extreme peril that may constitute a state of emergency or local emergency.

Related Legislation:

SB 1461 (Allen, 2024) was substantially similar to this bill and would have added “landslide” to the conditions constituting a state of emergency or a local emergency. SB 1481 died on the Assembly Inactive File.

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 986

Author:(Muratsuchi)

As Amended Ver:May 23, 2025

Majority vote

SUMMARY

This bill adds "landslide" to the conditions constituting a state of emergency or a local emergency.

Major Provisions

adds "landslide" to the conditions constituting a state of emergency or a local emergency.

COMMENTS

Equity: According to the author's office, "Disasters have a disproportionate effect on vulnerable populations and communities. Without disaster assistance, low-income individuals often have a difficult time finding affordable temporary shelter."

Declaring Emergencies: Among other things, the California Emergency Services Act gives the Governor authority to proclaim a state of emergency in an area affected or likely to be affected when: conditions of disaster or extreme peril exist; the Governor is requested to do so upon request from a designated local government official; or the Governor finds that local authority is inadequate to cope with the emergency. Local governments may also issue local emergency proclamations, which is a prerequisite for requesting the Governor's Proclamation of a State of Emergency.

Current statute provides multiple examples of conditions that may constitute an emergency, including, but not limited to, earthquakes, fires, and floods. This bill would add landslide to that list. However, neither the Governor, when making a state of emergency declaration, and a city or county, when making a local emergency declaration, are limited to declaring a disaster for only the examples provided in statute. A catch-all statement in in Government Code Section 8558 (b) and (c) authorizes state of emergency and local emergency declarations for "other conditions," as specified.

Recent Efforts to Add Conditions Constituting a State of Emergency or Local Emergency: In 2024, Senator Allen ran a substantively similar bill to add "landslide" to the conditions constituting a state of emergency or a local emergency (SB 1461). This bill died on the Assembly inactive file at the end of the 2023-2024 session.

In 2021, Senator Dodd and Assemblymember Levine each ran a bill that would have added a "deenergization event" to conditions that constitute a local emergency (AB 1403) and state of emergency (SB 52), respectively. SB 52 (Dodd) was signed by the Governor, while AB 1403 (Levine) was vetoed with the following message: "This legislation is unnecessary, as existing statute provides broad emergency authority when disaster conditions are met." The following year, SB 468 (Dodd, Chapter 537, Statutes of 2022) added "electromagnetic pulse attack" to the list of conditions constituting a state of emergency or a local emergency and was signed by the Governor.

Landslides: The California Geological Survey (CGS) classifies landslides based on the type of material (rock or soil) and the type of movement (falls, topples, spreads, slides, or flows). CGS provides technical input and advice to Cal OES during and after major landslide events and wildfires to anticipate post-fire debris flows. They produce reports for OES and local emergency agencies to help evaluate ongoing hazards and plan recovery efforts. The California Department of Conservation monitors and maps landslides across the state, providing regular updates on their website.

According to the Author

"In recent decades, natural disasters in California have become more frequent and severe, due in part to climate change. On the Palos Verdes Peninsula, land movement that began gradually in the 1950s has accelerated to as much as four inches per week. This increased movement has displaced residents and threatens essential infrastructure, including roads, sewer lines, and utility systems. Despite the serious risks and costs posed by accelerating land movement, current law does not explicitly recognize them as qualifying events for state emergency assistance. AB 986 adds "landslides" to the list of qualifying events to give affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure.

Arguments in Support

According to the City of Rancho Palos Verdes, "AB 986 expands the definition of disasters constituting a state of emergency or a local emergency under the California Emergency Services Act to include landslides... By doing so, the bill gives affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Assembly Committee on Appropriations, "General Fund (GF) and special fund cost pressures of an unknown, but potentially significant amount, across all state agencies to execute directives if the Governor declares a state of emergency due to a landslide. The magnitude of cost pressures depends on the severity of the landslide, area impacted, and the length of the state of emergency proclamation."

VOTES

ASM EMERGENCY MANAGEMENT: 6-0-1

YES: Ransom, Hadwick, Arambula, Bains, Bennett, Calderon

ABS, ABST OR NV: DeMaio

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

UPDATED

VERSION: May 23, 2025

CONSULTANT: Ryan Fleming / E.M. / (916) 319-3802 FN: 0000912

Date of Hearing: May 21, 2025

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 986

Author:(Muratsuchi) – As Amended Ver:March 24, 2025

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill adds a “landslide” and “preexisting conditions exacerbated by climate change” to the list of conditions for which a state of emergency or local emergency may be proclaimed.

FISCAL EFFECT:

1. Ongoing costs of at least $2 million to the Office of Emergency Services (OES) for approximately 10 to 15 new permanent staff positions across multiple divisions to meet increased workload, as the expanded definition of an “emergency” under this bill would likely increase the volume and complexity of state and local emergency proclamations, requests for information, and disaster assistance processing (General Fund (GF)). OES’s anticipated staffing needs include more emergency services coordinators, disaster assistance specialists, legal staff, and engineers to undertake additional internal and external coordination, legal review, and grant administration.
2. Cost pressures of an unknown amount, potentially in the hundreds of millions to billions of dollars, in additional financial liability across all state agencies, to the extent this bill includes events as a state or local emergency that may not qualify under Federal Emergency Management Agency criteria, effectively shifting more emergency response and recovery costs to the state (federal funds, GF, special fund). OES notes that the amount is difficult to project, given the uncertainty around future disaster activity, and that broadening the definition of an emergency may also increase administrative burdens on existing response and recovery programs, requiring future investments in finance, audit, and closeout functions to ensure compliance and accountability.

COMMENTS:

1. Purpose. According to the author:

On the Palos Verdes Peninsula, land movement that began gradually in the 1950s has accelerated to as much as four inches per week. This increased movement has displaced residents and threatens essential infrastructure, including roads, sewer lines, and utility systems. Despite the serious risks and costs posed by accelerating land movement, current law does not explicitly recognized them as qualifying events for state emergency assistance.

This bill is supported by the City of Rancho Palos Verdes and other local government entities.

1. Emergency Services Act (ESA). The ESA gives the Governor authority to proclaim a state of emergency in an area affected, or likely to be affected, when: (a) conditions of disaster or extreme peril exist, (b) the Governor is requested to do so by a designated local government official, or (c) the Governor finds that local authority is inadequate to cope with the emergency. A local government may also issue a local emergency proclamation, which is a prerequisite for a state proclamation. Examples of conditions of disaster or extreme peril include air pollution, fire, flood, storm, epidemic, riot, drought, cyberterrorism, sudden and severe energy shortage, plant or animal infestation or disease, or an earthquake, amongst others. This bill adds a “landslide” and “preexisting conditions exacerbated by climate change” to that list.
2. Prior Legislation. SB 1461 (Allen), of the 2023-24 Legislative Session, was similar to this bill, except SB 1461 pertained only to landslides. SB 1461 was ordered to the Assembly Inactive File.

AB 1786 (Rodriguez), of the 2023-24 Legislative Session, among other provisions, would have added climate change and a climate change exacerbated condition to the conditions of disaster or extreme peril under the ESA. AB 1786 was held on this committee’s suspense file.

SB 468 (Dodd), Chapter 537, Statutes of 2022, added an electromagnetic pulse attack to the conditions of disaster or extreme peril under the ESA.

Analysis Prepared by: Irene Ho / APPR. / (916) 319-2081

Date of Hearing: April 28, 2025

ASSEMBLY COMMITTEE ON EMERGENCY MANAGEMENT

Rhodesia Ransom, Chair

ABPCA Bill Id:AB 986 (

Author:Muratsuchi) – As Amended Ver:March 24, 2025

SUBJECT: State of emergency and local emergency: landslides and climate change

SUMMARY: This bill adds “landslide” and “preexisting conditions exacerbated by climate change” to the conditions constituting a state of emergency or a local emergency.

EXISTING LAW:

1. Under the California Emergency Services Act, establishes the California Office of Emergency Services (Cal OES) within the office of the Governor for the purpose of mitigating the effects of natural, manmade, or war-caused emergencies. (Government Code § 8550)
2. Authorizes the Governor to proclaim a state of emergency, when specified disaster conditions are met (Government Code § 8625 and 8558)
3. Authorizes local officials and local governments to proclaim a local emergency, when specified disaster conditions are met (Government Code § 8630)
4. Grants the Governor or local government who have proclaimed an emergency to exercise certain powers in response to that emergency (Government Code § 8571)
5. Under the California Emergency Services Act, defines a state of emergency to mean the duly proclaimed existence of conditions of disaster or of extreme peril to the safety of persons and property within the state caused by conditions such as, among others, air pollution, fire, flood, and storm. (Government Code § 8558)
6. Under the California Emergency Services Act, defines a local emergency to mean the duly proclaimed existence of conditions of disaster or of extreme peril to the safety of persons and property within the territorial limits of a county, city and county, or city, caused by conditions such as, among others, air pollution, fire, flood, and storm. (Government Code § 8558)

FISCAL EFFECT: Unknown. A fiscal committee has not heard this bill.

COMMENTS:

Purpose of the Bill: According to the author, “In recent decades, natural disasters in California have become more frequent and severe, due in part to climate change. On the Palos Verdes Peninsula, land movement that began gradually in the 1950s has accelerated to as much as four inches per week. This increased movement has displaced residents and threatens essential infrastructure, including roads, sewer lines, and utility systems. Despite the serious risks and costs posed by accelerating land movement, current law does not explicitly recognize them as qualifying events for state emergency assistance. AB 986 adds “landslides” and “conditions exacerbated by climate change” to the list of qualifying events to give affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure.”

Equity: According to the author’s office, “Disasters have a disproportionate effect on vulnerable populations and communities. Without disaster assistance, low-income individuals often have a difficult time finding affordable temporary shelter.”

California Emergency Services Act: The California Emergency Services Act (ESA) was enacted in 1970, and established Cal OES within the Governor’s Office. The ESA gives the Governor authority to proclaim a state of emergency in an area affected or likely to be affected when: conditions of disaster or extreme peril exist; the Governor is requested to do so upon request from a designated local government official; or the Governor finds that local authority is inadequate to cope with the emergency. Local governments may also issue local emergency proclamations, which is a prerequisite for requesting the Governor’s Proclamation of a State of Emergency.

Current statute provides multiple examples of conditions that may constitute an emergency, including, but not limited to, earthquakes, fires, and floods. This bill would add landslide to that list. However, neither the Governor, when making a state of emergency declaration, and a city or county, when making a local emergency declaration, are limited to declaring a disaster for only the examples provided in statute. A catch-all statement in in Government Code § 8558 (b) and (c) authorizes state of emergency and local emergency declarations for “other conditions,” as specified.

For example, while landslides are not currently listed as an example, the Governor declared a state of emergency for the City of Rancho Palos Verdes “due to the impacts of the acute

acceleration of land movement on the provision of basic utility services” on September 3, 2024 that remains active at the time this analysis was published.

Emergency Preparedness and Response: Cal OES is responsible for addressing natural, technological, or manmade disasters and emergencies, and preparing the State to prevent, respond to, quickly recover from, and mitigate the effects of both intentional and natural disasters. As part of their overall preparedness mission, Cal OES is required to develop a State Emergency Plan (SEP), State Hazard Mitigation Plan (SHMP), and maintains Standardized Emergency Management System (SEMS) and the Emergency Management Mutual Aid System (EMMA). Cal OES, in coordination with FEMA and local partners, has developed four Catastrophic Plans to augment the State Emergency Plan.

California is a Disaster Prone State: Since 2018, 28 major federal disasters have been proclaimed in the State of California due to wildfires, floods, earthquakes, a hurricane, a tropical storm and a pandemic. These major disasters have taken a heavy toll on lives, homes, communities, and public infrastructure throughout the state. In the past three years alone, severe winter storms have caused more than a billion dollars in damages and the catastrophic fires in Los Angeles caused an estimated $250 billion in damage and economic loss. These disasters came on the heels of the Covid-19 pandemic and unprecedented wildfires that lead to the deadliest wildfire in California’s history. The impacts of these disasters cannot be understated, many lives were lost, thousands of homes were destroyed, and residents, in some cases entire communities, have been forced to relocate. Billions of dollars in damage was caused to homes, businesses, and infrastructure throughout the state. Many communities are now feeling the cumulative impact of several years of disasters and are still engaged in comprehensive, long-term recovery planning.

Recent Efforts to Add Conditions Constituting a State of Emergency or Local Emergency: In 2024, Senator Allen ran a substantively similar bill to add “landslide” to the conditions constituting a state of emergency or a local emergency (SB 1461). This bill died on the Assembly inactive file at the end of the 2023-2024 session.

In 2021, Senator Dodd and Assemblymember Levine each ran a bill that would have added a “deenergization event” to conditions that constitute a local emergency (AB 1403) and state of emergency (SB 52), respectively. SB 52 (Dodd) was signed by the Governor, while AB 1403 (Levine) was vetoed with the following message: “This legislation is unnecessary, as existing statute provides broad emergency authority when disaster conditions are met.” The following year, SB 468 (Dodd, Chapter 537, Statutes of 2022) added “electromagnetic pulse attack” to the list of conditions constituting a state of emergency or a local emergency and was signed by the Governor.

Role of Conditions Listed in the Emergency Service’s Act: The conditions that constitute a local or state of emergency are intended as frameworks and examples. They are not intended to be the only conditions that the Governor or local governments can use to declare an emergency. The To cover all other emergencies, the Act specifically includes “other conditions, other than conditions resulting from a labor controversy or conditions causing a ‘state of war emergency,’ which, by reason of their magnitude, are or are likely to be beyond the control of the services, personnel, equipment, and facilities of any single county, city and county, or city and require the combined forces of a mutual aid region or regions to combat.”

Landslides: The California Geological Survey (CGS) classifies landslides based on the type of material (rock or soil) and the type of movement (falls, topples, spreads, slides, or flows).

• Rock: Hard or firm bedrock that was intact before the landslide.
• Soil: Unconsolidated particles or poorly cemented rock.

Landslide movements are interpreted from the geomorphic features of the landslide deposit and source area:

Falls: This type occurs when masses of rock or soil detach from a steep slope and descend rapidly. This includes rocks breaking off a cliff and falling.

Topples: This involves the forward rotation and fall of a mass of material, similar to how a tall structure might tilt and fall over.

Lateral Spreads: Typically triggered by earthquakes, these involve the horizontal movement of the ground, often due to liquefaction, where the ground behaves like a fluid.

Slides: These are characterized by the movement of material along one or more defined surfaces:

• Rotational Sliding: The sliding surface is curved, causing the displaced material to rotate backwards around an axis parallel to the slope, akin to scooping with a spoon.
• Translational Sliding: Here, the sliding surface is more or less flat, and the material moves parallel to the ground, similar to pushing a book across a table.

Flows: This type of movement involves materials, often saturated with water, flowing downslope like a viscous fluid. An example is a mudslide, where wet soil and debris flow down similarly to a thick liquid.

Landslide Mapping and Monitoring: The California Department of Conservation monitors and maps landslides across the state, providing regular updates on their website. In the 1970s, the CGS created "Geology for Planning" and "Environmental Geological Analysis" reports and maps for urban areas to help local agencies understand and manage landslide hazards as residential areas expanded into landslide-prone regions.

After the 1982 El Nino storms in the San Francisco Bay area, the Landslide Hazard Mapping Act required new maps showing landslide risks. From 1986 to 1995, CGS produced Landslide Hazard Identification Maps for local government planners. Each study area typically included a set of three to four maps based on a USGS 7.5-minute topographic quadrangle map. Current active landslide programs at CGS include the Forest and Watershed Geology Program, the Seismic Hazards Program, and the Highway Corridor Landslide Hazard Mapping as well as any technical reports and disaster response efforts.

CGS provides technical input and advice to Cal OES during and after major landslide events and wildfires to anticipate post-fire debris flows. They produce reports for OES and local emergency agencies to help evaluate ongoing hazards and plan recovery efforts.

Climate Change: Unfortunately, it is becoming easier to anticipate warmer-than-average conditions due to climate change.  The heat contributes to a thirstier atmosphere, plants, and soils, which increases demand and reduces runoff that flows into reservoirs. Record-breaking heat waves, a vanishing Sierra snowpack, and life-threatening historic wildfires demonstrate that California's climate emergencies are growing with frequency and intensity.

Arguments in Support: According to the City of Rancho Palos Verdes, “AB 986 expands the definition of disasters constituting a state of emergency or a local emergency under the California Emergency Services Act to include landslides and conditions exacerbated by climate change. By doing so, the bill gives affected communities a clearer path to declare emergencies and take action to protect public safety and infrastructure.”

Prior Legislation:

SB 1461 (Allen, 2024) would have added “landslide” to the conditions constituting a state of emergency or a local emergency, as specified. (Died on Assembly inactive file.)

AB 1786 (Rodriguez, 2024) among other things, would have added “climate change” and “climate change exacerbated conditions” to the list of conditions for which a state of emergency or local emergency may be proclaimed. (Held in the Assembly Committee on Appropriations)

SB 468 (Dodd, Chapter 537, Statutes of 2022) added “electromagnetic pulse attack” to the list of conditions constituting a state of emergency or local emergency.

SB 52 (Dodd, Chapter 597, Statutes of 2021) added a “deenergization event” to the list of those conditions constituting a local emergency, with prescribed limitations.

AB 1403 (Levine, 2021) would have added “deenergization event” to the list of conditions constituting a state of emergency and local emergency, as specified. (Vetoed by Governor Newsom)

REGISTERED SUPPORT / OPPOSITION:

Support

City of Rancho Palos Verdes (Sponsor)

League of California Cities

Los Angeles County Sanitation Districts

Opposition

None on file.

Analysis Prepared by: Ryan Fleming / E.M. / (916) 319-3802