HomeMy WebLinkAbout2012-09-05; Planning Commission; ; MP 12-01|LCPA 95-10C – VILLAGE MINIMUM DENSITIES
The City of Carlsbad Planning Division
A REPORT TO THE PLANNING COMMISSION
Item No.
Application complete date: N/A
P.C. AGENDA OF: September 5, 2012 Project Planner: Scott Donnell
Project Engineer: N/A
SUBJECT: MP 12-01/LCPA 95-10(C) – VILLAGE MINIMUM DENSITIES – A request
to recommend (1) approval of an amendment to the Village Master Plan and
Design Manual to implement part of Program 2.1 of the 2005-2010 Housing
Element, and (2) that the amendment is within the scope of the Mitigated
Negative Declaration previously adopted for the 2005-2010 Housing Element.
I. RECOMMENDATION
That the Planning Commission ADOPT Planning Commission Resolution No. 6905
RECOMMENDING that MP 12-01/LCPA 95-10(C) is within the scope of the Mitigated
Negative Declaration previously adopted for the 2005-2010 Housing Element (GPA 03-02) and
RECOMMENDING APPROVAL of MP 12-01/LCPA 95-10(C) based on the findings
contained therein.
II. INTRODUCTION
The city proposes to implement the part of Program 2.1 of the existing adopted Housing Element
regarding the Village Master Plan and Design Manual. The proposed amendment would raise
minimum residential densities and encourage lot consolidation. The amendment is needed to
help the city meet its Regional Housing Needs Assessment (RHNA) for the current 2005-2012
housing cycle by facilitating residential development. RHNA is an estimate of housing needed to
accommodate growth projected by income distribution, which is determined for four income
categories: very low, low (together, “lower”) moderate, and above moderate.
While the city does not have to construct housing to meet its RHNA need, it must provide
opportunities to enable this housing to be built. Those opportunities include designating land or
areas of the city at densities the state considers appropriate for different income groups. Higher
densities, for example, can contribute to home affordability. Implementation of Program 2.1
would raise the minimum densities in all Village land use districts; the proposed minimums
could facilitate the construction of housing affordable to persons of lower incomes.
In addition, recognizing that the predominance of small lots in the Village Area may be an
obstacle to development, Program 2.1 implementation would also be achieved by the proposed
addition of a statement supporting lot consolidation.
Attached is a map of the Village Review Area, its nine land use districts, and the boundary of the
Coastal Zone.
1
"" \...
I I
0
MP 12-01/LCPA 95-10(C) – VILLAGE MINIMUM DENSITIES
September 5, 2012
PAGE 2
Adopted by the city in 2009, the current Housing Element was certified by the state in March
2010. The Housing Element addresses Carlsbad housing needs through the end of this year. An
updated Housing Element for the 2013 – 2020 housing cycle will be proposed for adoption as
part of the General Plan update in early 2013.
III. PROJECT DESCRIPTION AND BACKGROUND
The project would implement two of three actions Program 2.1 identifies the city is to take
regarding the Village Area:
1. Raise minimum densities
2. Encourage lot consolidation
The third action, to permit standards modifications to ensure projects can meet the minimum
densities, was accomplished by a previous amendment.
Regarding raising minimum densities, Program 2.1 states the following:
The City shall process amendments to the Village Redevelopment Master Plan
and Design Manual and/or other planning documents as necessary to establish, for
residential projects and mixed use projects with residential components within the
Village Redevelopment Area, minimum densities equal to 80% of the maximum
of the density range. For land use districts 1 - 4 (density range of 15 - 35 units per
acre), as specified in the Carlsbad Village Redevelopment Master Plan and
Design Manual, 80% shall be 28 units per acre. For land use districts 5 - 9
(density range of 15 - 23 units per acre), 80% shall be 18 units per acre.
The proposed new minimum densities would be within the existing density range and would not
change existing maximum densities, as the table below shows.
Village Land
Use Districts
Minimum Density (du/ac)* Maximum Density (du/ac)
Existing Proposed Existing Proposed
1-4 15 28 35 No change
5-9 15 18 23 No change
*du/ac = dwelling units/acre
Generally, Land Use Districts 5-9 have a lower proposed minimum density and a lower existing
maximum density as they are more residentially focused, tend to transition to single-family home
neighborhoods, and are outside the core of the Village Area where commercial use is
emphasized. The commercial core extends between Carlsbad Boulevard and Interstate 5 and
generally along Grand Avenue and Carlsbad Village Drive.
Program 2.1 also calls for the city to encourage the merging of small parcels. Based on research
performed for the adopted Housing Element, the average parcel size in the Village Area is 0.40
acre. Accordingly, Program 2.1 states:
MP 12-01/LCPA 95-10(C) – VILLAGE MINIMUM DENSITIES
September 5, 2012
PAGE 3
The City will encourage the consolidation of small parcels in order to facilitate
larger-scale developments. Specifically, the City will make available an
inventory of vacant and underutilized properties to interested developers, market
infill and redevelopment opportunities throughout the City, particularly in the
Village Redevelopment Area and proposed Barrio Area, and meet with
developers to identify and discuss potential project sites.
To fulfill this part of Program 2.1, the city has already completed the inventory described, and
that inventory and an accompanying map may be found in the adopted Housing Element
Appendix F. Further, the city’s Housing and Neighborhood Services Department maintains a
monthly "Real Estate Hot Sheet" that lists properties that are available for lease and for sale
within the Village Area. (Please note that provisions to encourage lot consolidation in the Barrio
Area are subject to separate approval and are not discussed here.) Finally, the proposed
amendment would add a statement that the city encourages consolidation within the Village Area
and offer its assistance in identifying potential properties to merge. The basis for this assistance
would be the information found in Appendix F.
All proposed changes, whether to raise minimum densities or encourage the merging of
properties, are contained in the “Universal Standards” section, Development Standards chapter,
of the Village Master Plan and Design Manual. The changes proposed are shown on the
underline and strikeout exhibit to the attached Planning Commission resolution. The addition of
a statement encouraging lot consolidation would follow the “Residential Density” provisions
proposed for amendment.
IV. ANALYSIS
A. General Plan
The General Plan contains a framework of land use and housing goals, objectives, policies and
programs. Table A below summarizes how the proposed amendment complies with relevant
parts of this policy framework.
TABLE A – SUMMARY OF PROPOSED AMENDMENTS
ELEMENT STANDARD PROJECT COMPLY?
Land Use
(Residential
Goal A.1)
A City which provides for a
variety of housing types and
density ranges to meet the
diverse economic and social
requirements of residents, yet
still ensure a cohesive urban
form with careful regard for
compatibility while retaining
the present predominance of
single family residences.
Proposed minimum densities of
18 and 28 du/ac are appropriate
for the Village Area, which
features a mix of uses,
including high density housing
and commercial services, in an
urban setting served by transit.
Proposed densities promote
housing affordable to lower
income households.
Yes
MP 12-01/LCPA 95-10(C) – VILLAGE MINIMUM DENSITIES
September 5, 2012
PAGE 4
TABLE A – SUMMARY OF PROPOSED AMENDMENTS CONTINUED
ELEMENT STANDARD PROJECT COMPLY?
Land Use
(Residential
Goal A.1)
A City which provides for a
variety of housing types and
density ranges to meet the
diverse economic and social
requirements of residents, yet
still ensure a cohesive urban
form with careful regard for
compatibility while retaining
the present predominance of
single family residences.
Proposed minimum densities of
18 and 28 du/ac are appropriate
for the Village Area, which
features a mix of uses, including
high density housing and
commercial services, in an urban
setting served by transit.
Proposed densities promote
housing affordable to lower
income households.
Yes
Land Use
(Village Goal
A.4)
A City that encourages a
variety of complimentary uses
such as a combination of
residential and commercial
uses to generate pedestrian
activity and create a lively,
interesting social environment
and a profitable business
setting.
The proposal does not change
the uses permitted or
provisionally permitted in the
Village. The higher minimum
densities proposed may yield
increased pedestrian traffic and
demand for commercial services.
Yes
Land Use
(Village
Policy/Action
Program C.4)
Promote inclusion of housing
opportunities in the Village as
part of a mixed-use concept.
The proposal does not conflict
with the policy to encourage
mixed- use developments. As
described in Housing Element
Section 3, several Village Area
mixed-use projects recently
approved or built have densities
(15 to 23 du/ac) similar to the
proposed minimum densities.
Yes
Housing
(Goal 3)
Sufficient new, affordable
housing opportunities in all
quadrants of the city to meet
the needs of current lower and
moderate income households
and those with special needs,
and a fair share proportion of
future lower and moderate
income households.
The Housing Element and state
Housing and Community
Development Department
identify the proposed densities as
appropriate for helping to meet
housing needs for lower income
households.
Yes
B. Village Master Plan and Design Manual
Master Plan and Design Manual Amendment
Table B below summarizes how the proposed amendment complies with relevant goals and
objectives of the Village Master Plan and Design Manual.
MP 12-01/LCPA 95-10(C) – VILLAGE MINIMUM DENSITIES
September 5, 2012
PAGE 5
TABLE B – SUMMARY OF PROPOSED AMENDMENTS
GOAL OBJECTIVE PROJECT COMPLY?
Establish Carlsbad
Village as a quality
shopping, working,
and living
environment. (Goal 1)
Increase the number,
quality, diversity and
affordability of housing
units within the Village.
(Objective 1.8)
Proposed minimum densities of
18 and 28 du/ac promote
housing affordable to lower and
moderate income households.
Yes
Stimulate property
improvements and
new developments in
the Village. (Goal 3)
Establish and modify
development standards
as necessary and
appropriate which
recognize the unique
small lot conditions
within the Village.
(Objective 3.1)
Consistent with this objective,
the Master Plan and Design
Manual already permits
standards modifications as
necessary to, among other
things, meet minimum
densities. Recommended
amendment wording to
encourage lot consolidation
recognizes these small lot
conditions.
Yes
Increase the intensity of
development within the
Village. (Objective 3.3)
The project would permit
higher minimum densities.
Yes
Provide greater certainty
as to acceptable land
uses and development
intensities. (Objective
3.5)
The amendment helps meet this
policy by providing more
specific density ranges (that
vary among districts) and
encouraging property mergers.
Yes
Local Coastal Program Amendment
The Local Coastal Program policies, which implement on a local level the state Coastal Act,
emphasize topics such as preservation of agricultural lands and scenic resources, protection of
environmentally sensitive resources, provision of shoreline access, and prevention of geologic
instability and erosion. Because of the Village Area’s urban nature and location away from the
coast line, many of these subjects do not apply.
The Village Master Plan and Design Manual serves as the Local Coastal Program in the Village
area. Although the amendment would revise minimum densities within existing density ranges
and encourage lot consolidation, it would otherwise not change land use or development
standards and would be consistent with Coastal Act requirements. Additionally, the amendment
would not conflict with any coastal zone regulation, land use designation or policy with which
development must comply.
Furthermore, the proposed amendment would not exempt development from a Coastal
Development Permit that is not otherwise exempt. A Coastal Development Permit will still be
required for applicable development and discretionary review would ensure that the proposed
development is consistent with the policies of the Local Coastal Program. By processing this
MP 12-01/LCPA 95-10(C) – VILLAGE MINIMUM DENSITIES
September 5, 2012
PAGE 6
Local Coastal Program Amendment, consistency between the Village Master Plan and Design
Manual and Local Coastal Program would be maintained.
C. Airport Land Use Compatibility Plan
The Village Review Area is outside the Airport Influence Area of the McClellan-Palomar
Airport Land Use Compatibility Plan. Therefore, a consistency analysis is unnecessary.
D. Growth Management
As with all development in Carlsbad, housing constructed in the Village Area would need to
comply with Growth Management standards. In 2007, the City Council approved the current
density ranges for the Village Area (15-23 du/ac for Land Use Districts 1-4 and 15-35 du/ac for
Land Use Districts 5-9). Previously, the maximum permitted density in the Village Area was 23
du/ac. The 2007 approval was based on analysis that the 937 additional units that could result
from new and higher density ranges would remain consistent with growth projections and that no
significant improvements would be required to public infrastructure. (This analysis considered a
maximum density of 45 du/ac in Land Use Districts 5-9; the 2007 approval reduced this to the
present maximum of 35 du/ac.)
To determine the dwelling unit yield that would result from projects constructed at the proposed
minimum densities of 18 and 28 du/ac, staff conducted an intensive study of all Village Area
parcels. The results of this analysis, contained in Appendix F of the adopted Housing Element,
determined that 875 units could result if projects were constructed at the proposed density
minimums, a yield below that considered in the 2007 approval.
Unlike residentially-designated properties elsewhere, properties within the Village Area do not
have a residential designation assigned to them for Growth Management Program compliance
purposes. This means Village Area properties have no unit allocation and no Growth
Management Control Point. Therefore, approval of residences in the Village Area always
requires a withdrawal of units from the Excess Dwelling Unit Bank.
The Excess Dwelling Unit Bank receives allocations of units from projects city-wide that are
approved at densities below their Growth Management Control Point or that convert from a
residential to non-residential land use designation. Over time, these units accumulate and become
available for use by other projects. Other projects that may need allocations, for example, include
a residential development in the Village Area or a project proposing a density above the Growth
Management Control Point. The allocation of all units from the bank is regulated by City
Council Policy 43.
As of May 31, 2012, the Excess Dwelling Unit Bank had a balance of 3,003 units. These units
are available to residential development throughout Carlsbad, subject to the cap on dwelling
units applicable to each quadrant. Analysis performed as part of the adopted Housing Element
and the more recent Envision Carlsbad General Plan Update reveal the Excess Dwelling Unit
Bank balance is adequate to supply the 875 unit yield determined by the Housing Element for the
Village Area.
MP 12-01/LCPA 95-10(C) – VILLAGE MINIMUM DENSITIES
September 5, 2012
PAGE 7
Recommended changes regarding Excess Dwelling Unit Bank allocations for Village Area
projects are proposed so it is clear withdrawals are subject to the criteria contained in City
Council Policy 43. Changes to the findings required of projects that propose densities above
Village Area maximums are proposed as well to match the standard findings used elsewhere in
the city.
V. ENVIRONMENTAL REVIEW
Staff has analyzed the project and has concluded that no potentially significant impacts would
result with the implementation of the amendment that were not previously examined and
evaluated in the adopted Mitigated Negative Declaration (MND) and Mitigation Monitoring and
Reporting Program (MMRP) for the 2005-2010 Housing Element (GPA 03-02), dated December
22, 2009. The MND for GPA 03-02 comprehensively evaluated the potential environmental
effects of future housing facilitated by implementation of Housing Element programs.
Regarding the amendment in particular, the MND noted the proposed minimum densities are
within existing Village Master Plan and Design Manual density ranges and would result in fewer
units (875) than units anticipated to result (937) from adoption of those density ranges in 2007.
Since adoption of density ranges was subject to environmental review that included analysis of
the potential environmental impacts of the 937 units, the MND concluded additional
environmental review is not required to implement Program 2.1 changes to the Village Master
Plan and Design Manual.
The attached Planning Commission resolution finds the project within the scope of the
previously adopted MND and MMRP. The MND and MMRP are available for review on the
city’s website and at the Planning Department.
ATTACHMENTS:
1. Planning Commission Resolution No. 6905
2. Village Area Land Use Districts map
PACIFIC
OCEAN
PINE
ELEMENTARY
SCHOOL
BUENA VISTA
LAGOON
Coastal
Zone Boundary
CarlsbadVillageCenter
FreewayCommercial
Support
HispanicMixed UseSupport
Office
Support
ResidentialSupport
Service
CommercialSupport
Tourism
Support
1
9
84 7
3
2
6
5
CARL
S
B
A
D
V
I
L
L
A
G
E
D
R
CARLSBAD
BL
BEEC
H
A
V
OAK
A
V
GRAN
D
A
V
LAGUNA DR
KNOWLES AV
JE
F
F
E
R
S
O
N
S
T
MAGNOLIA AV
P A L M
A V
CYNTHIA LN
CYPRESS AV
PINE
A
V
CHRI
S
T
I
A
N
S
E
N
W
Y
CHES
T
N
U
T
A
V
OAK A
V
S
T
A
T
E
S
T
BUEN
A
VIS T A C R
CABRILLO
PL
WALN
U
T
A
V
PINE
A
V
OCE A N S T
W
A
S
H
I
N
G
T
O
N
S
T
L AGUNA
DR
G
A
R
F
I
E
L
D
S
T
O
C
E
A
N
S
T
HOME
A
V
DA
V
I
S
A
V
N O R M A N D Y
L N
P
I
O
P
I
C
O
D
R
C H E S T N U T
A V
PACIF
I
C
A
V
W
A
S
H
I
N
G
T
O
N
S
T
S TRATFORD
LN
L
I
N
C
O
L
N
S
T
MAPL
E
A
V
R
O
O
S
E
V
E
L
T
S
T
M
A
D
I
S
O
N
S
T
H
A
R
D
I
N
G
S
T
T
Y
L
E
R
S
T
R
O
O
S
E
V
E
L
T
S
T
BUENA PL
G
A
R
F
I
E
L
D
S
T
VIL
L
A
G
E CR
ACAC
I
A
A
V
M
A
D
I
S
O
N
S
T
J
E
F
F
E
R
S
O
N
S
T
V
I
L
L
A
G
E
D
R
Village Area Land Use Districts
600 0 Feet
J:\Requests2010Plus\ComEconDev\Planning\4850972_12
City of Carlsbad