HomeMy WebLinkAboutEA 10-06; CARLSBAD BOULEVARD REALIGNMENT; VISUAL ANALYSIS; 1998-12-21VISUAL ANALYSIS
CARLSBAD BOULEY ARD
REALIGNMENT STUDY
Prepared for
City of Carlsbad
Planning Department
2075 Las Palmas Drive
Carlsbad, CA 92009-1576
21 December 1998
Wallace Roberts & Todd
1133 Columbia Street, #205
San Diego, CA 92101
619/696-9303 Fax: 619/696-7935
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Table of Contents
1.
2.
3.
4.
5.
Project Background ..................................................... page 1
Basis for Analysis ................................................................ 2
Findings ............................................................................... 3
Mitigation .......................................................................... 11
Conclusion ......................................................................... 12
List of Figures
Figure 3.1
Figure 3.2
Figure 3.3
Figure 3.4
Figure 3.5
Figure 3.6
Figure 3.7
Figure 3.8
Figure 3.9
Figure 3.10
Figure 3.11
Figure 3.12
Figure 3.13
Profile of Carlsbad Boulevard
Visual Constraints and Opportunities Diagram -North
Visual Constraints and Opportunities Diagram -South
View Point 1 ........................................................................ 7
View Point 2 .................. -...................................................... 7
View Point 3 ........................................................................ 8
View Point 4 ........................................................................ 8
View Point 5 ........................................................................ 8
View Point 6 ........................................................................ 9
View Point 7 ........................................................................ 9
View Point 8 ...................................................................... 10
View Point 9 ...................................................................... 10
View Point 10 .................................................................... 11
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VISUAL A~AL YSIS
1. PROJECT BACKGROUND
The northbound and southbound lanes ·of Carlsbad Boulevard ·within the project area are
currently located in the public right-of-way that is between 200 to 300 feet wide. The City of
Carlsbad owns the right-of-way. The travel lanes are physically separated by undeveloped
land that is between 40 and 250 feet wide. In the early 1980' s the City of Carlsbad and the
State Department of Parks and Recreation discussed potential land use planning opportunities
associated with the ·vacant right-of-way. The discussion and preliminary planning was based
on a scenario in which Carlsbad Boulevard would be realigned to the eastern extent of the
public right-of-way and the intersection at P~omar Airport Road would be reconfigured to a
"T" alignment. In 1982 the State adopted a Carlsbad State Beach General Plan under the
assumption that all the additional property west of the realigned boulevard would be
dedicated to various public recreational land uses such as open space, additional campsites,
and beach parking. An implementation plan has not been prepared.
The property made available for development by the realignment of Carlsbad Boulevard lies
between the southern boundary, at the bridges over the mouth of Batiquitos Lagoon, to
Manzano Drive at the northern boundary. The western boundary is the Pacific· Ocean, and
the eastern boundary is the Atchison Topeka and Santa Fe Railroad right-of-way.
Approximately 46 acres of potentially usable City owned property would result from the
Eastern Realignment Alternative. The City categorizes the property into the following:
1. Properties . with lease or_ exchange potential with abutting properties -These lands
would lay east of realigned Carlsbad Boulevard adjacent to private lands with
development potential. Opportunities exist for lease or sale of these properties to the
abutting property owner. Approximately 5 acres fall into this category:
2. Properties located west of Carlsbad Boulevard fronting the ocean -Based on further
study, these properties may be suitable for joint development opportunities focused on
beach access, parking, and tourist serving commercial uses. Approximately 30 acres
are included in this category.
3. Properties adjacent to the South Carlsbad State Park -These lands could be
exchanged with the State to allow expansion of the campgrounds or be developed by
the City as a regional coastal trail system. Opportunities may exist to link this trail
system to the proposed Coastal Rail Trail.
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Additionally, The State Department of Parks and Recreation owns over 17 acres that
have the potential of being incorporated into an overall joint development program.
The purpose of this study is to identify and address potential impacts to the landscape based
upon standards in visual quality. The analysis is limited to existing conditions because future
land uses within the project area have not been determined at this time.
2. BASIS FOR ANALYSIS
The guidance for preserving and enhancing scenic resources is established in the Carlsbad
General Plan Open Space & Conservation Element. The following Goals, Objectives and
Implementing Policies and Action Programs serve as the basis for the definition of visual
quality as it applies to the realignment of Carlsbad Boulevard.
A.I An open space system of aesthetic value that maintains community identity, achieves
a sense of natural spaciousness, and provides visual relief in the cityscape.
B.1 To preserve, protect and enhance those areas of the City that provide unique and
special open space functions including, but not limited· to, cultural and visual
amenities, active and passive recreational uses, landmarks, buffers between
incompatible land uses, wildlife habitats and unique and desirable vegetation.
B.2 To create a more rural atmosphere in the urban environment, by identifying,
acquiring, and protecting natural open space areas which are visible from public
gathering places.
B.3 To provide public access to all open space areas except where sensitive resources may
be threatened or damaged, where the public health and safety may be compromised or
where access would interfere with the managed production of resources.
B.6 To provide, where possible,• increased setbacks along arterial corridors and establish
greenways or similar areas to preserve and/or create open space areas as a means of
maintaining community scale and identity, separatin~ conflicting land· uses and
achieving a sense of natural openness as an integral part of urban surroundings.
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3. FINDINGS
The 3-mile stretch of Carlsbad Boulevard within the project area is a segment of road that
parallels the coast of the Pacific Ocean the length of the state. Within San Diego County, this
road passes through a diverse coastal landscape that contributes greatly to the culture and
perceptions of Southern California.
Two valleys cut through the coastal sandstone bluffs, which rise nearly 80 feet above the
beach (see Figure 3.1 ). These low areas enhance the experience of traveling along Carlsbad
Boulevard because the road slopes down views expand from the diverse landforms and
vegetation to the horizon.
100'
50'
O'
-lO' . 20.0x Om,. 0.251111. 0.50 mi 0.75 !!ll. 1.00 mi. 1.25 mi. I.SO mi. 1.7l rm 2.00 mi. 2.25 mi. 2.50 mi 2.7l lllL 3.00 mi. 3.2l lllL
Figure 3.1 Profile of Carlsbad Boulevard along the length of the project area. The low area to
the left is where Encinas Creek reaches the ocean, and Batiquitos Lagoon is on the right end
of the diagram.
The landscape in the project area is currently perceived as open space, in contrast to the
townscape of Leucadia to the south and Carlsbad's residential neighborhoods to the north
which are more urban in character. Land uses. adjacent to project area include the South
Carlsbad State Beach Campground along the bluffs west of Carlsbad Boulevard, two mobile
home parks, small industrial properties and a resort hotel on the east side. Parking for beach
access lies along the western portions of the road in the low areas. Future development
adjacent to the project area is expected to include residential and commercial uses oriented to
recreationalists and travelers.
The State campground occupies much of the bluff tops to the west of Carlsbad Boulevard. It
is screened fairly well from views along the roadway with small, non-native evergreen trees
(myoporum spp.) But, views to the ocean are also blocked by the vegetative screen, campers
and tents. As a result visual experience along the bluff top portions of Carlsbad Boulevard is
contained within the corridor. In contrast, where Carlsbad Boulevard passes into and through
the low areas the views are open to the horizon providing views to natural landscapes such as
bluffs, beaches, and lagoons. These areas include the two valleys and at the interchange of
Palomar Airport Road and Carlsbad Boulevard. The City of Carlsbad General Plan defines
these sites as Special Resource Areas as they are of citywide or regional significance.
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The Visual Constraints and·Opportunities Diagram North and South (see Figures 3.2 and 3.3)
illustrate three categories of view quality ranging from most significant to least. The
diagrams also indicate the general location for screening recommended to enhance the scenic
quality of the corridor. Ten viewpoints located along the corridor are identified by their
approximate station numbers are exhibited in the pages following the diagrams to illustrate
the visual analysis categories.
Visual Analysis Categories
• First Priority View Shed
These areas are highly visible from the public right-of-way and beaches: They are
emblematic of the Carlsbad coastal landscape as they encompass broad views inland
across a natural open space and westward to the ocean's beaches, bluffs, and horizon.
The First Priority View Sheds include the slopes and valleys associated with the lower
portions of the coastal profile at Batiquitos Lagoon, Encinas· Creek floodplain, and the
intersection of Palomar Airport Road and Carlsbad Boulevard. These areas act as Open
Space Gateways, as defined the General Plan because they "mark a major entrance into
or within the City that defines the transition from one community to another."
Additionally, First Priority View Sheds are intended to contribute to the clarity of public
access to the beaches and public open space. Currently, beach access is along the lower
elevations along the coast and through the ~oinsettia and A venida Encinas entrances to
the State Campground (see Second Priority View Sheds).
• Second Priority View shed
The Second Priority View sheds are identified at intersections of roads such as Poinsettia
and A venida Encinas and as the transitional zones behind the First Priority View sheds on
the ridges and bluff tops.
• Areas Least Visually Constrained -Potential Development Area
These areas are most likely to be outside the priority view sheds with the realignment of
Carlsbad Boulevard (further study will be required when initial grading of the right-of-
way is proposed). They are screened from Priority View Sheds by the topography or the
State Campground currently blocks the view of the ocean. These areas will require
careful site design, structural massing and screening to minimize visual impacts.
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• Screen Existing and Future Development
This symbol on the Figures 3.2 and 3.3 generally indicates the location for recommended
screening of all developed areas to meet the intent of the City of Carlsbad General Plan
(see the Mitigation recommendations).
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Figures 3.2 Visual Constraints and Opportunities Diagram -NORTH
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Figure 3.3 Visual Constraints and Opportunities Diagram SOUTH
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Viewpoint Exhibits
The following photographs illustrate the existing visual conditions along the Carlsbad
Boulevard corridor. Station numbers are approximate.
Figure 3.4 Viewpoint 1
View south from the station number 39500. The proposed road will curve to the east while
the eye is drawn to the coastline extending south and the expanse of the ocean to the west.
Figure 3.5 Viewpoint 2
View north from the station number 39500. This area is within the northern High Priority
View Shed. It serves as a gateway to the urban center of Carlsbad. The distant SDG&E tower
provides orientation.
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Figure 3.6 Viewpoint 3
View south from the proposed intersection of Palomar Airport Road and the realigned
Carlsbad Boulevard. Within this First Priority View Shed the mobile home community and
industrial land uses to the east could be screened from view while framing views from the
private property.
Figure 3.7 Viewpoint 4
View south from station number 37000. The area between the coast and the realigned road
may be out of view from the road and from the beach.
Figure 3.8 Viewpoint 5
View south from station number 35600. The Encinas Creek valley is a First Priority View
Shed as it provides a broad view across the floodplain to the beach and distant coastal bluffs.
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Figure 3.9 Viewpoint 6
View from station number 34800 north across the Encinas Creek floodplain. The views north
and south could be enhanced with the reintroduction of native vegetation and screening of
private development on the bluff tops.
Figure 3 .10 Viewpoint 7
View west from station number 31000 of the South Carlsbad Sate Beach campground. Non-
native plant species incompletely screen the campground from the road.
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Figure 3.11 Viewpoint 8
View south from station number 28000. This view is typical along the corridor on the bluff
tops. Residential and commercial land use east of the road and the campground to the west
could be screened from view.
Figure 3.12 Viewpoint 9
View south from station number 26000 across Batiquitos Lagoon is a First Priority View
Shed. To the north of this point the topography rises above the road blocking views.
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Figure 3.13 Viewpoint 10
View north from station number 25000, north of the bridges over Batiquitos Lagoon. This is
an important open space gateway to Carlsbad. The tops of the bluffs are identified within the
Second Priority View Shed.
4. MITIGATION
The segment of Carlsbad Boulevard through the project area exhibits a character of wide-
open spaces, accessible to many via the State campground, beach parking, and mobile home
parks. It contrasts with the character north and south of the project area where private
development is built-up on both sides of the road.
The City of Carlsbad General Plan prescribes tools to be employed to enhance visual quality
throughout Carlsbad. Land use buffers are defined as areas between conflicting land uses
that "will strengthen the perception of individual small communities within the city" ... and
"mark entries into neighborhoods". The undeveloped area within the Carlsbad Boulevard
right-of-way should be considered to be a land use buffer. Vegetation appropriately planted
along the Carlsbad Boulevard corridor can serve to both screen private development from the
public view and frame the valuable views of the private property owners. The plant palette
should consist of native species or species that are adapted to the coastal climate and will not
spread into the areas of native habitat. Planting design should contribute to the visual
diversity along the corridor. Additionally, openings in the vegetation screen at the State
Campground should be considered at key points such as at the intersections of Carlsbad
Boulevard with Poinsettia Drive and A venida Encinas to mark entries into the adjacent
developments.
Development on the bluff tops should be carefully sited and screened to maintain the scenic
quality of the area. Grading should be designed to positively direct views along the corridor.
The use of fencing should be limited to short runs (less than 200' length) to screen views of
private development and until desirable vegetation is trained to cover the fencing.
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Finally, facilities and land uses must be designed and maintained to provide safe access to the
resources without obstructing the prized views of the beaches and ocean.
5. CONCLUSION
The most prized views along the Carlsbad Boulevard corridor include the Pacific horizon,
breaking waves, people enjoying the beach, and a foreground of healthy vegetation.
Elements located on the ridges are more significant due to their prominence. The least
valued views are of are areas of uniformly built structures.
Development associated with the Carlsbad Boulevard Realignment Project may achieve the
goals and objectives of the City of Carlsbad General Plan if the approved land use, siting, and
design is completed properly. Opportunities do exist to improve the visual quality as viewed
from public places through careful screening of existing and future development within and
adjacent to the project area. The potential conflict is that the sites located in the First Priority
View Sheds are also those that are likely to be most attr:active to development due to their
accessibility, visibility and proximity to the ocean. Inappropriate planned land uses, poor site
design, architectural massing, detailing, landscaping, and long term maintenance will result in
significant negative impacts to the visual quality in the project area. As each of these is
subjective, specific design guidelines should be developed and followed to ensure the best
possible results. Additionally, it should be understood that due to the uniqueness of the
property the cost of proper development will be high.
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References
• South Carlsbad State Beach -Area 1-B, 2-A, 2-B, (Drawing No. 19148) General Plan,
Resources Agency of California, Department of Parks ,and Recreation, Date?
• Carlsbad General Plan, Land Use Element, Date?
• Carlsbad General Plan, Open Space & Conservation Element, Date?
• Open Space and Conservation Resource Management Plan, City of Carlsbad, Wallace
Roberts & Todd, June 1992.
• Palomar Airport Road Connection to Carlsbad Boulevard, Conceptual Design Report,
Boyle Engineering Corporation, April 10, 1992.
• Local Coastal Program, City of Carlsbad, 1996
• Facilities Rehabilitation South Carlsbad State Beach, Department of Parks and
Recreation, Jaykim Engineers, Inc.
• Poinsettia Shores Master Plan, Hofman Planning Associates, May 12, 1994
• Poinsettia Properties Specific Plan, Benchmark Pacific Management, Inc., November 19,
1997
' • Coastal Rail Trail Project Study Report, Transtech, June 25, 1998
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