HomeMy WebLinkAbout2026-03-10; City Council; 10; Fiscal Year 2024-25 Growth Management Program Monitoring ReportCA Review CDS
Meeting Date: March 10, 2026
To: Mayor and City Council
From: Geoff Patnoe, City Manager
Staff Contact: Jennifer Jesser, Senior Planner
jennifer.jesser@carlsbadca.gov, 442-339-2637
Subject: Fiscal Year 2024-25 Growth Management Program Monitoring Report
Districts: All
Recommended Action
1) Hold a public hearing; and
2) Adopt a resolution accepting the Fiscal Year 2024-25 Growth Management Program
Monitoring Report and finding that it satisfies the city’s monitoring requirements.
Executive Summary
The city’s Growth Management Program has guided the growth of Carlsbad since the 1980s.
This report on the city’s Growth Management Program is presented to the City Council each
year in accordance with Carlsbad Municipal Code Chapter 21.90 – Growth Management,
Section 21.90.130(d). The report includes the status of development activity, the adequacy of
public facilities and public facility financing.
This year’s report shows that all public facilities identified in the Fiscal Year 2024-25 Growth
Management Program Monitoring Report meet the required facility performance standards for
Fiscal Year 2024-25. Regarding the Circulation performance standard, the report includes the
status of the vehicle mode of travel. The status of the pedestrian, bicycle and transit travel
modes will be addressed separately at a later date.
Exhibit 1 is a resolution accepting the Fiscal Year 2024-25 Growth Management Program
Monitoring Report and finding that it satisfies the city’s monitoring requirements, as
established in Municipal Code Section 21.90.130(d). The monitoring report is included as
Attachment A to Exhibit 1.
Explanation & Analysis
Background
The City Council approved an ordinance in 1986 that established a growth management
program with a requirement that new development construct and pay for the public facilities
needed to serve the development. Developers either build the improvements themselves or
pay fees to the city so the city can construct the facilities. Carlsbad voters affirmed the general
principles of Carlsbad’s Growth Management Program when they passed Proposition E in
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November 1986. Proposition E also established limits, or caps, on the number of homes in the
city. However, as described in the monitoring report, state housing laws preempt the city’s
ability to require compliance with the housing caps.
Also in 1986, the City Council approved a Citywide Facilities and Improvements Plan that
included performance standards for the following eleven public facilities:
These performance standards are applied citywide, by city quadrant, by local facility
management zone or by project site, depending on the facility. These standards help ensure
that new development and growth do not outpace the city’s infrastructure investments.
Municipal Code Chapter 21.90.130 requires the City Planner to submit an annual report to the
City Council to monitor development activity, an analysis of facilities and improvements, and
any recommendations for facility management planning. The fiscal year 2023-24 growth
management report was adopted by the City Council on April 22, 2025. The purpose of this
report is to present the fiscal year 2024-25 report.
FY 2024-25 Growth Management Program Monitoring Report (Exhibit 1, Attachment A)
The report includes:
•An analysis of the public facility performance standards, including the current status of
each facility and the projected status for when the community is built out (i.e., fully
developed). This analysis shows:
o All public facilities identified in the report met the required performance standards
during fiscal year 2024-25. The report also identifies that when the city is built out,
additional facilities will be needed to meet the standard for city administrative
facilities, libraries, parks, drainage, circulation, open space, sewer collection and
water distribution. This assessment is unchanged from the Fiscal Year 2023-2024
report.
o The status of the circulation performance standard shows the vehicle mode of
travel currently meets the performance standard, except where streets have been
exempted from the standard. As noted above, the status of the pedestrian, bicycle
and transit travel modes will be addressed separately at a later date.
•A summary of development activity during the reporting period
o Building permits were issued for 351 new dwelling units: with 276 primary dwelling
units and 75 accessory dwelling units.
o Building permits were issued for 121,374 square feet of new non-residential space.
•An updated resident population and existing dwelling unit inventory
o The total existing dwelling units (including accessory dwelling units) in Carlsbad, as
of June 30, 2025, is 48,089 and the existing population estimate is 118,230.
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• An analysis of the Proposition E residential dwelling unit caps
o As described in the report, state housing laws preempt the city’s ability to require
compliance with the Proposition E dwelling unit caps. The report analyzes the
Proposition E dwelling unit caps for reference purposes only and shows that the
existing and planned unbuilt dwellings during fiscal year 2024-25 exceed the
dwelling unit caps in the northwest and northeast quadrants, as well as the
citywide cap.
• A description of the 2024 Housing Element Rezone Program
o The City Council approved the rezoning of properties around Carlsbad on Jan. 30,
2024, as reported in the previous fiscal year’s monitoring report. The rezoning
program was necessary to meet state housing requirements. The program resulted
in an increase in the number of future dwellings, which at buildout will exceed the
Proposition E dwelling unit caps in the northwest and northeast quadrants and
citywide. In addition, development approved during fiscal year 2024-2025 resulted
in an additional increase in future dwellings in the northwest quadrant.1 The tables
below show the estimated dwellings at buildout compared to the dwelling caps for
the previous reporting period (FY 2023-24) and for this reporting period (FY 2024-
25)
FY 2023-24
Estimated dwellings at buildout compared to Proposition E dwelling caps
Northwest
Quadrant
Northeast
Quadrant
Southwest
Quadrant
Southeast
Quadrant Citywide
Proposition E
dwelling caps 15,370 9,042 12,859 17,328 54,599
Estimated dwellings
at buildout 17,215 9,608 12,260 17,270 56,353
Above/ below
dwelling caps
1,845
above 566 above 599
below
58
below
1,754
above
FY 2024-25
Estimated dwellings at buildout compared to Proposition E dwelling caps
Northwest
Quadrant
Northeast
Quadrant
Southwest
Quadrant
Southeast
Quadrant Citywide
Proposition E
dwelling caps 15,370 9,042 12,859 17,328 54,599
Estimated dwellings
at buildout 17,475 9,608 12,260 17,270 56,613
Above/ below
dwelling caps
2,105
above
566
above
599
below
58
below
2,014
above
1 This additional increase is because many projects qualified for density bonuses, allowed by state Law, which allow
developers to build more residential units than would otherwise be allowed in exchange for reserving a certain
number of the new units as affordable.
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Carlsbad Tomorrow Growth Management Citizens Committee
To address state housing laws and evaluate other issues affecting Carlsbad’s growth, the City
Council established a goal in fiscal year 2021-2022 to “engage the community through a citizens
committee to create a new plan to manage growth in Carlsbad in a way that maintains an
excellent quality of life.” The City Council approved the formation of the Carlsbad Tomorrow:
Growth Management Citizens Committee on March 8, 2022.
The committee met from March 2022 to April 2023 to review and identify key elements of a
new plan to manage growth in a way that maintains excellent quality of life and ensures
compliance with state laws. The committee’s recommendations are provided in a report titled
“Carlsbad Tomorrow: Growth Management Citizens Committee Final Report April 2023.” The
report was presented to the City Council on July 18, 2023.2
On Nov. 19, 2024, the City Council approved a plan to implement the committee’s
recommendations (Exhibit 2). While changes to the Growth Management Program to
implement the committee’s recommendations are pending City Council action, this report
provides information on the city’s progress in 2024-2025 in implementing the existing Growth
Management Program.
Fiscal Analysis
There is no fiscal impact associated with this action.
Next Steps
The Fiscal Year 2024-25 Growth Management Program Monitoring Report will be kept on file
and posted on the city’s website.
Environmental Evaluation
The proposed action is not a “project” as defined by California Environmental Quality Act, or
CEQA, Section 21065 and CEQA Guidelines Section 15378(b)(5) and does not require
environment review under CEQA Guidelines Section 15060(c)(3) and 15061(b)(3), because the
proposed action to report on adherence to the city’s Growth Management Program and the
facility performance standards contained in the program is an organizational or administrative
government activity that does not involve any commitment to any specific project which may
result in a potentially significant physical impact on the environment. Any subsequent action or
direction stemming from the proposed action may require preparation of an environmental
document in accordance with CEQA or the CEQA Guidelines.
Exhibits
1.City Council resolution
2.Staff report from Nov. 19, 2024 (on file in the Office of the City Clerk)
2 More information about the committee’s work and a link to the committee’s report can be found at
carlsbadca.gov/city-hall/meetings-agendas/boards-commissions/growth-management-committee
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Exhibit 1 RESOLUTION NO. 2026-055 .
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD,
CALIFORNIA, ACCEPTING THE FISCAL YEAR 2024-25 GROWTH
MANAGEMENT PROGRAM MONITORING REPORT AND FINDING THAT IT
SATISFIES THE CITY’S MONITORING REQUIREMENTS
WHEREAS, in 1986, the Carlsbad City Council adopted the Growth Management Program to
ensure that adequate public facilities are provided concurrent with growth; and
WHEREAS, the Growth Management Program is implemented through Carlsbad Municipal Code
Chapter 21.90 and the Citywide Facilities and Improvements Plan; and
WHEREAS, Carlsbad Municipal Code Section 21.90.130(d) requires the City Planner to provide
to the City Council an annual Growth Management Program monitoring report that includes
information on development activity, public facilities and improvements, and public facility financing;
and
WHEREAS, the Fiscal Year 2024-25 Growth Management Program Monitoring Report
(Attachment A) addresses the status of all public facility performance standards, except the status of
the Circulation performance standard for the pedestrian, bicycle, and transit travel modes, which will
be addressed separately.
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbad, California, as
follows:
1.That the above recitations are true and correct.
2.The proposed action is not a “project” as defined by California Environmental Quality
Act, or CEQA, Section 21065 and CEQA Guidelines Section 15378(b)(5) and does not
require environment review under CEQA Guidelines Section 15060(c)(3) and
15061(b)(3), because the proposed action to report on adherence to the city’s Growth
Management Program and the facility performance standards contained in the program
is an organizational or administrative government activity that does not involve any
commitment to any specific project which may result in a potentially significant physical
impact on the environment. Any subsequent action or direction stemming from the
proposed action may require preparation of an environmental document in accordance
with CEQA or CEQA Guidelines.
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3.That the Fiscal Year 2024-25 Growth Management Program Monitoring Report satisfies
Carlsbad Municipal Code Section 21.90.130(d) by providing information to the City
Council regarding the status of the Carlsbad Growth Management Program for the fiscal
year covering July 1, 2024 to June 30, 2025, except for the status of the Circulation
performance standard for the pedestrian, bicycle and transit travel modes, which will
be addressed separately.
4.That the Fiscal Year 2024-25 Growth Management Program Monitoring Report
(Attachment A) is accepted, and the City Planner shall file the report and post it to the
city website.
PASSED, APPROVED AND ADOPTED at a Regular Meeting of the City Council of the City
of Carlsbad on the 10th day of March, 2026, by the following vote, to wit:
AYES: Blackburn, Bhat-Patel, Acosta, Burkholder, Shin.
NAYS: None.
ABSTAIN: None.
ABSENT: None.
______________________________________
KEITH BLACKBURN, Mayor
______________________________________
SHERRY FREISINGER, City Clerk
(SEAL)
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Attachment A
CITY OF CARLSBAD
Fiscal Year 2024-25
Growth Management Program Monitoring Report
July 1, 2024 through June 30, 2025
Carlsbad City Council
Mayor Keith Blackburn
Mayor Pro Tem Priya Bhat-Patel, District 3
Council Member Melanie Burkholder, District 1
Council Member Kevin Shin, District 2
Council Member Teresa Acosta, District 4
March 2026
Report prepared in cooperation with the following City of Carlsbad district and departments:
Carlsbad Municipal Water District
Community Development
Community Services
Fire
Library & Cultural Arts
Parks & Recreation
Public Works
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Introduction
This Growth Management Program Monitoring report for fiscal year 2024-25 (July 1, 2024 – June 30,
2025), is provided in accordance with Carlsbad Municipal Code Section 21.90.130(d), which requires the
preparation of an annual monitoring report on the Growth Management Program.
GROWTH MANAGEMENT PROGRAM OVERVIEW
The principle behind the Growth Management Program is to ensure that new development and growth
does not outpace the performance standards established for public facilities such as circulation facilities,
libraries, parks, open space, and facilities to provide water and sewer services. The City of Carlsbad's
Growth Management Program was created in 1986 and is comprised of:
• The Growth Management Ordinance (Carlsbad Municipal Code Chapter 21.90)
• The Citywide Facilities and Improvements Plan
• Proposition E, passed by voters in November 1986, which established a cap on the number of
residential dwelling units in the city (This dwelling unit cap is no longer enforceable due to state
law, see “Impacts of State Law,” below)
• 25 local facility management plans
The Citywide Facilities and Improvements Plan specifies the performance standards for 11 public
facilities, as listed in Table 1. To ensure that the public facility performance standards could be achieved,
the Growth Management Program directed the development of financing and management plans
describing how and when the public facilities would be developed. The subsections below provide
additional information.
CARLSBAD TOMORROW: GROWTH MANAGEMENT CITIZENS COMMITTEE
The city’s Growth Management Program was created in the 1980s and is largely credited with
maintaining the city’s excellent quality of life, well-planned infrastructure, and financial health over the
past 35 plus years. However, in recent years, state laws have suspended the ability of cities to establish
or implement any provision that limits housing development or population (see “Impacts of State Law,”
below).
To address state housing laws and evaluate the issues affecting Carlsbad’s growth, the City Council
established a goal (FY 2021-2022) to “engage the community through a citizens committee to create a
new plan to manage growth in Carlsbad in a way that maintains an excellent quality of life.” The City
Council approved the formation of the Carlsbad Tomorrow: Growth Management Citizens Committee
on March 8, 2022.
The committee met from March 2022 to April 2023 to review and identify key elements of a new plan to
manage growth in a way that maintains excellent quality of life and ensures compliance with state laws.
The committee’s recommendations are provided in a report titled “Carlsbad Tomorrow: Growth
Management Citizens Committee Final Report April 2023.” The report was presented to the City Council
on July 18, 2023, at which time the council directed staff to return with a work plan to implement the
committee’s recommendations. The work plan was approved by the City Council on November 19, 2024.
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While changes to the Growth Management Program to implement the committee’s recommendations
are pending City Council action, this report provides information on the city’s progress in FY 2024-2025
in implementing the existing Growth Management Program.
Table 1: Citywide Facilities and Improvements Plan Public Facility Performance Standards
Public
Facility
Performance
Standard
Status
on Page
City
Administrative
Facilities1
1,500 sq. ft. per 1,000 population must be scheduled for construction
within a five-year period or prior to construction of 6,250 dwelling units,
beginning at the time the need is first identified.
14
Library1
800 sq. ft. (of library space) per 1,000 population must be scheduled for
construction within a five-year period or prior to construction of 6,250
dwelling units, beginning at the time the need is first identified.
16
Wastewater
Treatment Sewer plant capacity is adequate for at least a five-year period. 17
Parks1
3.0 acres of Community Park or Special Use Area per 1,000 population
within the Park District must be scheduled for construction within a five-
year period beginning at the time the need is first identified. The five-year
period shall not commence prior to August 22, 2017.
18
Drainage Drainage facilities must be provided as required by the city concurrent
with development.
20
Circulation
Implement a comprehensive livable streets network that serves all users
of the system – vehicles, pedestrians, bicycles, and public transit.
Maintain LOS D or better for all modes that are subject to this multi-
modal level of service (MMLOS) standard, as identified in Table 3-1 of the
General Plan Mobility Element, excluding LOS exempt intersections and
streets approved by the City Council.
21
Fire No more than 1,500 dwelling units outside of a five-minute response
time.
29
Open Space2
15% of the total land area in the Local Facility Management Zone (LFMZ)
exclusive of environmentally constrained non-developable land must be
set aside for permanent open space and must be available concurrent
with development.
30
Schools2
School capacity to meet projected enrollment within the Local Facility
Management Zone (LFMZ) as determined by the appropriate school
district must be provided prior to projected occupancy.
35
Sewer
Collection
System
Trunk-line capacity to meet demand, as determined by the appropriate
sewer districts, must be provided concurrent with development.
36
Water
Distribution
System
Line capacity to meet demand as determined by the appropriate water
district must be provided concurrent with development. A minimum of
10-day average storage capacity must be provided prior to any
development.
38
1 The performance standards for city administrative facilities, library facilities, and parks are stated in terms of population, which
is discussed in the subsection below entitled “Population.”
2 The performance standards for open space and schools are based on a “Local Facility Management Zone,” which is discussed in
the subsection below entitled “Facility and Improvement Plans.”
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Figure 1
LOCAL FACILITY AND IMPROVEMENT PLANS
To develop a road map for how the above standards could be met, a
Citywide Facilities and Improvements Plan was created in 1986 that
detailed how compliance with the performance standards will be
achieved, how the necessary public facilities will be provided, and
what financing mechanisms will be used for the facilities. Because
planned development and growth varies throughout the city and at
different levels, Carlsbad is divided into twenty-five local facilities
management zones (Figure 1). Each Local Facility Management Zone
has an adopted Local Facilities Management Plan. Consistent with
the Growth Management Program and the Citywide Facilities and
Improvements Plan, each Local Facility Management Plan must
describe how the Local Facility Management Zone will be developed,
how the required public facilities will be provided, and how those
facilities will be funded.
FAILURE TO MEET A PERFORMANCE STANDARD
The Growth Management Ordinance, Carlsbad Municipal Code Section 21.90.080, states:
“If at any time after preparation of a local facilities management plan the performance standards
established by a plan are not met then no development permits or building permits shall be issued
within the [affected] local zone until the performance standard is met or arrangements satisfactory to
the city council guaranteeing the facilities and improvements have been made.”
As described in the following subsection, the city’s ability to stop development due to lack of compliance
with a growth management performance standard has been largely preempted by recent state law.
IMPACTS OF STATE LAW
According to the Growth Management Program, development activity cannot proceed if either the
residential growth caps or public facility performance standards are not met. However, updates to state
law and the city’s Housing Element have modified these components of the Growth Management
Program.
In 2017 the California Legislature passed Senate Bill 166, known as the No Net Loss Law, which requires
local jurisdictions to ensure that their housing element inventories can accommodate, at all times
throughout the planning period, their remaining unmet share of the regional housing need. The
California Department of Housing and Community Development (HCD) has taken the following positions
with respect to Carlsbad: that failure to meet the Growth Management Plan’s performance standards
cannot be used as a basis for implementing a moratorium that precludes meeting Carlsbad’s share of
the regional housing need, and that the GMP’s residential unit caps could not prevent the city from
achieving consistency with the Housing Element inventory and SB 166. In 2019, the legislature passed
Senate Bill 330, the Housing Crisis Act of 2019, which prohibits local jurisdictions from imposing
moratoriums on housing development and using residential housing caps or other limits to regulate the
number of housing units built within a jurisdiction.
As noted in the City’s May 5, 2020, staff report, Item 12, SB 166 (2017) states that “Each city, county, or
city and county shall ensure that its housing element inventory… can accommodate, at all times
throughout the planning period, its remaining unmet share of the regional housing need allocated
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pursuant to Section 65584.” Furthermore, where housing is an allowable use, SB 330 (2019) prohibits a
city from enacting a “development policy, standard or condition” that would have the effect of
“imposing a moratorium or similar restriction or limitation on housing development ... other than to
specifically protect against an imminent threat to the health and safety of persons residing in, or within
the immediate vicinity of, the area subject to the moratorium...”
The following state laws limit the city’s ability to stop development:
• Senate Bill 166 (2017) states that “Each city, county, or city and county shall ensure that its housing
element inventory… can accommodate, at all times throughout the planning period, its remaining
unmet share of the regional housing need allocated pursuant to Section 65584.” The California
Department of Housing and Community Development has taken the position that exceedances of
the city’s growth management standards cannot constitute a basis for implementing a moratorium
that precludes attainment of the city’s regional housing need allocation.
• Senate Bill 330 (2019) prohibits a city from enacting a “development policy, standard or condition”
that would have the effect of “imposing a moratorium or similar restriction or limitation on housing
development ... other than to specifically protect against an imminent threat to the health and
safety of persons residing in, or within the immediate vicinity of, the area subject to the
moratorium...” On April 17, 2020, the city received an opinion from the California Department of
Housing and Community Development, which states in part that a "housing moratorium adopted
pursuant to the City's [Growth Management Program] would be impermissible under Government
Code section 66300 [Senate Bill 330].”
On April 17, 2020, the city received an opinion from HCD regarding the city’s ability to implement a
moratorium under the City's Growth Management Program where vehicular deficiencies exist (Carlsbad
Municipal Code Sections 21.90.080 and 21.90.130) in light of SB 330. The department’s opinion
concludes that "the housing moratorium adopted pursuant to the city’s GMP would be impermissible
under Government Code section 66300.” “HCD does not consider, however, that general concerns about
the health and welfare of the citizenry-including traffic conditions that cause minor delays-present an
imminent threat to health and safety.” In City Council Resolutions No. 2020-104, No 2020-105, No 2020-
106, No 2020-208, the City Council similarly concluded that “The City finds that Gov. Code § 65863(a)
(SB 166 [2017]) and Gov. Code, § 66300(b)(1)(B)(i) (SB 330 [2019]) preempt the City from implementing
a moratorium pursuant to Carlsbad Municipal Code §§ 21.90.080 and 21.90.130 and [Growth
Management Program] regulations.”
The city also reached similar conclusions with the adoption of its Housing Element in April 2021
(Resolution No. 2021-074.). That resolution states “Consistent with Updated Housing Element Program
2.2, the City Council finds that Government Code Sections 65583(a)(3) and 65863(a) (SB 166 [2017]) and
Government Code Section 66300(b)(1)(D) (SB 330 [2019]) preempt the city from implementing
residential growth management plan caps, residential quadrant limits, and residential control points.
Consequently, the City finds that it cannot and will not enforce these residential caps, quadrant limits,
and control points, including but not limited to those contained in the General Plan (including, but not
limited to the Land Use and Community Design Element Table 2-3, Section 2.6, Policy 2-P.8(a) and (b),
Policy 2- P.16(d), and Policy 2-P.57), Growth Management Plan (Proposition E); City Council Policy
Statement No. 43, Carlsbad Municipal Code Chapter 21.90 including but not limited to CMC §§
21.90.030 (b), 21.90.045 and 21.90.185.”
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SUMMARY STATUS OF PUBLIC FACILITY PERFORMANCE STANDARDS
As further detailed in this report and summarized in Table 2, during FY 2024-25 the city met the Growth
Management Program performance standards for the 11 public facilities.
Table 2: Public Facility Adequacy Status
Public Facility FY 2024-25 Adequacy Status
(Meets performance standard?)
Buildout Adequacy Status
(Meets performance standard?)
City Administrative
Facilities
Yes Additional facilities to be provided
Library Yes Additional facilities to be provided
Wastewater Treatment
Capacity
Yes Yes
Parks Yes Additional facilities to be provided
Drainage Yes Additional facilities to be provided
Circulation Yes* Additional facilities to be provided
Fire Yes Yes
Open Space Yes Additional facilities to be provided
Schools Yes Yes
Sewer Collection System Yes Additional facilities to be provided
Water Distribution System Yes Additional facilities to be provided
* The information on the status of the Circulation performance standard is provided in part by this
report (status of the vehicle travel mode). The status of the pedestrian, bicycle and transit travel
modes will be addressed separately.
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FY 2024-25 DEVELOPMENT ACTIVITY
Residential Development Activity
During FY 2024-25, building permits were issued for 500 new dwelling units (427 primary dwellings and
73 accessory dwellings). Table 3 indicates where the residential development activity occurred.
Table 3: FY 2024-25 Building Permits Issued – Dwelling Units
Quadrant Local Facility Management Zone Primary Dwellings Accessory Dwellings
Northwest
1 96 40
3 0 2
8 12 0
Total NW 108 42
Northeast 2 0 5
7 0 6
Total NE 0 11
Southwest
4 0 1
6 0 1
19 1 2
20 0 1
22 86 0
Total SW 87 5
Southeast
6 23 11
10 0 1
11 58 4
12 0 1
Total SE 81 18
Total Citywide 276 75
Figure 2 shows the recent five-year trend of building permits issued for dwelling units and shows that
the permits issued in FY 2024-25 were 40% higher than FY 2020-21, 211% higher than FY 2021-22, 27%
higher than FY 2022-23, and 30% less than FY 2023-24.
Figure 2 – Five Year Trend of Building Permits Issued for Dwelling Units
251
113
276
500
351
0
100
200
300
400
500
600
2020-21 2021-22 2022-23 2023-24 2024-25#
B
u
i
l
d
i
n
g
P
e
r
m
i
t
s
I
s
s
u
e
d
Fiscal Year
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Non-Residential Development Activity
During FY 2024-25, building permits were issued for 59,621 square feet of new commercial construction
and 61,753 square feet of new industrial construction. Table 4 provides a breakdown by quadrant and
Local Facility Management Zone, excluding the zones that had no building permit activity. Figure 3
shows the recent five-year trend of building permits issued for non-residential construction. The amount
of non-residential square feet permitted in FY 2024-25 was 44% less than FY 2020-21, 12% more than FY
2021-22, 58% less than FY 2024-25, and 33% less than FY 2023-24.
Table 4 – FY 2024-25 Non-Residential Development
Quadrant Local Facility
Management Zone Commercial (SF) Industrial (SF) Combined (SF)
Northwest
1 1,675 - 1,675
3 26,665 - 26,665
13 28,170 - 28,170
Total NW 56,510 - 56,510
Northeast 16 - 61,753 61,753
Total NE - 61,753 61,753
Southwest 5 3,111 - 3,111
Total SW 3,111 - 3,111
Total Citywide 59,621 61,753 121,374
Figure 3 – FY 2024-25 Non-Residential Square Feet Permitted
216,834
107,935
290,988
181,758
121,374
0
50,000
100,000
150,000
200,000
250,000
300,000
350,000
2020-21 2021-22 2022-23 2023-24 2024-25
Sq
u
a
r
e
F
e
e
t
P
e
r
m
i
t
t
e
d
Fiscal Year
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9
Growth Management Program (Proposition E) Dwelling Unit Cap Analysis
In 1986, through Proposition E, voters limited the number of dwelling units in the city to the 54,599
dwelling units, and limited units in each quadrant, as shown in Table 5. However, as described in the
Impacts of State Law section above, state housing laws preempt the city’s ability to require compliance
with the Proposition E dwelling unit caps. Table 5 shows the Proposition E dwelling unit caps for
reference purposes only and reflects the Housing Element Rezone Program that was approved by City
Council on January 30, 2024 (see Housing Element Rezone section below).
Table 5 represents the number of existing dwellings and the number of future dwelling units (“unbuilt
planned dwellings”), as of June 30, 2025, that could be built (based on the applicable growth
management control point density) on all parcels that have a residential land use designation according
to the General Plan Land Use Map. The “total future dwellings”, as shown in Table 5, assumes all parcels
with a residential land use designation will be developed with residential dwellings, including land that is
currently developed with non-residential uses (e.g., churches and professional care facilities).
Pursuant to state law and city regulations, accessory dwelling units and commercial living units are not
counted as dwellings for the purposes of Growth Management and are therefore not included in Table
5. California Government Code Section 66318 states that accessory dwelling units shall not be
considered in the application of any local ordinance, policy or program that limits residential growth.
Regarding commercial living units (e.g., professional care facilities, hotels and timeshares), Carlsbad
Municipal Code Section 21.04.093 states that such units are not considered dwelling units due to the
assistance/services provided in conjunction with the unit and/or the use of the unit for temporary
lodging. See Table 7 for the total number of existing dwellings, including accessory dwelling units. As
described in the Population section below, accessory dwelling units and professional care facilities are
included for purposes of population estimates and analysis of public facility standards that are based on
population.
Table 5: FY 2024-25 Residential Dwelling Status Per Quadrant
As of June 30, 2025
Northwest
Quadrant
Northeast
Quadrant
Southwest
Quadrant
Southeast
Quadrant
Citywide
Total
Proposition E Dwelling Cap3 15,370 9,042 12,859 17,328 54,599
Existing Dwellings4 13,032 7,460 10,347 16,493 47,332
Unbuilt Planned Dwellings5 4,443 2,148 1,913 777 9,281
Total Future Dwellings (Existing and Unbuilt
Planned Dwellings) 17,475 9,608 12,260 17,270 56,613
Units below or above dwelling cap6 2,105
above 566 above 599 below 58 below 2,014 above
3 Proposition E dwelling caps are not enforceable and are shown here for reference purposes only (see the Impacts of State
Law section of this report.
4 For purposes of Growth Management, existing dwellings exclude accessory dwelling units and commercial living units.
5 All quadrants - includes unbuilt approved projects; and in all quadrants except the Village, includes vacant and
underdeveloped property designated for residential use by the General Plan.
6 For reference purposes only.
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As described in the Housing Element Rezone Program section below, the total future dwellings exceed
the Growth Management (Proposition E) dwelling caps as a result of the rezone program. Also, projects
approved during FY 2024-25 resulted in an additional increase in unbuilt planned dwellings (e.g., density
bonuses) in the northwest quadrant, resulting in the number of future dwellings in that quadrant to be
2,105 dwellings above the dwelling cap compared to 1,845 dwellings above the cap in FY 2023-24.
HOUSING ELEMENT REZONE PROGRAM
On Jan. 30, 2024, the City Council voted to approve the rezoning of properties around Carlsbad, as
shown in Figure 4 below. The rezone program was necessary to meet state housing requirements, as
required by Housing Element Program 1.1.
The rezone program resulted in an increased number of future dwellings. Table 6 shows the net increase
in future dwellings that resulted from the rezone program.
Table 6 – Rezone Program Net Increase in Future Dwellings
Quadrant Rezone Program Net Increase in Future Dwellings
Northwest 1,746
Northeast 668
Southwest 336
Southeast 248
Citywide 2,998
Table 5 (FY 2024-25 Residential Dwelling Status Per Quadrant) includes the net increase in units that
resulted from the rezone program; and as shown in Table 5, the approval of the rezone program
resulted in an increase in future dwelling units that exceed the Growth Management dwelling caps in
the northwest and northeast quadrants, as well as citywide. The rezone program net increase in future
dwellings shown in Table 6 is greater than the amount that exceeds the Growth Management dwelling
caps shown in Table 5; this is because prior to the rezone program, the total future dwellings were
below the Growth Management dwelling caps in all quadrants and citywide.
Although the city is no longer able to enforce the dwelling unit caps (see Impacts of State Law section
above), future development must still comply with the Growth Management Program’s public facility
performance standards, which will ensure adequate public facilities are provided concurrent with
growth.
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Figure 4 – Housing Sites Approved for Rezoning
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POPULATION
Existing Population (as of June 30, 2025)
The performance standards for city administrative facilities, library facilities, and parks are stated in
terms of population. The demand for these facilities is based on each new dwelling unit built and the
estimated number of new residents it adds to the city, which is determined using the average number of
persons per dwelling unit. Utilizing data from the 2020 Federal Census (total population divided by total
number of dwelling units), the average for Carlsbad is 2.44 persons per dwelling unit.
As shown in Table 7, as of June 30, 2025, the city’s population is estimated to be 118,230, which is
calculated by multiplying 2.44 persons per dwelling unit by the number of dwelling units and accessory
dwelling units and adding population in commercial living units (professional care facilities). The
population estimates are based on the 2020 Census population estimate and the city’s dwelling unit
estimates and may vary from estimates of other agencies.
The city’s population estimate is higher when compared to the population estimates from the California
Department of Finance (DOF) and the San Diego Association of Governments (SANDAG); both agencies
are estimating a decline in population since the 2020 Census. The Department of Finance (DOF)
estimates that Carlsbad’s population, as of January 1, 2025, was 116,368. SANDAG forecasts that the
current population is approximately 114,700. City staff will continue to monitor projected population
estimates from the DOF and SANDAG.
The city updates its population estimate methodology after each decennial census; the next will be in
2030. The city’s method ensures a consistent methodology over a 10-year period, which provides stable
population projections for public facility planning purposes. If other agencies continue to estimate a
declining population, the city’s population estimates will remain conservatively high and will be adjusted
after the 2030 Census.
Table 7: Existing Population (as of June 30, 2025)
Quadrant
Existing
Dwelling
Units
Existing Accessory
Dwelling
Units
Total Existing
Dwelling
Units
Dwelling
Unit
Population
Population in Professional
Care Facilities
2020 Census
Population in Professional
Care Facilities
After 2020
Total
Population
NW 13,032 395 13,427 32,763 172 - 32,935
NE 7,460 65 7,525 18,362 179 270 18,811
SW 10,347 65 10,412 25,406 139 - 25,545
SE 16,493 232 16,725 40,811 127 - 40,938
TOTAL 47,332 757 48,089 117,343 617 270 118,230
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Buildout Population (as of June 30, 2025)
Table 8 estimates the number of dwellings that will exist at buildout based on current (June 30, 2025)
General Plan residential land use designations.
Table 8: Estimated Buildout Population (as of June 30, 2025)
Quadrant Dwelling Units Population7
NW 17,475 43,805
NE 9,608 24,085
SW 12,260 30,732
SE 17,270 43,291
Total 56,613 141,913
7 Includes population in group quarters (e.g., professional care facilities) – an additional 0.86% of household population.
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CITY ADMINISTRATIVE FACILITIES
Performance Standard
1,500 sq. ft. per 1,000 population must be scheduled for construction within a five-year period or
prior to construction of 6,250 dwelling units, beginning at the time the need is first identified.
FY 2024-25 Facility Adequacy
Based on the estimated June 30, 2025, population estimate of 118,230, the current demand for
administrative facilities is 177,344 square feet. To date, city administrative facilities exceed the
performance standard. The existing inventory of City of Carlsbad and Carlsbad Municipal Water District
buildings (leased and owned) occupied for administrative services are included in Table 9:
Table 9: Existing Administrative Facilities (as of June 30, 2025)
Facility Address Square Feet
City Hall Complex 1200 Carlsbad Village Drive 16,000
Faraday Administration Building 1635 Faraday Ave. 68,000
Fleet Service Center 2480 Impala Drive 10,540
Water District (Maintenance & Operations) 5950 El Camino Real 18,212
Parks Yard (Maintenance & Operations) 1166 Carlsbad Village Drive 4,012
Public Works Operations 405 Oak Ave. 9,950
Safety Center (Police and Fire administration) 2560 Orion Way 55,027
First Responder Safety Training Center 5750 Orion Way 15,090
Senior Center (Parks & Recreation administration) 799 Pine Ave. 5,770
Harding Community Center (Parks & Recreation
administration) 3096 Harding St. 1,335
Total existing square feet of administrative facilities 203,936
Square feet required by performance standard 177,344
Square feet that exceed standard 26,592
Facility Adequacy at Buildout
Based on the General Plan residential land use designations in effect June 30, 2025, the projected
buildout population is 141,913, the demand for city administrative facilities will be 212,870 square feet.
The estimated demand at buildout will exceed the existing 203,936 square feet of administrative
facilities. The facility standard requires that the city schedule additional facilities for construction within
five years after the demand is first identified. The city annually monitors development and demand for
public facilities and will report when there is a demand for additional facilities, based on population
increases resulting from new housing development. The city is currently planning additional
administrative facilities, as described below.
New Orion Center Project
A development proposal is underway for the Orion Center project, which will centralize the city’s
maintenance and operations functions into a single location on Orion Way. The goal for the facility is to
accommodate the existing and future needs for Public Works (Facilities and Streets Maintenance) and
Parks & Recreation (Parks Maintenance). The proposed project will make two existing city facilities
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available for redevelopment: 405 Oak Street, and 1166 Carlsbad Village Drive. The Orion Center project
will provide 25,000 square feet of administrative space (among other uses), which will be a net increase
of 11,000 square feet over the two existing sites. The Planning Commission approved a Conditional Use
Permit for the project in April 2023.
New City Hall Project
On Aug. 16, 2022, the City Council received an update on a new City Hall and directed staff to pursue a
new approximately 40,000 square foot City Hall to be built on the site of the current City Hall Complex
(16,500 square feet). After the August 2022 City Council update report, city staff refined the plans for
the City Hall Complex and determined the facility will be approximately 34,000 square feet, which is an
increase of 17,500 square feet compared to the existing facility. The new facility will include
administrative facilities for existing City Hall Complex staff. Additionally, the New City Hall Project will
likely also include the planning efforts for a new Cole Library facility, see Library Facilities in the next
section.
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LIBRARY FACILITIES
Performance Standard
800 sq. ft. (of library space) per 1,000 population must be scheduled for construction within a five-
year period or prior to construction of 6,250 dwelling units, beginning at the time the need is first
identified.
Note: Library space is used as a standard library measurement of customer use and includes collection space,
seating, meeting rooms, staff areas, technology, and other public facility needs. The performance standard
was originally developed based on surveys of other libraries of comparable size and based on related
standards (such as volumes per capita) set by the American Library Association.
FY 2024-25 Facility Adequacy
The current inventory of library facilities (city-owned) is shown in Table 10:
Table 10: Existing Library Facilities (as of June 30, 2025)
Facility Square Feet
Dove Library 64,000
Cole Library 24,600
Learning Center 11,393
Total existing library square feet 99,993
Square feet required by performance standard 94,584
Square feet that exceed standard 5,409
Based on the June 30, 2025, population estimate of 118,230, the growth management standard requires
94,584 square feet of public library space. The city’s current 99,993 square feet of library facilities
adequately meets the growth management standard.
Facility Adequacy at Buildout
Based on the General Plan residential land use designations in effect June 30, 2025, the projected
buildout population is 141,913, the demand for library facilities will be 113,531 square feet. The existing
99,993 square feet of library facilities will fall short of the growth management standard at buildout. The
facility standard requires that the city schedule additional library facilities for construction within five
years after the demand is first identified. The city annually monitors development and demand for
public facilities and will report when there is a demand for additional facilities, based on population
increases resulting from new housing development.
In 2015-16, the city completed major maintenance and renovation for both the Cole and Dove facilities
that addresses current Americans with Disabilities Act requirements and allows delivery of modern
library services and technology, while extending the life of the Cole Library by 10 to 15 years.
Built in 1967, the design of the Cole Library did not contemplate modern library services, such as
delivery of electronic resources, automated materials handling, and media formats. The library’s role as
a community gathering space has also evolved.
With an already maximized building footprint and infrastructure constraints, the Cole Library will not
expand further to meet these changing needs. Complete replacement and expansion of the Cole facility
is included in the Capital Improvement Program budget with an estimated start in FY 2028-29, as part of
the new City Hall project (see Administrative Facilities in the preceding section). The City Hall project will
most likely inform the timing, impact and opportunities for a new Cole library facility.
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WASTEWATER TREATMENT CAPACITY
Performance Standard
Sewer plant capacity is adequate for at least a five-year period.
FY 2024-25 Facility Adequacy
The Encina Water Pollution Control Facility currently provides adequate capacity in excess of the
performance standard. Carlsbad’s FY 2024-25 annual daily average dry weather sewer flow was 5.88
million gallons per day (MGD) representing 57% of the city’s 10.26 MGD capacity rights. The city’s
annual daily average sewage flow to the Encina Water Pollution Control Facility for the previous five
years is shown in Table 11:
Table 11: Five-Year Annual Daily Average Sewage Flow
Fiscal Year Annual daily average flow
FY 2020-21 6.31 MGD
FY 2021-22 5.72 MGD
FY 2022-23 6.22 MGD
FY 2023-24 5.92 MGD
FY 2024-25 5.88 MGD
Facility Adequacy at Buildout
The Encina Water Pollution Control Facility Phase V Expansion provides adequate sewer treatment
capacity through buildout (year 2040) of the Carlsbad sewer service area.
The City of Carlsbad 2019 Sewer Master Plan contains an analysis of annual daily average sewer flow
through buildout of the city based on the Carlsbad General Plan land use projections (not including the
Housing Element rezone program approved January 30, 2024). The master plan’s analysis indicates that
the city’s projected ultimate buildout flow is approximately 8.31 MGD. The city has capacity rights of
10.26 MGD in the Encina Water Pollution Control Facility and provides adequate wastewater treatment
capacity.
The next sewer master plan update is expected to be complete in 2026. It will include an evaluation of
the potential impacts of development projects and population estimates for the study period (through
year 2050) including the sites and development densities proposed in the 2024 Housing Element rezone
program.
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PARKS
Performance Standard
3.0 acres of Community Park or Special Use Area per 1,000 population within the Park District8 must
be scheduled for construction9 within a five-year period beginning at the time the need is first
identified10. The five-year period shall not commence prior to August 22, 2017.
FY 2024-25 Facility Adequacy
As shown in Table 12, all quadrants were in compliance with the park standard during FY 2024-25.
Table 12: Existing Park Inventory and Required Park Acreage (as of June 30, 2025)
Quadrant Park acreage inventory existing Park acreage required by Standard
NW 131.7 98.8
NE 68.7 56.4
SW 93.6 76.6
SE 138.3 122.8
Total 432.4 354.6
The existing park acreage inventory in each quadrant meets the current park acreage required by the
performance standard.
Veterans Memorial Park
The existing park acreage inventory in Table 12 includes 23.425 acres allocated to each quadrant for
Veterans Memorial Park. On July 26, 2022, the City Council adopted the Veterans Memorial Park Master
Plan. The Veterans Memorial Park site has been selected, a financing plan for the construction of the
park has been approved, and the adoption of the master plan signified completion of the park design.
Therefore, the park has been “scheduled for construction.”
Veterans Memorial Park is a 93.7-acre park located approximately 350 feet east of Cannon Road and
Faraday Avenue. Because of its size, relatively centralized location, and citywide significance, the park
will help fulfill citywide park facility needs. The city’s intention for the park to be a citywide park facility,
and for the total park acreage to be allocated equally to all city quadrants, dates to the Citywide
Facilities and Improvements Plan (CFIP) approved in 1986 (See Resolution 8797, adopted September 23,
1986, Exhibit A at pp. 33–35 [allocating 25 acres from the Macario Canyon park to each quadrant]).
Additionally, the following documents reaffirmed the acreage allocation of Veterans Memorial Park for
citywide benefit:
• Community Facilities District No. 1, established in 1991, finances public facilities of citywide
benefit, including Veterans Memorial Park.
8 "Park District" = "quadrant". There are four park districts within the city, corresponding to the four quadrants.
9 “Scheduled for construction” means that the improvements have been designed, a site has been selected, and a financing
plan for construction of the facility has been approved (See Resolution 2017-170.) An identical definition was adopted in the
Citywide Facilities and Improvements Plan in September 1986 (pages 14 and 32).
10 The threshold for triggering the construction of a new park is as follows: Once a deficit of existing park acreage to meet the
park needs of the existing population in a quadrant is identified, a new park must be scheduled for construction within the
time frame of five years.
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• 2015 General Plan Open Space, Conservation and Recreation Element credits equal acreage
from Veterans Memorial Park to each quadrants future park inventory.
Facility Adequacy at Buildout
Based on the General Plan residential land use designations in effect June 30, 2025, the projected
buildout population and building required park acreage is shown in Table 13. Based on the FY 2024-25
Capital Improvement Program list of projects, Veterans Memorial Park is proposed to be constructed
prior to buildout. The scheduling of construction of this community park results in the projected park
inventory for all city quadrants exceeding the projected required acreage at buildout, as shown in Table
13:
Table 13: Projected Park Inventory at Buildout
Quadrant Buildout
Population
Buildout
Required Acreage
Current
Inventory
Projected
Inventory
NW 43,805 131.4 131.7 131.7
NE 24,085 72.3 68.7 68.71
SW 30,732 92.2 93.6 93.6
SE 43,291 129.9 138.3 138.3
Total 141,913 425.7 432.4 432.4
1 See information about Robertson Ranch Park in the Additional Parks Acreage section below.
The current park inventory is sufficient to meet the buildout demand for park acres, except in the
northeast quadrant, where an additional 3.5 acres is estimated to be needed in the future. The facility
standard requires that the city schedule additional park facilities for construction within five years after
the need for additional park acres is first identified (i.e., once a deficit of existing park acreage to meet
the park needs of the existing population in a quadrant is identified). The city annually monitors
development and demand for public facilities and will report when there is a demand for additional
facilities, based on population increases resulting from new housing development.
Additional Parks Acreage
The projected park acreage numbers in Table 13 do not include park projects listed in the CIP as
“partially funded” or “unfunded”. Should additional funding mechanisms be found, and these parks are
built, the additional park acreage would further aid in meeting/exceeding the growth management
parks performance standard.
• Partially funded – In the FY 2024-25 CIP, $614,000 has been appropriated to the Robertson
Ranch Park project (NE – 11.2 acres), which continued its status as “partially funded”. The
park master plan was approved by the City Council in FY 2023-24, and staff was directed to
proceed with the necessary environmental permitting and entitlements for this park project.
Upon the 11.2-acre Robertson Ranch Park being “scheduled for construction,” the projected
buildout need of 3.5 acres of park inventory would be more than satisfied.
• Unfunded – Zone 5 Business Park Recreational Facility (NW – 9.3 acres) and Cannon Lake
Park (NW – 6.8 acres).
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DRAINAGE
Performance Standard
Drainage facilities must be provided as required by the city concurrent with development.
FY 2024-25 Facility Adequacy
All areas of the city currently (as of June 30, 2025) meet the growth management drainage performance
standard because required drainage facilities have been provided concurrently with development.
Drainage facility needs are best assessed as specific development plans for individual projects are
finalized. Therefore, the drainage performance standard was written to allow the city to require
appropriate drainage facilities as development plans are finalized and approved.
The construction of drainage facilities related development projects is addressed during the review of
individual project proposals. Maintenance, repair, and replacement drainage projects are identified on
an ongoing basis and are incorporated in the Capital Improvement Program as a part of the Storm Drain
Condition Assessment Program, the Citywide Storm Drain Rehabilitation and Replacement Program, or
as individual/stand-alone projects.
Master planned drainage facilities are identified in the city’s 2008 Drainage Master Plan. The associated
Planned Local Drainage Area fee program finances the construction of these facilities. The goal of the
Drainage Master Plan is to assess the performance of existing drainage infrastructure, identify
anticipated improvements and identify a funding mechanism to ensure construction of the planned
facilities. The Drainage Master Plan is updated periodically to reflect changes in the general plan, city
growth, construction costs, drainage standards and environmental regulations. At present, the Public
Works Branch is updating the 2008 Drainage Master Plan to ensure these larger/master planned
facilities will be adequately funded. The Drainage Master Plan update is anticipated to be completed in
2026.
Facility Adequacy at Buildout
As development occurs in the future, additional drainage facilities will be required consistent with the
performance standard. The 2008 Drainage Master Plan proposes the construction of new facilities to
reduce the flooding risk from potential storm events. Construction of the proposed drainage facilities
will provide the backbone system to maintain the drainage performance standard through buildout of
the city. The current update to the Drainage Master Plan will address funding availability for the
construction of needed flood control facilities. The estimated costs for these facilities and the
programming of Planned Local Drainage Area funds are included in the annual Capital Improvement
Program.
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CIRCULATION
The information on the status of the Circulation performance standard for the vehicle travel mode is
provided by this report. The status of the pedestrian, bicycle and transit travel modes will be addressed
separately.
Performance Standard
Implement a comprehensive livable streets network that serves all users of the system – vehicles,
pedestrians, bicycles and public transit. Maintain level of service (LOS) D or better for all modes that
are subject to this multi-modal level of service (MMLOS) standard, as identified in Table 3-1 of the
General Plan Mobility Element, excluding LOS exempt intersections and streets approved by the City
Council.
Background
The General Plan Mobility Element states that the vehicular level of service “will be determined by the
most recent version of the Highway Capacity Manual. This methodology evaluates vehicles based on
their freedom to maneuver and overall delay experienced at intersections.” The service levels for each
travel mode are represented as a letter “grade” ranging from LOS A to LOS F: LOS A reflects a high level
of service for a travel mode (e.g., outstanding characteristics and experience for that mode) and LOS F
would reflect an inadequate level of service for a travel mode (e.g., excessive congestion for vehicles or
inadequate facilities for bicycle, pedestrian or transit users).
The performance standard for the circulation system is guided by the following:
General Plan Mobility Element Goals and Policies
The California Complete Streets Act (2008) requires cities in California to plan for a balanced, multi-
modal transportation system that meets the needs of all travel modes. Accomplishing this state
mandate requires a fundamental shift in how the city plans and designs the street system – recognizing
the street as a public space that serves all users of the system (elderly, children, bicyclists, pedestrians,
etc.) within the urban context of that system (e.g., account for the adjacent land uses).
• Prior to adoption of the General Plan Mobility Element on Sept. 22, 2015, the growth management
circulation performance standard was based on a single mode of travel – the automobile.
• The General Plan Mobility Element identifies a new livable streets strategy for mobility within the
city.
• The livable streets strategy focuses on creating a ‘multi-modal’ street network that supports the
mobility needs of pedestrians, bicyclists, transit users and vehicles.
• Providing travel mode options that reduce dependence on the vehicle also supports the city’s
Climate Action Plan in achieving its goals of reducing greenhouse gas emissions within the city.
Goal 3-G.1: Keep Carlsbad moving with livable streets that provide a safe, balanced, cost-effective, multi-
modal transportation system (vehicles, pedestrians, bikes, transit), accommodating the mobility needs of
all community members, including children, the elderly and the disabled.
Implementing Policy 3-P.3: Apply and update the city’s multi-modal level of service (MMLOS)
methodology and guidelines that reflect the core values of the Carlsbad Community Vision related to
transportation and connectivity. Utilize the MMLOS methodology to evaluate impacts of individual
development projects and amendments to the General Plan on the city’s transportation system.
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Implementing Policy 3-P.4: Implement the city’s MMLOS methodology and maintain LOS D or better for
each mode of travel for which the MMLOS standard is applicable, as identified in Table 3-1 and Figure 3-
111.
General Plan Mobility Element Street Typology
The city’s approach to providing livable streets recognizes that improving the LOS for one mode of
transportation can sometimes degrade the LOS for another mode. For example, pedestrian-friendly
streets are designed to encourage pedestrian use and typically have amenities that slow vehicle travel
speeds (e.g., short-distance pedestrian crossings that restrict vehicle mobility). The “street typology” is
defined in the General Plan Mobility Element and determines which travel modes are subject to the
MMLOS D standard, as summarized in Table 9. For example, the vehicular mode of travel is subject to
the MMLOS D standard on the following street typologies: freeways, arterial streets, arterial connector
streets and industrial streets.
Table 14: Street Typology and MMLOS Standard
STREET TYPOLOLOGY Modes subject to the MMLOS D Standard
Vehicular Transit Pedestrian Bicycle
Freeways Yes Yes No No
Arterial streets Yes Yes No No
Identity streets No No Yes Yes
Village streets No No Yes Yes
Arterial connector streets Yes No Yes Yes
Neighborhood connector streets No No Yes Yes
Coastal streets No No Yes Yes
School streets No No Yes Yes
Employment/transit connector streets No Yes Yes Yes
Industrial streets Yes Yes No No
Local/neighborhood streets No No Yes Yes
All streets located within half mile of a transit center No Yes Yes Yes
Bicycle/pedestrian pathways No No Yes Yes
Methods to Measure Service to Different Transportation Modes
History of MMLOS for Pedestrian, Bicycle and Transit Modes
The City of Carlsbad’s 2015 General Plan included a novel way to measure how well streets meet the
needs of the people who use them. Called multimodal level of service (MMLOS), this approach became
more widely considered after a 2008 state law known as the Complete Streets Act (Assembly Bill 1358)
was signed into law requiring cities to plan streets for walking, biking and transit, not just cars.
Over the past 10 years, City Council policies in the General Plan have been effective in promoting non-
vehicular modes of travel consistent with AB 1358, however the MMLOS has proven challenging for
several reasons. The current MMLOS methodology may not be accurately describing the city’s
11 Table 3-1 and Figure 3-1 are found in the General Plan Mobility Element.
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infrastructure since it is largely based on the presence of physical amenities and not the performance of
the facility.
MMLOS Methodology and Analysis Approach for Pedestrian, Bicycle and Transit Modes
At a future date, staff will present a proposed approach to the MMLOS methodology (for pedestrian,
bicycle, and transit) to the City Council for policy direction. The presentation will outline key
recommendations and facilitate a focused discussion on potential policy adjustments needed to align
the methodology with the objectives of the city’s General Plan Vision and Mobility Element. Conducting
this review, separate from this Growth Management Monitoring Report, will allow the City Council to
evaluate whether the methodology appropriately aligns with the city’s goals and policies and to consider
any identified limitations of the MMLOS approach.
How vehicular LOS is measured
The city monitors facilities that are subject to the vehicular LOS standard according to the street
typology as defined in Table 14. This section of the report summarizes the vehicular LOS methodology
used for monitoring purposes. For the FY 2024-25 monitoring report all the street facilities required to
meet the vehicular LOS standard were monitored including the arterial, arterial connector, and
industrial street typologies.
The city evaluates the roadway network at the “facility” level according to Chapter 16 of the Highway
Capacity Manual. A facility is defined as one direction of travel along a length of road that has similar
travel and geometric characteristics, and it typically extends between multiple signalized intersections.
Each facility has an associated capacity that is defined in the Highway Capacity Manual as “the ability of
a transportation facility or service to meet the quantity of travel demanded of it.” For Growth
Management Program monitoring purposes, travel demand on a roadway is measured by the volume of
vehicles using the facility during the peak hours of operation. A volume threshold is established for each
LOS grade according to the Highway Capacity Manual. The vehicular LOS is determined by comparing
the traffic volume against these thresholds. For example, a LOS D is recorded when a traffic volume
exceeds the LOS C threshold but does not exceed the LOS D threshold.
A street “facility” is comprised of smaller and contiguous “segments” that typically extend between two
adjacent signalized intersections. Per the Highway Capacity Manual, an entire facility is reported as
failing if the volume along any one of its segments exceeds its capacity, which defines LOS F. When a
facility has been monitored and found to operate at LOS D, each segment of that facility will be
evaluated the following monitoring cycle and the LOS will be reported as follows:
a. If the volume of any one segment of the facility exceeds the reported capacity for that
segment, the facility will be reported as LOS F; or
b. If none of the segment volumes exceed the reported capacity for that segment, the facility
will be reported as LOS D (or the new level if it has changed).
As noted above, travel demand is assumed to equal the traffic volume measured during the peak hour
of operation. Vehicular LOS is determined based on one mid-block traffic count collected for each facility
(or segment) being evaluated. The data is collected while school is in session in either the spring or fall.
The morning and afternoon (a.m./p.m.) peak hours’ LOS is reported for each facility or segment. Each
street evaluated will have separate LOS results reported for the a.m. and p.m. peak hour conditions with
independent grades reported for each direction of travel. This approach to data collection is consistent
with industry standards.
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Exemptions to the Vehicle LOS D Standard
General Plan Mobility Element Policy 3-P.9 requires the city to develop and maintain a list of street
facilities where specified modes of travel are exempt from the LOS standard (LOS-exempt street
facilities), as approved by the City Council.
Regarding vehicular LOS standards, the City Council has the authority to exempt a street facility from the
vehicular LOS standard if the street facility meets one or more of the following criteria from General
Plan Mobility Element Policy 3-P.9:
a. Acquiring the rights of way is not feasible; or
b. The proposed improvements would significantly impact the environment in an unacceptable way
and mitigation would not contribute to the nine core values of the Carlsbad Community Vision; or
c. The proposed improvements would result in unacceptable impacts to other community values or
General Plan policies; or
d. The proposed improvements would require more than three through travel lanes in each
direction.
General Plan Mobility Element Policy 3-P.11 requires new development that adds vehicular traffic to
street facilities that are exempt from the vehicle LOS D standard to implement:
• Transportation Demand Management (TDM) strategies that reduce the reliance on single-
occupant automobiles and assist in achieving the city’s livable streets vision; and
• Transportation System Management (TSM) strategies that improve traffic signal coordination
and improve transit service.
Each of the street facilities, previously determined exempt by the City Council, were monitored this
cycle and evaluated against the vehicular LOS standard. The results of this evaluation are summarized in
Table 15 below. No changes have occurred since the streets were determined exempt that would
warrant lifting exemptions for these street facilities.
FY 2024-25 Facility Adequacy
The following vehicular LOS and MMLOS results (Table 15) are based on the data reported in the City of
Carlsbad Roadway Level of Service Analysis Report (December 2025).
Vehicular LOS
The vehicular LOS grades reflect traffic data gathered in spring of 2025. The traffic data represents
typical weekday traffic conditions. Counts were collected at each midblock location for three
consecutive weekdays. For each roadway segment, the highest one-hour a.m. and one-hour p.m.
volume of the three days were determined for each direction of travel.
The LOS results for the vehicular mode are illustrated in Figure 5. All the deficient roadway facilities
identified above were previously determined by City Council to be deficient and exempt per General
Plan Mobility Policy 3-P.10.
Table 16 lists the street facilities which were previously reported as LOS D in last year’s FY 2023-24
monitoring report. The facilities were further studied at the segment level as part of this FY 2024-25
report to determine the operating LOS of the facility at the segment level. The results of this analysis
show that all facilities that have not been previously exempted will still meet the LOS D standard.
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Table 15: Vehicle LOS Exempt Street Facilities
Street Facility From To LOS
(AM/PM)
Meets LOS
Standard?
Date of
Exemption
1. La Costa Ave Interstate-5 El Camino Real B/C Yes
Exempted
with
adoption of the General
Plan Mobility
Element on
Sept. 22,
2015
2. La Costa Ave El Camino Real Interstate-5 F/B No
3. El Camino Real Palomar Airport Rd Camino Vida Roble D/C Yes
4. El Camino Real Camino Vida Roble Poinsettia Ln B/B Yes
5. El Camino Real Poinsettia Ln Aviara Pkwy/Alga Rd C/C Yes
6. El Camino Real Aviara Pkwy/Alga Rd La Costa Ave F/C No
7. El Camino Real La Costa Ave Aviara Pkwy/Alga Rd C/C Yes
8. El Camino Real Aviara Pkwy/Alga Rd Poinsettia Ln C/C Yes
9. El Camino Real Poinsettia Ln Camino Vida Roble C/C Yes
10. El Camino Real Camino Vida Roble Palomar Airport Rd C/D Yes
11. Palomar Airport Rd Avenida Encinas Paseo del Norte F/F No
12. Palomar Airport Rd Paseo del Norte Armada Dr D/C Yes
13. Palomar Airport Rd Armada Dr College Blvd/Aviara
Pkwy
C/C Yes
14. Palomar Airport Rd College Blvd/Aviara
Pkwy
Armada Dr C/C Yes
15. Palomar Airport Rd Armada Dr Paseo del Norte C/C Yes
16. Palomar Airport Rd Paseo del Norte Avenida Encinas F/F No
17. Palomar Airport Rd El Camino Real El Fuerte St B/C Yes
18. Palomar Airport Rd El Fuerte St Melrose Dr B/C Yes
19. Palomar Airport Rd Melrose Dr El Fuerte St C/C Yes
20. Palomar Airport Rd El Fuerte St El Camino Real C/C Yes
21. El Camino Real Oceanside city limits Marron Rd F/E No
Dec. 17, 2019 22. El Camino Real Marron Rd Oceanside city limits E/E No
23. Melrose Drive Vista city limits Palomar Airport Rd F/E No
24. El Camino Real Cannon Rd College Blvd F/C No
Jun. 9, 2020 25. El Camino Real College Blvd Cannon Rd B/B Yes
26. Cannon Rd El Camino Real College Blvd D/D Yes
27. Cannon Rd College Blvd El Camino Real E/D No
28. El Camino Real Tamarack Ave Cannon Rd C/C Yes Nov. 3, 2020
29. College Blvd Carlsbad Village Dr Oceanside city Limits C/D Yes
Jan. 12, 2021* 30. Cannon Rd Avenida Encinas Paseo del Norte E/E No
31. Cannon Rd Paseo del Norte Avenida Encinas F/F No
32. Aviara Pkwy/Alga Rd Manzanita St El Camino Real F/F No July 12, 2022
33. Aviara Pkwy/Alga Rd El Camino Real Manzanita St F/F No
*On January 12, 2021, City Council also exempted the remaining facility of Palomar Airport Road between Avenida Encinas to Paseo del Norte.
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Figure 5: Vehicular Level of Service (LOS) Results
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Table 16: Roadway Facilities that were LOS D in FY 2023-24
Facilities studied at the segment level that were LOS D in
FY 2023-24 2024 2025
Street Facility Segment AM PM AM PM
NB/EB SB/WB NB/EB SB/WB NB/EB SB/WB NB/EB SB/WB
El Camino Real Palomar Airport Rd to
Camino Vida Roble C D C C C D D C
College Blvd
City limits to
Carlsbad Village Dr C D D C C D D C
Carlsbad Village Dr to
Cannon Rd C D D C C D D C
El Camino Real to
Aston Ave C D D C C D D C
Aviara Pkwy Palomar Airport Rd to
Poinsettia Ln D D D D D D D D
Rancho Santa Fe Rd Olivenhain Rd to
Calle Acervo D D D D D D D D
Cannon Rd
Avenida Encinas to Paseo Del Norte D D D D E E E F
El Camino Real to
College Blvd D E E D D E D D
Palomar Airport Rd Paseo del Norte to Armada Dr D C C D D C C C
Carlsbad Village Dr I-5 SB ramp to
Valley St C D D C C D D C
Aviara Pkwy/ Alga Rd
Poinsettia Ln to Kestrel Dr D D D D D D D D
Black Rail Rd to
Aviara Resort Dr D D D D D D D D
Kingfisher Ln to Batiquitos Dr/Baccharis Ave D D D D D D D D
Batiquitos Dr/Baccharis Ave to
Ambrosia Ln D D D D D D D D
Mimosa Dr to Manzanita St D D D D D D D D
Legoland Dr
Cannon Rd to Armada Dr C D D C C D D C
Priestly Dr Faraday Ave to La Place Ct C D D C D D D D
Lionshead Ave Melrose Dr to
City limits D D D D D D D D
Camino Vida Roble
Palomar Oaks Wy to
Palomar Airport Rd D C D D C C C C
Palomar Airport Rd to
El Camino Real D C D D C C D C
Whiptail Loop W Faraday Ave to Whiptail Loop E D C C C D C C C
Whiptail Loop E Whiptail Loop W to Faraday Ave D C C D C C C C
Gateway Rd El Fuerte St to
Palomar Airport Rd C C D C C C C C
Aston Ave College Blvd to
Rutherford Rd D C C C D C C C
In conformance with the Traffic Safety & Mobility Commission (TS&MC) FY 2025-26 Workplan, the
commission reviewed the Fiscal Year 2024-25 Growth Management Plan/General Plan Annual
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Monitoring Report Circulation Section: Roadway Level of Service Analysis on Feb. 2, 2026 and March 2,
2026.
At the Feb. 2, 2026, TS&MC meeting, the commission had questions and comments regarding the report
and ultimately did not support staff’s recommendation to receive and file the Growth Management
Plan/General Plan Annual Monitoring Report Circulation Section. The commissioners’ comments
included wanting more time to review the report, and more information regarding MMLOS and staff
operations regarding the annual monitoring reports.
At the March 2, 2026, TS&MC meeting, the commission unanimously supported staff’s recommendation
to the City Council to receive and file the Growth Management Plan/General Plan Annual Monitoring
Report Circulation Section, prepared pursuant to Carlsbad Municipal Code Section 21.90.130(d) and
Government Code Section 65400
Facility Adequacy at Buildout
The 2015 General Plan EIR evaluated how buildout of the land uses planned by the General Plan will
impact the vehicle, pedestrian, bicycle and transit levels of service, and identified that additional
circulation facilities may need to be constructed to meet the Growth Management Program
performance standard at buildout. The following summary provides the results of that evaluation.
Vehicular Level of Service at Buildout
• Additional future road segments (extensions of College Boulevard and Camino Junipero) needed
to accommodate the city’s future growth were identified as part of the 2015 General Plan. The
General Plan Mobility Element identifies these needed future road segments as “Planned City of
Carlsbad Street Capacity Improvements.”
• The 2015 General Plan also called out the need to implement the scheduled Interstate-5 North
Coast Project and Interstate-5/Interstate-78 Interchange Improvement Project that are needed
to accommodate future growth.
• The city’s Capital Improvement Program funds projects that will upgrade LOS including several
roadway widenings along El Camino Real near College Boulevard (northbound), La Costa Avenue
(southbound) and Cassia Road (northbound).
• The 2015 General Plan EIR identifies transportation demand management (TDM) and
transportation systems management (TSM) as mitigation measures for roadway sections that
have been determined to be LOS-exempt.
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FIRE
Performance Standard
No more than 1,500 dwelling units outside of a five-minute response time.
FY 2024-25 Facility Adequacy
As of June 30, 2025, the city’s fire facilities comply with the performance standard. There are no more
than 1,500 dwelling units outside of a five-minute response distance from any of the city’s seven fire
stations.
The intent of the performance standard, as applied to fire facilities, is to establish the distribution of
station locations, based upon response distances. At the time the performance standard was developed,
scientific fire behavior information and recognized best practices supported the position that a response
time of five minutes would result in effective fire incident intervention. The performance standard
provides no other mechanism for the installation of additional fire stations. It states that up to 1,500
dwelling units could exist outside the five-minute reach of the closest fire station for an indeterminate
length of time without violating the standard. The five-minute response distance measure was selected
exclusively as a means of geographically positioning fire stations throughout the city. Therefore, the
standard is applied as a means of measuring compliance with locating fire facilities, not the performance
of the Fire Department in meeting service responsibilities.
To determine if the standard is met for FY 2024-25, the city refers to the response time analysis
conducted for buildout of the number and location of dwellings planned by the General Plan, which is
more dwellings than currently exist. See “buildout” section below, which concludes that the existing fire
stations are adequate to meet the standard at buildout (i.e., adequate to serve more dwellings than
currently exist).
Facility Adequacy at Buildout
At buildout, the established threshold of more than 1,500 units that exist outside of a five-minute
response distance will not be exceeded for any of the fire stations.
To determine if fire facilities comply with the Fire performance standard at buildout, the city’s
Geographic Information System Department mapped a five-minute response time from each fire
station, based on the drivetime attributes of each roadway, and identified the number of estimated
dwelling units at buildout that are outside the five-minute drivetime.
Table 17: Number of Dwellings Outside Five Minute Response Time (as of June 30, 2025)
Fire Station Number Total number of dwelling units outside of five
minutes
1 0
2 0
3 51
4 0
5 0
6 189
7 0
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OPEN SPACE
Performance Standard
Fifteen% of the total land area in the zone [Local Facility Management Zone] exclusive of
environmentally constrained non-developable land must be set aside for permanent open space and
must be available concurrent with development.
Note: Pursuant to the Citywide Facilities and Improvements Plan, the Open Space standard is
applicable in Local Facilities Management Zones 11 – 15 and 17 – 25. The standard does not apply in
Zones 1 – 10 and 16 because these zones were either fully built out or had previously approved
master plans which would provide sufficient open space at full build out. For more information, see
the “Background Summary” below.
FY 2024-25 Facility Adequacy
As of June 30, 2025, adequate open space has been provided concurrent with new development to
comply with the performance standard. Local Facility Management Plans have been adopted for all
Local Facility Management Zones where the standard applies (Zones 11–15 and 17–25). Each Local
Facility Management Plan (LFMP) identifies how the open space standard will be met within the zone.
Within the applicable zones, approved development projects have been, and future development
projects will be required to be, consistent with the open space required for the applicable Local Facility
Management Zone.
Facility Adequacy at Buildout
All Local Facilities Management Zones, except for Zone 22, have provided the required growth
management open space as identified in the applicable Local Facility Management Plans, which address
required open space through buildout of the zones. Future projects in Zone 22 must provide their
proportionate share of required open space in compliance with the standard.
Background
The history of the open space standard helps to clarify its applicability today. It should be noted that the
open space provided to meet the open space standard does not represent all the open space in
Carlsbad. Open space to the meet standard is provided within the applicable Local Facility Management
Zones and is in addition to constrained open space, such as protected habitat and slopes greater than
40%. The city utilizes other methods to protect all the open space resources and amenities throughout
the city, including the Habitat Management Plan (protects the city’s natural open space preserve
system), Growth Management Parks standard (parks are a source of recreational open space in the city),
and the Trails Master Plan (trails are another source of recreational open space).
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Citizens Committee for the Review of the Land Use Element (1985)
In 1985, a citizen’s committee made recommendations to the City Council regarding changes to the
city’s General Plan Land Use Element. The committee’s recommendations were used as the basis for
developing the growth management facility standards. The committee recommended that future open
space would be provided by future master planned areas (15% of the master plan area), as required by
the Zoning Ordinance at that time (and today).
Public Facility Standards (July 1986) and Citywide Facilities and Improvements Plan (Sept. 1986)
In 1986, the City Council adopted the Growth Management Ordinance (Carlsbad Municipal Code
Chapter 21.90) and the public facility standards for the Growth Management Program. The Citywide
Facilities and Improvements Plan specified that the open space standard applies in some Local Facility
Management Zones (Zones 11–15 and 17–25), but not others (Zones 1–10 and 16) because those zones
were determined to have already been developed or to have already met the standard. (i.e., subject to
previously adopted master and/or specific plans). Some previously adopted master and/or specific plans
found that full build-out under the plans would provide sufficient open space required at the time these
plans were approved, specifically, 15% of all areas (regardless of any constraints such as slope).
Accordingly, the CFIP found these zones did not need to meet the later-adopted open space
performance standard of 15% of non-constrained land. The CFIP exemption for these zones was
recognized in the individual Local Facility Management Plans decades ago. This methodology is
consistent with traditional land use methodology which applies new standards prospectively. (See
2020/2021 Growth Management Program Monitoring Report p. 27; Friends of H Street v. City of
Sacramento (1993) 20 Cal.App.4th 152, 169 [California’s planning statutes “address future growth, and
do not require local governments to bring existing neighborhoods and streets into compliance with the
general plan.”].)
The following are some key facts during the development of the open space standard:
• As part of the development of the Growth Management Program, the city identified areas that
were, at the time, “urbanized” (developed areas) “urbanizing” (some development or some
level of planning completed, such as an existing master plan) and “future urbanizing” (very little
to no development and no existing master plan).
• A comparison of the Local Facilities Management Zones map and the 1986 Development Status
Map shows that the zones where the open space standard is applicable (Zones 11 – 15 and 17 –
25) align, for the most part, with the areas identified in 1986 as “future urbanizing,” which is
where future master plans would be required (e.g., Aviara, Bressi Ranch and Quarry Creek
master plans) and is consistent with the 1985 committee recommendation for master plans to
provide additional future open space.
o The “urbanized” areas were already developed, and the “urbanizing” areas had previously
approved development or master plans. Although the open space standard was not applied
to the “urbanizing” areas, the existing approved master plans within these areas provided
open space as required by city regulations in place at the time. Prior to the Growth
Management Program and the open space standard, the city’s zoning ordinance required
15% of the total area of any master plan to be designated as open space. This 15% standard
differs from the Growth Management open space standard because it applies to the total
land area of a master plan and does not exclude environmentally constrained non-
developable land.
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Note: OS standard applies to gray areas
Figure 6
Local Facility Management Zones
(adopted 1986) 1986 Development Status Map
Where Open Space Standard
Applies
(adopted 1986)
Common Questions About the Open Space Standard
Is there a 40% open space requirement?
It is a misconception that there is a standard that requires the city to provide 40% open space. There is
no requirement or standard that requires 40% open space per individual projects or on a citywide basis.
Neither Proposition E nor the Citywide Facilities and Improvements Plan (CFIP) performance standards
required 40% open space. Proposition E states “…emphasis shall be given to ensuring good traffic
circulation, schools, parks, libraries, open space, and recreational amenities.” The CFIP open space
standard states “Fifteen percent of the total land area in the zone, exclusive of environmentally
constrained non-developable land … concurrent with development.” The CFIP also states that Local
Facilities Management Zones 1-10 and 16 “are already developed or meet or exceed the requirement”
and are not subject to the CFIP open space standard. This methodology predates Proposition E, and was
included in the CFIP, adopted by the City Council on Sept. 23, 1986, by Resolution 8797.
A July 8, 1986, City Council staff report on the facility standards states: “compliance with this [open
space] standard should result in approximately 35 to 40% of the total land area in the city being open
space when the city is fully built out.” A couple years later, a June 27, 1988, staff report to an open
space committee, stated that “staff has estimated that approximately 10,000 acres or 38.5% of the total
land area in the city is projected to be set aside for open space uses.”
The shorthand estimate of 40% was simply derived by adding the 25% estimated constrained lands to
the 15% GMP open space set-aside. However, this shorthand calculation did not consider that the
standard only applied to 14 of the 25 Local Facility Management Zones (CFIP, p. 46), rather than the
entire city. The reference to 40% open space was an estimate, not a standard or goal. Today, 38% of
Carlsbad is dedicated as open space.
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Why doesn’t the open space standard apply to Local Facilities Management Zone 9?
Local Facilities Management Zone 9 (Zone 9) is a good example of one of the “urbanizing” areas in 1986
where the open space standard was not applied. Zone 9 includes part of the Ponto area and the
majority of the zone is subject to the Poinsettia Shores Master Plan. This is an area where the city has
received community comments stating that the zone does not meet the open space standard and more
open space is needed. In 1986 the City Council determined that the open space needs for Zone 9 had
been met and therefore the open space standard does not apply to Zone 9.
Zone 9 was an “urbanizing” area when the Growth Management Program was being developed. A
master plan was approved for the area (Batiquitos Lagoon Educational Park Master Plan). The master
plan met the open space standard required at the time (Zoning Ordinance), which is 15% of the total
area of the master plan.
The following is a summary of actions related to Zone 9 that relate to the open space planned in that
area:
• Oct. 1, 1985 – Batiquitos Lagoon Educational Park Master Plan approved by City Council and, as
required by the zoning ordinance at the time, was required to provide a minimum 15% of the
total master plan area as open space.
• May 6, 1986 – City Council staff report on development of the Growth Management Program:
o City council directed staff, working in conjunction with the developer of Zone 9, to finalize a
pilot local facility management program to serve as a format model for programs for the
other zones. The Batiquitos Lagoon Educational Park Master Plan for Zone 9 had been
approved the year before and it was a recent development plan to use as a model.
• June 24, 1986 – Growth Management Ordinance approved (Zoning Ordinance Chapter 21.90):
o Carlsbad Municipal Code Section 21.90.030(g) allowed development of phase I of the
Batiquitos Lagoon Educational Park Master Plan to proceed prior to approval of a Local
Facility Management Plan for Zone 9, subject to certain conditions including that the
developer agree to participate in the restoration of a significant lagoon and wetland
resource area and make any open space dedications of property necessary to accomplish
the restoration. The master plan developer did make the open space land dedications that
were needed for the restoration of Batiquitos Lagoon.
• Sept. 16, 1986 – City Council approves the Citywide Facilities and Improvements Plan, including
the open space standard with the clarification that the standard is not applicable in Zones 1-10
and 16.
• July 11, 1989 – City Council approves the Local Facilities Management Plan for Zone 9. Other
than noting the existing open space within the zone, open space was not further analyzed in the
plan, as the open space standard does not apply to Zone 9.
• Jan. 18, 1994 – City Council adopts an ordinance approving Poinsettia Shores Master Plan, which
replaced the Batiquitos Lagoon Educational Park Master Plan. The related Planning Commission
staff report (Oct. 20, 1993) evaluates open space in the master plan as follows:
“The Poinsettia Shores Master Plan will not adjust or modify any existing General Plan
designated open space areas or boundaries. Of the project's 162.8 total acres, approximately
34.8 acres are natural lagoon/wetland habitat which have Open Space General Plan
designations (planning areas "I", "K", and "L") and have already been dedicated in fee title to the
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State of California, State Lands Commissions in accordance with previous BLEP [Batiquitos
Lagoon Educational Park] approvals. The master plan has additional open space totaling
approximately 11 acres comprised of a community recreation center (planning area "M") and
open space areas consisting of blufftop and roadway setbacks. The total master plan open space
(approximately 46 acres) represents 28% of the entire master plan area. This exceeds the
[Zoning Ordinance] requirement of at least 15% of the master plan area (24.4 acres) to be set
aside as open space. As outlined in the Citywide Facilities Improvement Plan and the Zone 9
Local Facility Management Plan, this master plan has complied with all open space
requirements. The project is also consistent with the Open Space and Conservation Resource
Management Plan and incorporates master plan trails and links with the Citywide Trails System
as required. The master plan's frontage on the east side of Carlsbad Boulevard (planning areas
"G" and "H") is the location for linkage with the Citywide Trails System. These planning areas will
be required to provide for the trail link within the required 40-foot structural setback from
Carlsbad Boulevard. … On August 26, 1993, the master plan's open space program was reviewed
by the City's Open Space Advisory Committee and unanimously supported…”
While the open space standard is not applicable to Zone 9, open space has been provided for the area,
including private recreation areas, trail linkages and a significant natural open space dedication that
helped in the restoration of Batiquitos Lagoon1.
1 City of Carlsbad Planning Commission Staff Report dated Oct. 20, 1993, for MP 175(D)/GPA 91-05/LCPA 91-02/LFMP 87-09(A)
Poinsettia Shores Master Plan.
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SCHOOLS
Performance Standard
School capacity to meet projected enrollment within the Local Facility Management Zone (LFMZ) as
determined by the appropriate school district must be provided prior to projected occupancy.
Note: public school facilities are not planned, funded, or constructed by the city.
FY 2024-25 Facility Adequacy
All new residential development is required to verify that school capacity can meet the projected
enrollment from the school district serving the development. As of June 30, 2025, all school districts
serving Carlsbad have verified they have capacity to serve development in the city.
Facility Adequacy at Buildout
Compliance with the school facility standard is verified at the time of development. The facility
standard requires that there be adequate school capacity at the time of development (prior to
occupancy), and residential development is required to verify that school capacity can meet the
projected enrollment.
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SEWER COLLECTION SERVICES Performance Standard
Trunk-line capacity to meet demand, as determined by the appropriate sewer districts, must be
provided concurrent with development.
FY 2024-25 Facility Adequacy
The evaluation of conformance with the performance standard requires sewer master plan updates be
conducted on an interval that is commensurate with development activity. As part of the updates, sewer
flow monitoring is necessary to evaluate whether the sewer flow generation factors used to estimate
sewer flows and system capacity adequately reflect actual conditions or require revision. The city
conducts sewer master plan updates approximately every five years to evaluate trunk line capacity and
requires sewer studies during discretionary review of development projects for sewer system sizing.
Sewer collection system improvements are provided on a project-by-project basis concurrent with
development. Currently, the City of Carlsbad’s sewer service area pipelines comply with the
performance standard. The agencies that provide sewer collection service and systems within the city
include: Carlsbad, Leucadia Wastewater District and Vallecitos Water District. Each agency indicates that
they have adequate conveyance capacity in place to meet Carlsbad’s sewer collection demands.
The City of Carlsbad is served by the following six major sewer interceptor systems. In four of these
interceptor systems, wastewater flow capacity is shared with other agencies as listed in Table 18. For
both the Vista/Carlsbad Interceptor and the Buena Interceptor, Carlsbad’s capacity rights increase in the
downstream direction as they flow to the Encina Water Pollution Control Facility. Capacity rights
increase from 3.3% to 50% for the Vista/Carlsbad Interceptor and from 18% to 35% in the Buena
Interceptor. Carlsbad has sufficient capacity rights in these interceptors to transport wastewater to the
EWPCF.
1 Million gallons per day (MGD)
2 Buena Sanitation District and the City of Carlsbad are negotiating the transfer of this facility to the City of Carlsbad upon City of Vista’s commissioning of their Buena Outfall Force Main, Phase III project. 3 The downstream sections (NB8 and NB9) of the North Batiquitos Sewer, often referred to as Ponto Sewer and originally
termed the Occidental Sewer
4 Flows conveyed via Vista Carlsbad Interceptor to EWPCF
Table 18: Carlsbad Sewer Interceptors
Interceptor System Sewer Districts Served Carlsbad Capacity Rights1 FY 2024-25
Average Daily Flows
Vista/Carlsbad
Interceptor City of Carlsbad | City of Vista Ranges from
1.0 MGD up to 41.8 MGD (3.3% - 50%) 3.20 MGD4
Buena Interceptor2 City of Carlsbad | City of Vista Buena Sanitation Dist. Ranges from 1.2 MGD up to 3.6 MGD (18% - 35%) 0.59 MGD
Vallecitos Interceptor
City of Carlsbad
Buena Sanitation Dist.
Vallecitos Water Dist.
5 MGD (24%) 1.62 MGD
Occidental Sewer3 City of Carlsbad | City of Encinitas
Leucadia Wastewater Dist. 8.5 MGD (40%) 0.24 MGD
North Agua Hedionda Interceptor City of Carlsbad 6 MGD (100%) 1.27 MGD
March 10, 2026 Item #10 Page 42 of 46
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37
Facility Adequacy at Buildout
The City of Carlsbad 2019 Sewer Master Plan Update evaluated the sewer infrastructure needs of the
Carlsbad sewer service area and identified facilities required to accommodate future sewer flows at
buildout. The master plan identified the Vista/Carlsbad Interceptor and Buena Interceptor as requiring
improvements to accommodate build-out demand (see below). The next master plan update is in
progress and will evaluate the potential impacts of development projects and population estimates for
the study period (through year 2050) including the 2024 Housing Element rezone program sites.
Sewer trunk main adequacy is estimated by comparing wastewater flow projections to the capacity of
the sewer system using a computer model. Sewer flow monitoring is used to assess actual flows and to
evaluate the need for sewer capacity improvements.
Collection system improvements to meet buildout conditions in Kelly Drive and in Foxtail Loop were
completed in 2024. Other improvements are identified in Faraday Avenue, El Camino Real and Poinsettia
Lane. These projects are programmed in the Capital Improvement Program.
Capacity considerations for major sewer facilities for buildout conditions are summarized as follows:
Vista/Carlsbad Interceptor: The City’s 2019 Sewer Master Plan Update indicates that portions of the
Vista/Carlsbad (VC) Interceptor do not satisfy buildout system flows. Hydraulic model results
indicate the 36-inch diameter gravity mains of Reach VC-3 are insufficient to convey buildout flows
from the city of Vista. Most of reach VC-3 consists of 36-inch diameter gravity main and is scheduled
for upsizing to 42 inches as a joint Capital Improvement Program project by Carlsbad and Vista to
meet buildout flows.
Buena Interceptor: The Buena Interceptor is currently shared by Vista and Carlsbad and, although
the Carlsbad flows are within its capacity rights, the combined flows of Buena Sanitation District and
City of Carlsbad during peak wet weather periods exceed the design capacity criterion. As a result,
Buena Sanitation District has constructed a parallel trunk sewer which will allow Buena Sanitation
District flow to be diverted to the parallel trunk sewer. Buena Sanitation District plans to divert flow
to their new sewer in 2026, which will reduce flow conveyed by the Buena Interceptor and satisfy
the design capacity requirement for buildout flows.
Carlsbad initiated the next Sewer Master Plan Update, expected to be complete in 2026, which
evaluates land use and zoning and revised projections for population, development type and density for
the next 25-year period. These criteria will serve as the basis for flow projections and related sewer
system improvements for the study period. Commercial and industrial properties, which were rezoned
to multi-family residential or mixed-use zoning in the Housing Element rezone program (January 30,
2024), will also be studied for potential impacts to the sewer collection system, either in the Sewer
Master Plan Update or individually as development project applications are submitted for review. It’s
anticipated additional sewer collection capacity will be needed to support future growth throughout the
city, particularly within the northwest quadrant, to accommodate development densities not previously
planned for.
South Agua Hedionda Interceptor City of Carlsbad 4.7 MGD (100%) 0.91 MGD
March 10, 2026 Item #10 Page 43 of 46
Docusign Envelope ID: C356892A-8097-460E-BF04-88D8E3122861
38
WATER DISTRIBUTION SERVICES
Performance Standard
Line capacity to meet demand as determined by the appropriate water district must be provided
concurrent with development. A minimum of 10-day average storage capacity must be provided prior
to any development.
FY 2024-25 Facility Adequacy
Carlsbad’s water distribution is provided by three agencies: Carlsbad Municipal Water District (CMWD),
which is a subsidiary district of the City of Carlsbad, serving 32.32 square miles (82.7% of the city),
Olivenhain Municipal Water District (OMWD) serving 5.28 square miles (13.5% of the city), and
Vallecitos Water District (VWD) serving 1.48 square miles (3.8% of the city). These districts indicate that
they have adequate pipeline and storage capacity to meet the water distribution performance standard.
Water distribution demand requirements are estimated using a computer model to simulate the
following water distribution scenarios: 1) average daily demand; 2) maximum day demand plus a fire
event; and 3) peak hour demand. This computer model was calibrated using actual flow measurements
collected in the field to verify it sufficiently represents the actual water system.
Existing (2014 baseline year) and buildout (2040) daily demand as calculated in the CMWD 2019 Potable
Water Master Plan are 24.1 MGD and 29.6 MGD, respectively. These were based on average daily
demands of 15.1 MGD and 18.5 MGD and a peaking factor of 1.6. Within the CMWD service area, the
actual existing average daily potable water demand has been much less than this for the previous five
years as shown in Table 19:
Table 19: Water Distribution Average Daily Demand
Fiscal Year MGD
2020-21 12.8
2021-22 12.5
2022-23 11.4
2023-24 11.4
2024-25 12.4
Water conservation by CMWD customers has resulted in an overall reduction in per capita consumption.
Factors leading to this reduction include (1) an expansion of CMWD’s recycled water system beginning
in 2008, (2) in 2009, a campaign was initiated to reduce customer consumption by the wholesale water
agencies, and (3) voluntary and mandatory conservation measures in 2015 in response to drought
conditions.
The CMWD 2019 Potable Water Master Plan identified water system improvements for reliability,
expansion of facilities, and/or additional capacity, and the identified projects are programmed in the
Capital Improvement Program. When necessary, the projects are required to be constructed
commensurate with development to ensure compliance with the performance standard.
The 10-day storage requirement is part of the water distribution performance standard and a planning
criterion to accommodate pipeline maintenance recommended by the San Diego County Water
Authority. To meet the requirement, CMWD needs approximately 130 MG of storage capacity based on
the average water demand and 185 MG for buildout conditions. CMWD has a total storage capacity of
March 10, 2026 Item #10 Page 44 of 46
Docusign Envelope ID: C356892A-8097-460E-BF04-88D8E3122861
39
242.5 MG which consists of 195 MG of storage capacity at Maerkle Reservoir and 47.5 MG of storage
capacity in various storage tanks throughout the distribution system as shown in Table 20.
Table 20: Storage Tanks and Capacity
Facility Name Year Built Capacity (MG)
Santa Fe II Tank 1986 9
La Costa Tank 1985 6
Maerkle Tank 1991 10
TAP Tank 1985 6
D-3 Tank 1995 8.5
Ellery Tank 1972 5
Elm Tank 1972 1.5
Skyline Tank 1972 1.5
Maerkle Reservoir 1962 195
CMWD also has interagency agreements with OMWD, VWD and Oceanside to provide additional supply
if needed. In 2004, the OMWD completed construction of a water treatment facility at the San Diego
County Water Authority Emergency Storage Reservoir, which provides the storage necessary to meet
the 10-day storage criterion for OMWD. VWD’s average day demand is 13.3 MGD with an existing
storage capacity of 120.5 MG. Through interagency sharing arrangements, VWD can obtain additional
water supplies to meet a 10-day restriction on imported water supply.
Facility Adequacy at Buildout
As proposed land development projects are reviewed by the city, each water purveyor within the city is
consulted to review the existing facility capacities to verify adequacy to support the water needs of the
project and city. To comply with water master plan requirements, land development projects may be
required to construct a master plan water project or other specific water improvements concurrent with
construction of the development project.
The CMWD 2019 Potable Water Master Plan identified new pipelines and pipeline rehabilitation
projects that are programmed into the Capital Improvement Program, some of which may be
constructed concurrently with new development projects throughout the city. An update to the Potable
Water Master Plan is in progress and is scheduled for completion in 2026. It will include an evaluation of
the potential impacts of development projects and increased population estimates for the study period
(through year 2050), including the sites and development densities proposed in the 2024 Housing
Element rezone program. It’s anticipated additional pipeline capacity will be needed to support future
growth throughout the city, particularly within the northwest quadrant, to accommodate development
densities not previously planned for.
The 2019 Potable Water Master Plan identified that no additional storage is required to meet the future
storage requirements, due in part to conservation measures and expansion of CMWD’s recycled water
system.
March 10, 2026 Item #10 Page 45 of 46
Docusign Envelope ID: C356892A-8097-460E-BF04-88D8E3122861
Exhibit 2
Staff report from Nov. 19, 2024
(on file in the Office of the City Clerk)
March 10, 2026 Item #10 Page 46 of 46
Docusign Envelope ID: C356892A-8097-460E-BF04-88D8E3122861
AFFIDAVIT OF MAILING
NOTICE OF PUBLIC HEARING
TO: CITY CLERK
DATE OF PUBLIC HEARING: m1Af'f1h 10. zot&
SUBJECT G,,-~-m. managtll1LXJ.i:. f!r~ llb1i'lt2.~ J? t!p or /:;
LOCATION: ~00 Carlsbad Village Drive, Carlsbad, CA 92008
D Other: _________________ _
• DATE POSTED TO CITY WEBSITE 2/27 ),J/Ji LP
DATE NOTICES MAILED TO PROPERTY OWNERS: -+-A ...... L4-'l.-=---1f-L--_____ _
NUMBER MAILED: ._../V.__,_4,_,1/],___ __ _
I declare under penalty of perjury under the laws of the State of California that I am employed by
the City of Carlsbad and the foregoing is true and correct.
DEPARTMENT: ~y CLERK'S OFFICE □OTHER _______ _
~twzN
Signature
SENT TO FOR PUBLICATION VIA E-MAIL TO: □ Union Tribune on ___ _
[if Coast News on "G.b. Lr? r -2...02..& •
PUBLICATION DATE: Union Tribune --------------
Coast News feh . 24 1.,01,~
I declare under penalty of perjury under the laws of the State of California that I am employed by
the City of Carlsbad a~he foregoing is true and correct.
DEPARTMENT: [iJc1TY CLERK'S OFFICE □ OTHER _______ _
Signature Date
Attachments: 1) Mailing Labe ls
2) Notice w/ attachments
NOTICE OF PUBLIC HEARING
NOTICE IS HEREBY GIVEN to you, because your interest may be affected, that the City Council of the City
of Carlsbad will hold a public hearing at the Council Chamber, 1200 Carlsbad Village Drive, Carlsbad,
California, at 5 p.m. on Tuesday, March 10, 2026, to accept the Fiscal Year 2024-25 Growth Management
Program Monitoring Report and find that is satisfies the city's monitoring requirements.
The monitoring report includes analysis of development activity during Fiscal Year 2024-25, including
compliance with the Citywide Public Facilities and Improvements Plan performance standards for
administrative facilities, libraries, wastewater treatment capacity, parks, drainage, circulation, fire, open
space, schools, sewer collection systems, and water distribution systems.
Those persons wishing to speak on this proposal are cordially invited to attend the public hearing. Copies
of the staff report will be available on and after Friday, March 6, 2026. If you have any questions, please
contact Jennifer Jesser in the Planning Division at (442) 339 -2637 or jennifer.jesser@carlsbadca.gov. The
meeting can be viewed on line at https://www.carlsbadca.gov/city-hall/meetings-agendas or on the city's
cable channel. In addition, written comments may be submitted to the City Council at or prior to the
hearing via U.S. Mail to the attention of Office of the City Clerk, 1200 Carlsbad Village Drive, Carlsbad, CA
92008, or via email to clerk@carlsbadca.gov.
If you challenge the Fisca l Year 2024-25 Growth Management Program Monitoring Report in court, you
may be limited to raising only those issues you or someone else raised at the public hearing described in
this notice or in written correspondence delivered to the City of Carlsbad, Attn: City Clerk's Office, 1200
Carlsbad Village Drive, Carlsbad, CA 92008, at or prior to the public hearing.
PUBLISH: Friday, Feb. 27, 2026
CITY OF CARLSBAD I CITY COUNCIL
Adriana Trujillo
From:
Sent:
To:
Cc:
Subject:
Attachments:
See the attached PDF files.
Steve Linke <elua@equitablelanduse.org >
Monday, March 9, 2026 3:24 AM
City Clerk
All Receive· Agenda ltem # 10
For the lnformation of the:
CITY COUNCIL
Date: 3/09/26 CA cc
CM ACM DCM (3) .
Keith Blackburn; Priya Bhat-Patel; Teresa Acosta; Melanie Burkholder; Kevin Shin
ELUA public comments on 3/10/2026 City Council Items #10 and #11
2026-03-10 CC Item 11 -Comprehensive Parking Study -ELUA comment.pdf;
2026-03-10 CC Item 10 -GMP Monitoring Report -ELUA comment.pdf
CAUTION: Do not open attachments or click on links unless you recognize the sender and know the content is safe.
1
Equitable Land Use Alliance
300 Carlsbad Village Dr, PMB 108A-79
Carlsbad, CA 92008
March 9, 2026
Re: March 10, 2026 City Council Agenda Item #10: FY2024-25 GMP Monitoring Report
City Council:
Now for the tenth year in a row, staff has failed to include the required monitoring of
pedestrian, bicycle, and transit multimodal level of service (MM LOS) in the annual Growth
Management Plan (GMP) Monitoring Report. This is in direct violation of the General Plan and
GMP, and staff is yet again making the empty promise that they will take action "at a future
date." Here is a very brief summary of language from staff reports and testimony over the past
decade of GMP monitoring, promising to address MMLOS:
2017: "within next 12 months"
• 2018: "Summer of 2018"
• 2020: "later this year"
• 2021: "later this year"
• 2022: "within 6 to 12 months"
• 2023: "Summer 2023"
• 2024: "later this year"
2025: "at a future date"
2026 (current report): "at a future date"
The MM LOS scheme was concocted for the 2015 General Plan update. It eliminated city
monitoring and developer-based traffic studies of vehicle congestion on the vast majority of
Carlsbad's streets through "street typology" designations that re-prioritized the streets from
vehicle to pedestrian, bicycle, and/or transit modes of travel.
As stated by staff at the time: "[T]he purpose of the MM LOS methodology is to provide a means
for evaluating impacts of individual development projects, as well as monitoring the LOS
for individual streets to ensure that they are meeting the specified standard by street type."
They also stated that the street re-prioritizations would create a nexus to require development
projects to fund the multimodal improvements. It was supposed to be "transformational."
However, consistent with the skepticism expressed at the time, the MM LOS scheme was
destined for failure. In direct contradiction of the GMP and the original statements and goals,
staff is now claiming that the city never intended to maintain the minimum performance standard
for MMLOS, and that, because any deficiencies in MMLOS are pre-existing, the system is not
generally enforceable on developers.
It is also troubling that several streets designated as key routes for emergency response and
evacuation have been re-prioritized for non-vehicle travel. As a result of MM LOS, congestion is
no longer monitored and developers are no longer required to address their congestion impacts
on these streets. This includes development projects enabled by state laws to build at higher
densities than allowed/planned by the city, which creates even higher impacts.
And it is particularly alarming that, in an attempt to satisfy the General Plan Safety Element
requirements of AB-747 (2019), ours assumes falsely inflated street capacities for all streets in
Carlsbad based on a long-debunked vehicle LOS method formerly used as part of GMP
monitoring. It also includes bizarre citations of city policies encouraging conversion of streets
from vehicle priority to pedestrian/bicycle priority as being somehow beneficial to evacuations.
While the fire department may assess their ability to navigate their equipment to and fight fires
at proposed development projects, it is not evident that the effects of street congestion have
been assessed for emergency responses or evacuations, and the garbage street capacity data
in the Safety Element and lack of monitoring could endanger lives by not sufficiently accounting
for potential safety issues-an area that the city still has the power to enforce despite the
multitude of state housing laws usurping its authority.
Ultimately, the MMLOS scheme has triggered virtually no meaningful multimodal upgrades, and,
in fact, has compromised the ability to require multimodal mitigation and may be compromising
safety. Given the now decade-long unwillingness or inability to implement an MMLOS system,
Equitable Land Use Alliance is calling upon the City Council to:
• Ask the City Attorney how the current report can legally satisfy the city's annual GMP
monitoring requirements, when none of the required MM LOS monitoring is included.
• Reject the Circulation component of the annual GMP Monitoring Report, because it does
not legally "satisfy the city's monitoring requirements," as claimed in the resolution.
• Set a date-certain meeting within the next six months to review options to delete the
unenforceable MM LOS system from city documents and restore the enforceable vehicle
LOS system, which can trigger multimodal upgrades on "built-out" streets.
• Conduct robust, quantitative vehicle LOS monitoring of all emergency
response/evacuation and other major routes to identify any safety gaps and potentially
restore discretionary safety review of some development projects.
Sincerely,
ELUA Board of Directors
Steve Linke, PhD
Kris Wright
Diane Bedrosian, MD
Equitable Land Use Alliance 2
The Equitable Land Use Alliance is a nonpartisan nonprofit group based in Carlsbad, CA. We
are dedicated to educating, engaging, and empowering residents to take part in housing policy
decisions. Our mission is to support community self-determination and encourage thoughtful,
sustainable development.
Equitable Land Use Alliance 3
FY 2024-25 Growth Management
Program Monitoring Report
Eric Lardy, City Planner
Community Development Department
March 10, 2026
PUBLIC HEARING PROCEDURES
•Open Public Hearing
•Staff Presentation
•City Council Questions of Staff
•Public Testimony
•City Council Discussion
•Close Public Hearing
INTRODUCTION
•Annual report required by Municipal Code
•Zoning Code Section 21.90.130(d)
•Provide status on Performance standards
to ensure public facilities are provided
concurrent with growth
•State Laws and Resolutions suspended
portions of Growth Management Program
PUBLIC FACILITY STATUS
Public Facility FY 2024-25
compliance Public Facility FY 2024-25
compliance
Admin Yes Circulation (vehicle)Yes
Library Yes Drainage Yes
Fire Yes Sewer Yes
Schools Yes Water Yes
Parks Yes Wastewater Yes
Open Space Yes
Before Rezone Project
Estimated Dwellings at Buildout Compared to Proposition E Dwelling Caps
Northwest
Quadrant
Northeast
Quadrant
Southwest
Quadrant
Southeast
Quadrant Citywide
Proposition E
Dwelling Caps 15,370 9,042 12,859 17,328 54,599
Estimated Buildout
Dwellings 15,334 8,940 11,924 17,022 53,220
Above/ Below
Dwelling Caps
36
below
102
below
934
below
306
below
1,379
below
FY 2024-25 - with Rezone Program & Density Bonuses
Estimated Dwellings at Buildout Compared to Proposition E Dwelling Caps
Northwest
Quadrant
Northeast
Quadrant
Southwest
Quadrant
Southeast
Quadrant Citywide
Proposition E
Dwelling Caps 15,370 9,042 12,859 17,328 54,599
Estimated Buildout
Dwellings 17,475 9,608 12,260 17,270 56,613
Above/ Below
Dwelling Caps
2,105
above
566
above
599
below
58
below
2,014
above
RECOMMENDED ACTION
•Support staff’s recommendation to:
–Receive and file the Fiscal Year 2024-25 Growth
Management Program Monitoring Report, prepared
pursuit to Carlsbad Municipal Code (CMC 21.9.130)
FY 2024-25 Growth Management
Program Monitoring Report
Eric Lardy, City Planner
Community Development Department
March 10, 2026
FY2024-25 GMP Monitoring Report:
Circulation component
Steve Linke
Equitable Land Use Alliance (ELUA)
March 10, 2026 City Council Item #10
1
ELUA recommended actions
•Ask the City Attorney how the current report can legally satisfy the city’s annual GMP monitoring requirements, when none of the required MMLOS monitoring is included.
•Reject the Circulation component of the annual GMP Monitoring Report, because it does not legally “satisfy the city’s monitoring requirements,” as claimed in the resolution.
•Set a date-certain meeting within the next six months to review options to delete the unenforceable MMLOS system from city documents and restore the enforceable vehicle LOS system, which can trigger multimodal upgrades on “built-out” streets.
•Conduct robust, quantitative vehicle LOS monitoring of all emergency response/evacuation and other major routes to identify any safety gaps and potentially restore discretionary safety review of some development projects.
2
Vehicle impact assessment methods
3
Vehicle Miles Traveled (VMT)
Environmental
- Greenhouse gas emissions
State CEQA
Environmental report
Vehicle Level of Service (LOS)
Congestion
- Quality of life
- Safety (Emergency Response/Evacuation)
City Growth Management Plan (GMP)
Annual GMP monitoring/Developments
Annual GMP monitoring through 2015:
Vehicle LOS (volume/capacity)
4
Congestion/Delay
A B C D E FGradeCapacity
5
Street typologies:
2015 General Plan update
(Mobility Element)
Promises on MMLOS
•Purpose: “[T]he purpose of the MMLOS methodology is to provide a
means for evaluating impacts of individual development projects, as well
as monitoring the LOS for individual streets to ensure that they are
meeting the specified standard by street type.”
•Performance standard: “Maintain LOS D or better for all prioritized
modes of travel” from Mobility Element map
•Nexus: Street prioritizations will create a nexus to developer
6
MMLOS is quality-based
•Quantitative volume increases
–Vehicle LOS
•Quality of amenities
–Pedestrian LOS
•sidewalk widths, crosswalks, signal countdown heads, etc.
–Bicycle LOS
•bike lane buffers/widths, etc.
–Transit LOS
•benches, shelters etc.
7
Major problems with MMLOS
•How are letter grades assigned to alternative modes?
•Deficiencies (LOS lower than D) in alternative modes
are pre-existing, not a result of growth/development
8
Recent staff claims about MMLOS
•City never intended to maintain the minimum
MMLOS D standard
•MMLOS largely not enforceable with developers
–Pre-existing deficiencies
–No nexus
9
Decade of empty staff promises to
conduct MMLOS monitoring
•2017: “within next 12 months”
•2018: “Summer of 2018”
•2020: “later this year”
•2021: “later this year”
•2022: “within 6 to 12 months” (presented to council)
•2023: “Summer 2023”
•2024: “later this year”
•2025: “at a future date”
•2026: “at a future date” (current report)10
Fake vehicle LOS grading methods (25+ years)
•Assumed capacity of 1,800 vehicles per lane per hour (vplph)
for every lane in Carlsbad, ignoring
–Speed limits
–Intersections
–Traffic signal spacing, type, timing, and phasing
–Lane configurations/lengths
–Median types
–Parking
11
Examples of actual service volumes
Capacity (vplph)
Street Pre-2015
monitoring Actual*
Melrose Drive 1,800 700 to 960
El Camino Real 1,800 837 to 940
College Boulevard 1,800 720 to 880
Aviara Parkway 1,800 565 to 670
12
* City of Carlsbad Service Volume Tables, June 2021
City of Carlsbad, Roadway Level of Service Analysis, February 2020, Kimley Horn
Fake vehicle LOS grading methods (25+ years)
13
General Plan
Safety Element:
Evacuation Routes
14
Re-prioritized to ped/bike:
•Carlsbad Village Drive (W of I-5)
•Tamarack Avenue
•Faraday Avenue
•Poinsettia Lane (W and E ends)
•Alicante Road
•La Costa Avenue (E of El Camino Real)
•Levante Street
•Calle Barcelona
•Carlsbad Boulevard?
AB 747 (2019)
•Safety Element must: “…identify evacuation
routes and their capacity, safety, and viability
under a range of emergency scenarios…”
15
Carlsbad Safety Element
•“Evacuation capacity, safety, and viability were analyzed in compliance with AB 747. The evacuation routes…include a citywide network of arterial roadways with a maximum capacity of 1,800 vehicles per hour per lane that can be utilized in unique
combinations to provide effective transportation
during a range of emergency scenarios.”
16
Village/Barrio
Emergency Routes
•Developers do not have to
assess congestion impacts
•Density exceeds city planning
•Safety issues?
17
ELUA recommended actions
•Ask the City Attorney how the current report can legally satisfy the city’s annual GMP monitoring requirements, when none of the required MMLOS monitoring is included.
•Reject the Circulation component of the annual GMP Monitoring Report, because it does not legally “satisfy the city’s monitoring requirements,” as claimed in the resolution.
•Set a date-certain meeting within the next six months to review options to delete the unenforceable MMLOS system from city documents and restore the enforceable vehicle LOS system, which can trigger multimodal upgrades on “built-out” streets.
•Conduct robust, quantitative vehicle LOS monitoring of all emergency response/evacuation and other major routes to identify any safety gaps and potentially restore discretionary safety review of some development projects.
18