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HomeMy WebLinkAboutCDP 10-10; Coastal Rail Trail Reach 1; _N/A. . ' • ' VISUAL IMPACT ASSESSMENT Carlsbad Coastal Rail Trail, Reach 1 July 9, 2012 California Department of Transportation EA #: 11-955586 Project ID #: CML-5308 (005) Prepared Under the Direction of: CathyJohnson,PlA,CPESC license #4545 landscape Architect RBF Consulting Statement of Compliance: Produced in compliance with National Environmental Policy Act (NEPA) and California Environmental Quality Act (CEQA) requirements, as appropriate, to meet the level of analysis and documentation that has been determined necessary for this project. VISUAL IMPACT ASSESSMENT Carlsbad Coastal Rail Trail, Reach 1 PURPOSE OF STUDY AND ASSESSMENT METHOD The purpose of this Visual Impact Assessment (VIA) is to document potential visual impacts caused by the proposed Carlsbad Coastal Rail Trail, Reach 1 (the project) and propose measures to lessen any detrimental impacts that are identified. Visual impacts are demonstrated by identifying visual resources in the project area, measuring the amount of change that will occur as a result of the project, and predicting how the affected public will respond to or perceive those changes. This visual impact assessment follows the guidance outlined in the publication Visual Impact Assessment for Highway Projects published by the Federal Highway Administration (FHWA) (January 1988). PROJECT DESCRIPTION, LOCATION, AND SETIING Project location The project is located along State Street and Carlsbad Boulevard/Coast Highway, from Eaton Street (in the City of Oceanside) to Oak Avenue (in the City of Carlsbad), California; refer to Exhibit 1 (Regional Vicinity) and Exhibit 2 (Site Vicinity). A roundabout is proposed at the State Street/Carlsbad Boulevard intersection, in the City of Carlsbad. Project Description The county-wide Coastal Rail Trail Project proposes a non-motorized trail, primarily within the San Diego Northern Railroad (SDNR) right-of-way (R/W); refer to Exhibit 3 (Site Plan). The trail includes segments of 10-foot wide multi-use Class I paved paths, 5-foot wide Class II bike lanes, and Class Ill bike routes within existing roadways. The Class I pathway will reflect a linear park and will include such amenities that will enhance the pathway. These may include landscaping, permanent storm water treatment systems, irrigation, fencing, public art, park furniture, trash containers, lighting, water fountains, bicycle racks, and sign kiosks. In the City of Carlsbad the Coastal Rail Trail is divided into five reaches. This project supports the construction of the Reach 1 portion which begins at Eaton Street (in the City of Oceanside) and extends south to the State Street and Carlsbad Boulevard intersection (in the City of Carlsbad). The trail continues as a Class Ill bike route along State Street until the Oak Avenue and State Street intersection, where the trail accesses the eastern edge of the railroad R/W. The proposed improvements include the construction of a 10-foot wide Class I bike path, Class II bike lanes, and Class Ill bike routes. A single- lane roundabout is proposed at the State Street and Carlsbad Boulevard intersection. Other visible structural components will include a median barrier separating the travel lane from the bike lane. This is proposed to be 3 feet high with 3-foot breaks spaced every 20 feet. Improvements from State Street to Oak Avenue will include new signage only; no new hardscape features are proposed at this location. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 1 ' • ----, ...____,, ~ \_ __ -Lrv-'- ~ not to scale A-Company 6/25112 JN 55-100827·18510 MAS SAN BERNARDINO COUNTY RIVERSIDE COUNTY ---------- La Quinta --------------------------- Borrego Springs s:: 1"'0 \ ~ ')> ,, () 0 c: z -1 -< CARLSBAD COASTAL RAIL TRAIL • REACH 1 Regional Vicinity Exhibit 1 Source: San Luis Reys, California, USGS Quad, 1975. D Project Site A-Company I ~ k----=::100' 6125/12 JN 55-1008274-18510 MAS CARLSBAD COASTAL RAIL TRAIL • REACH 1 Site Vicinity Exhibit 2 I I ·"···.I c:.::l • ·4~.: -R/w--: '-- 80' liliijOMjijll --------------- I I' I CARLSBAD COASTAL RAIL TRAIL • REACH 1 Site Plan Exhiblt3 The project will also implement the proposed Planting Plan (prepared by RBF Consulting). The Planting Plan will replace landscaping within the proposed project with shrubs (Dwarf Coyote Brush, Clustered Field Sedge, and Prostrate Natal Plum), native grasses, and a tree (Torrey Pine-24-inch box) within the center of the proposed roundabout; refer to Exhibit 4 (Planting Plan). All proposed landscaping will have low to medium water requirements. Existing site conditions for Carlsbad Boulevard include paved 3-lane asphalt streets. There is existing curb, gutter, and sidewalk along the roadway north of the Buena Vista lagoon. There is no existing curb, gutter, or sidewalk along the roadway south of the Buena Vista lagoon, having dirt shoulders on either side of the pavement. Vertical slopes range from 0.5 to 5.5 percent to the north of the lagoon and 0.5 to 7.5 percent to the south of the lagoon. Existing site conditions for State Street include paved 2-lane asphalt streets, with street parking on either side. There is curb, gutter, and sidewalk along the entirety of the roadway on either side, including existing curb inlets where necessary. Vertical slopes range from 2 to 5.5 percent. Purpose and Need The main purpose of the project is to improve the pedestrian and bicycling environment and improve safety at the Carlsbad Boulevard/State Street intersection and adjacent project corridor. South Coast Highway/Carlsbad Boulevard from Eaton Street to State Street is a heavily traveled corridor for both pedestrians and bicyclists. The current intersection of Carlsbad Boulevard and State Street is a three legged uncontrolled intersection. Westbound State Street intersects Carlsbad Boulevard at a skewed angle. left turns are prohibited from State Street onto Carlsbad Boulevard. The westbound right turn movement is "free", which means the movement is unrestricted and ties directly into a dedicated northbound through lane. On the northbound approach, a dedicated left turn lane is provided approaching State Street from Carlsbad Boulevard. A "Yield" sign is provided for the northbound left turn movement. The skewed angle and "free" and "yield" entries to the intersection do not provide adequate accommodations for pedestrian and/or bicycle travel. Also, within the City of Oceanside, there are existing bikes lanes and sidewalks; however, as the roadway enters the City of Carlsbad, there are no bikes lanes or sidewalks constructed. Pedestrians walk along the dirt shoulder and bicyclists ride within the widened shoulder or vehicular travel lane. The proposed project will realign the intersection to create better sight distances for all users. Additionally, the construction of a roundabout will slow traffic and provide pedestrians and bicyclists with safe, dedicated crosswalks. A dedicated 10-foot wide Class I bike path is proposed from Eaton Street to the proposed roundabout at the State Street/Carlsbad Boulevard intersection to further facilitate non-motorized users. In addition to providing a safer corridor, the project will also meet the overall project goals of the Coastal Rail Trail as identified in the Project Study Report, dated October 2000. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 5 LEGEND SCIENTIFIC NAME 0 Pinus Torreyana 0 Baccahris Pilularis 'Twin Peaks' " Carex Praegracilis ® Carrissa Grandillora 'Prostrata' COMMON NAME Torrey Pine Dwarf Coyote Brush Clustered Field Sedge Prostrate Natal Plum N'N155-200-04 .M::W.Hr\N~Ill.flf:CO CARLSBAD COASTAL RAIL TRAIL • REACH 1 Planting Plan Exhlbit4 Goall: Locate, wherever possible, the trail within the railroad R/W in order to provide an alternative to using heavily traveled parallel roadways in a safe and legal environment. Goal 2: The Coastal Rail Trail should be a functional well-planned facility that provides a relatively north-south connection in the County, and follows routes already used by bicyclist, pedestrians, and others. Goal 3: The Coastal Rail Trail should consider connections to existing and proposed trails to further expand alternative transportation choices. Goal 4: Maximize safety along the railroad corridor by organizing and managing pedestrian and bicycling activity along the railway through appropriate design and operation of the facility. Goal 5: Preserve the primary use of the SDNR and recognize the desire that future service may require that SDNR double-track the railroad in the future for additional rail service, for additional tracking for the light rail system, and future transit stations. Goal 6: Preserve existing access routes to beaches and other destinations. Where needed, relocate some access routes to new-channeled crossings. Goal 7: Protect existing wetlands and other environmentally sensitive habitats along the R/W. This may result in the diversion of the Coastal Rail Trail to alternate routes off the railroad corridor. Goal 8: Design, construct, and maintain the facility to meet appropriate state and federal standards and the intent of the American with Disabilities Act (ADA). Goal 9: Wherever desirable or due to specific constraints, provide separate treadways for pedestrians and wheeled users. Goal10: Design grade crossings at roadways, which minimize trail user safety and convenience. Existing Visual Setting The proposed project is located along State Street and Carlsbad Boulevard/Coast Highway, from Eaton Street (in the City of Oceanside) to Oak Avenue (in the City of Carlsbad), California. Generally, the project is situated along the coastal beach (at the Buena Vista Lagoon) in northern San Diego County, California. The landscape is characterized by a coastal lagoon and developed urban uses; refer to Exhibit 5 (Aerial Photograph). The land use within the project corridor is primarily open space/recreation, commercial/office/retail, civic/institutional, and residential uses. The project corridor is defined as the area of land that is visible from, adjacent to, and outside the highway R/W, and is determined by topography, vegetation, and viewing distance. Visual resources within the project corridor include the Buena Vista Lagoon, associated vegetation, and partial views to the Pacific Ocean. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 7 [2'] Project Boundary ~ not to scale CARLSBAD COASTAL RAIL TRAIL • REACH 1 Aerial Photograph A-Company . 6126/12 JN 55-1008274-18510 MAS Exhibit 5 No designated state scenic highways are present in or near the project corridor and no officially designated state scenic highways are located within the project area. The nearest designated eligible scenic highway is Interstate 5 (1-5), located greater than 0.5-mile west of the project corridor.1 Views to the project corridor from 1-5 are not readily available. It should be noted that Carlsbad Boulevard, within the project corridor, is a designated scenic corridor (Community Themed Corridor) per the City of Carlsbad. Particular scenic vistas identified along this designated corridor (within the project area) include views across the Buena Vista Lagoon. VISUAL RESOURCES AND RESOURCE CHANGE Visual resources of the project setting are defined and identified below by assessing visual character and visual quality in the project corridor. Resource change is assessed by evaluating the visual character and the visual quality of the visual resources that comprise the project corridor before and after the construction of the proposed project. The visual character of the proposed project will be compatible with the existing visual character of the corridor. The existing visual character experienced through the project corridor is moderate. Varying color and form are visible throughout the project corridor, as a result of the change in land uses from urban land to open space (Buena Vista Lagoon) as a viewer travels north. The existing vegetation varies from ornamental trees, shrubs, and grasses to native and non-native grass and shrub species associated with the Buena Vista Lagoon, creating a range of texture experienced throughout the corridor. Varying structural heights and setbacks also allow for a variety of forms visible within the urban portions of the project corridor. Upon project implementation, project features will appear compatible with the existing visual character experienced throughout the project corridor. The project will result in increased pedestrian/bicycle- related transportation uses along the existing roadway network. The project will create new pedestrian/bicycle paths, sidewalk, and a new roundabout feature. Introduced landscaping within the proposed roundabout and new raised medians will soften the appearance of hardscape. A concrete barrier (3-feet in height, 20-feet long, with 3-foot breaks in between) will be situated between the proposed Class II and Class Ill bike paths and Carlsbad Boulevard/Coast Highway along the project corridor. A Minimization Measure (MM-1) has been included in order to require architectural treatment(s) to reduce the monotonous appearance of this hardscape feature along the roadway. With implementation of the proposed Planting Plan and MM-1, resultant line, form, color, and texture will appear compatible with the existing character of the project corridor. Pedestrians, bicyclists, and motorists traveling through the project site experience moderate vividness, intactness, and unity. The visual quality of the existing corridor will be slightly altered by the proposed project, as proposed landscaping and the new roundabout feature will result in increased vividness, intactness, and unity. Vegetation will appear more uniform through the project corridor and increased landscaping will reduce the appearance of hardscape features (further reducing visible encroachment). Further, implementation of MM-1 will reduce the visual impacts to the quality of the landscape with regard to the new 3-foot high barrier proposed along Carlsbad Boulevard. 1 State of California Department of Transportation, California Scenic Highway Mapping System, http:/ /www.dot. ca.gov/hq/LandArch/scenic_ highways/, accessed on June 19, 2012. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 9 Overall, resource change (changes to visual resources as measured by changes in visual character and visual quality) will be moderate-low. The project will appear compatible with the existing character of the landscape. Generally, proposed landscaping, introduced bike paths, and the new roundabout feature will complement the existing character experienced through the project corridor, increase the pedestrian scale of the landscape (as experienced by bicyclists and pedestrians), and will increase the overall visual quality of the area, better connecting the landscape in the northern portion of the project corridor, with that experienced in the southern portion of the project corridor. VIEWERS AND VIEWER RESPONSE Neighbors (people with views to the road) and highway users (people with views from the road) will be affected by the proposed project. Public views to the project site include residents, recreational/pedestrian users utilizing the roadway system, as well as recreational/institutional users at Maxton Brown Park and the Buena Vista Audubon Society (BVAS) Nature Center. Other public views to the road include commercial/retail users within the project corridor. Highway users include motorists traveling along Carlsbad Boulevard and State Street. Viewer Sensitivity Based on available documentation with the cities of Carlsbad and Oceanside, the project site is considered to be of high sensitivity. Within the City of Carlsbad, the project site is located along the designated Carlsbad Trail System and trends through the Buena Vista Lagoon (a designated scenic resource). Other evidence of heightened viewer sensitivity in the project corridor includes the designated scenic corridor (Community Themed Corridor) along Carlsbad Boulevard. Further, the adjacent Maxton Brown Park is a designated Special Use Area and Special Resource Area. According to the City of Oceanside, the BVAS Nature Center is situated along the project site and allows the public to access the Buena Vista Lagoon (as recreationalists). Further, the Buena Vista Lagoon is considered to be a regional amenity, a significant visual open space, and includes "themed architecture" in this particular area. Overall, both the cities of Carlsbad and Oceanside consider the Buena Vista Lagoon to be a regional asset to the public with regard to visual resources. Both cities consider it a priority to allow public access to the lagoon for visual and recreational open space purposes and support a coastal rail trail option through the project corridor. City of Carlsbad Carlsbad General Plan According to the Carlsbad General Plan (updated in 1994 and 2008), landform within the City consists of an uplifted coastal plain across which east-west trending drainages have cut systems of alternating mesas separated by riparian valleys and canyons. At the ocean, the mesas terminate in coastal bluffs and the major drainages have formed lagoons. One of the major defining characteristics of the City's form includes an extensive network of interconnected greenways, wildlife corridors, parks, trails, and environmental preserves. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 10 land Use Element. The land Use Element involves providing sufficient land to meet the needs of the community over a long-term period, while at the same time preserving the quality and quantity of the natural environment. It is the intent of the City to provide places to participate in recreational activities and to enjoy nature. Overall land Use Pattern Implementing Policies and Action Programs C.8 Provide for a sufficient diversity of land uses so that schools, parks and recreational areas, churches and neighborhood shopping centers are available in close proximity to each resident of the City. C.12 Develop and retain open space in all categories of land use. Environmental Implementing Policies and Action Programs C.l Preserve Buena Vista lagoon and Batiquitos lagoon as visual resources and wildlife preserves. C.S limit future development adjacent to the lagoons and beach in such a manner so as to provide to the greatest extent feasible the physical and visual accessibility to these resources for public use and enjoyment. Transportation Corridor Objectives B.2 To encourage the use of the excess railroad right-of-way for landscaping, parking facilities, recreational areas, trails, and similar uses. Open Space and Conservation Element. The Open Space and Conservation Element of the Carlsbad General Plan establishes policies for the development of a comprehensive, connected open space system and for the protection and conservation of the City's natural and historic resources. The intent of this element is to realize the social, economic, aesthetic, and environmental benefits which accrue from the preservation of open space within an urban environment. With regard to trails, key concepts for the trail system planning and design include: o Routing trails within open space corridors separated from roadways, whenever possible; o Allowing public access to landscape resources with high aesthetic qualities located throughout the City; o locating trail rights-of-way, as a general rule, in public ownership; o Providing trail specifications aimed at pedestrian and, where possible, bicycle use. Environmental Implementing Policies and Action Programs C.l Preserve Buena Vista lagoon and Batiquitos lagoon as visual resources and wildlife preserves. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 11 C.15 Preserve panoramic viewpoints, as identified in the Open Space and Conservation Resource Management Plan, and where possible, provide public access. Special Resource Protection Implementing Policies and Action Programs C.4 Designate for preservation as open space those areas that provide unique visual amenities and define the urban form as contained in the Open Space and Conservation Resource Management Plan. These areas shall include agriculture, hillsides, ridges, valleys, canyons, beaches, lagoons, lakes and other unique resources that provide visual and physical relief to the cityscape by creating natural contrasts to the built-up, manmade scene. C.7 Assure that where feasible from an environmental standpoint, developments near or adjacent to bodies of water, provide open space that has public access to and views of the water. C.17 Prevent incompatible development of areas that should be reserved or regulated for scenic, historic, conservation or public health and safety purposes. C.18 Conserve and encourage the use of appropriate forms of vegetation and sensitive grading techniques needed to: (a) prevent erosion, siltation and flooding, (b) protect air and water resources, and (c) protect and enhance visual resources. C.19 Preserve natural resources by: protecting fish, wildlife, and vegetation habitats; retaining the natural character of waterways, shoreline features, hillsides, and scenic areas and viewpoints; safeguarding areas for scientific and educational research; respecting the limitations for air and water resources to absorb pollution; encouraging legislation that will assist logically in preserving these resources and, protecting archeological and paleontological resources. Trail/Greenway System Implementing Policies and Action Programs C.S Provide greenway linkages from major recreational/open space areas to other areas of activity, including, but not limited to, residential neighborhoods, places of employment, parks, schools, libraries, and viewpoints. Parks and Recreation Element. The intent of the Parks and Recreation Element is to provide the policy framework by which the City will plan, develop, and provide quality active and passive park facilities, trails and recreational programs to ensure that the residents, tourists, and employees of Carlsbad are afforded the opportunity to enjoy optimum leisure experiences. Park Development Implementing Policies and Action Programs C.lO Provide, if feasible, a Carlsbad Trail System to be owned and maintained by the City, and wherever possible, the trail system shall be used to provide linkage between park facilities. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 12 Circulation Element. The Circulation Element for the City of Carlsbad is a comprehensive plan for the circulation of people, goods, energy, water, sewage, storm waters, communications, and services. The City contains many scenic and historical areas traversed by existing and proposed roadways. From an aesthetic, environmental, and historical perspective, it is important to preserve as much of the natural qualities of these areas as possible in order to maintain the distinctive character of the City. In previous versions of the General Plan, the City maintained a separate Scenic Roadways Element to accomplish the task of preserving and enhancing the scenic quality of the City. Changes to State law in 1981 eliminated the mandatory inclusion of a Scenic Roadways Element within the General Plan. In an effort to reduce the number and complexity of elements within the City's General Plan, the goals, objectives, policies, and action plans necessary to preserve the scenic quality of roadways within the City have been retained, but have been incorporated into the Circulation Element. Scenic Roadways Implementing Policies and Action Programs C.1 Implement the policies, standards and guidelines contained within the Carlsbad Scenic Corridor Guidelines. C.2 Establish four categories of scenic corridors and designate streets to be included within those categories as follows: Community Theme Corridors -connect Carlsbad with adjacent municipalities and present the City of Carlsbad to persons entering and passing through the community. Community Theme Corridors include: El Camino Real Carlsbad Boulevard Palomar Airport Road La Costa Avenue Melrose Drive Railroad Corridor-presents the City of Carlsbad to people passing through the City by rail. The only Railroad Corridor is: Atchison Topeka & Santa Fe Railroad. C.S Include roadways as scenic routes which provide significant views of the ocean, lagoons, open space lands, back country and urban activity. C.G Enhance and preserve the natural and developed environments along each designated scenic route. C.ll Develop guidelines to improve the visual quality of the corridor adjacent to the Atchison Topeka and Santa Fe Railway. Carlsbad Community Vision The City Council, community leaders, and City staff initiated "Envision Carlsbad" to engage the entire community in a process of envisioning and planning for the future. The Carlsbad Community Vision (Vision) reflects the community's aspirations for Carlsbad's future. The Vision is a clear summary of the vision expressed by community members during the first phase of Envision Carlsbad and is based upon Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 13 -------------------------- nine core values that were commonly expressed by the community. These values represent the qualities and characteristics of Carlsbad that community members aspire to protect, maintain, improve, change, or achieve in the future. The following core values and vision summary statements are noted in the Community Vision: Small Town Feel, Beach Community Character, and Connectedness Enhance Carlsbad's defining attributes-its small town feel and beach community character. Build on the city's culture of civic engagement, volunteerism, and philanthropy. Open Space and the Natural Environment Prioritize protection and enhancement of open space and the natural environment. Support and protect Carlsbad's unique open space and agricultural heritage. Access to Recreation, and Active, Healthy Lifestyles Promote active lifestyles and community health by furthering access to trails, parks, beaches, and other recreation opportunities. Walking, Biking, Public Transportation, and Connectivity Increase travel options through enhanced walking, bicycling, and public transportation systems. Enhance mobility through increased connectivity and intelligent transportation management. City of Carlsbad Landscape Manual The purpose of this landscape Manual is to aid applicants, qualified professionals, and residents in understanding the City's policies, programs, and requirements for landscaping, and to provide guidance for implementation of Carlsbad Municipal Code Chapter 18.50 (Water Efficient landscape Ordinance [WELO]). The City's WElO implements the State of California Water Conservation in landscaping Act to reduce water use associated with irrigation of outdoor landscaping by setting a maximum amount of water to be applied to landscaping and by designing, installing and maintaining water efficient landscapes not to exceed the maximum water allowance. This manual applies to all public and private developments which require submittal of landscape plans in conjunction with a building permit, grading permit or discretionary permit. In general, landscaping shall: o Enhance and be compatible with the positive character of existing neighborhoods and Carlsbad as a whole. o Maintain and enhance the public's health, safety, and welfare through proper design, selection, and location of plant materials and other landscape features. o Incorporate native and drought tolerant plant materials whenever possible. o Ensure that invasive or noxious plants are not used. o Feature ground cover, shrubs, and trees to screen elements of unsightliness and screen/soften new improvements. o Provide privacy where appropriate. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 14 o Accentuate and enhance architecture. o Provide and enhance opportunities for outdoor recreation, relaxing and eating. Streetscape program policies include the following: o Landscaping shall accentuate positive, natural, historical, and architectural elements of Carlsbad. o Landscaping shall be designed toward a goal of providing a pleasing and safe vehicular and pedestrian experience. Scenic Corridor Guidelines The City of Carlsbad's Scenic Corridor Guidelines, dated July 1, 1988, is intended to expand the City's Landscape Manual as well as incorporate the goals of the Land Use and Scenic Highways Elements. These objectives include preserving unique City resources, related to major arterials both existing and planned. The purpose of this document is to identify streets within the City to be designated as scenic corridors, and to suggest ways to preserve and enhance the character of those streets. According to the Scenic Corridor Guidelines, the project corridor is designated as a Community Theme Corridor and a Major Entry Monumentation. Visual amenities identified within the project corridor include visual interest of on-going recreational activity (e.g., bicycling), the Buena Vista Lagoon and related wildlife, and adjacent public parks). Designated scenic vistas are identified looking northwest and north, across the Buena Vista Lagoon. Specific goals identified along the Community Theme Corridor for Carlsbad Boulevard include the following (as applicable to the project corridor): Enhance the unique character of the street by designating a natural beach-oriented theme for the route (located outside of the downtown area). Enhance the visual quality of the street by encouraging appropriate theme oriented landscaping and street furniture within the corridor. Provide landscaping material, theme trees, and theme tree spacing along the corridor which are best suited to avoid blocking views from the roadway, particularly to the ocean. Preserve the natural quality of the lagoon areas by providing little, if any, additional landscaping in those areas of the corridor adjacent to a lagoon. Encourage special landscape setbacks to create an open feeling along the developed portions of Carlsbad Boulevard. The project corridor is also designated for Major Entry Monumentation. The purpose of the monumentation is to provide identity, a feeling of welcome, and a sense of arrival to the City. The designs include symbolization of natural features found in Carlsbad (lagoons, etc.). The Major Entry Monumentation designation specifically occurs at the highest visibility and highest use locations. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 15 City of Carlsbad Local Coastal Program The City of Carlsbad Local Coastal Program (Carlsbad LCP) includes two main components: a land use plan and related implementing measures including a zoning map and zoning ordinance. In particular, the local coastal land use plans include measures specifically intended to protect natural open space resources, scenic resources, agricultural lands, and public access rights. Policy 4-4 (Removal of Natural Vegetation) -When earth changes are required and natural vegetation is removed, the area and duration of exposure shall be kept at a minimum. Policy 7-13 (Visual Access)-Visual access over more than 80 percent of the Carlsbad coastline is unobstructed because of public ownership. No future public improvements which would obstruct this visual access shall be permitted. City of Oceanside Oceanside General Plan The Oceanside General Plan serves as a policy guide for determining the appropriate physical development and character of Oceanside. Land Use Element. The Land Use Element and associated Land Use Map are guides to land use planning within the City of Oceanside and affect many of the issues addressed in other General Plan elements. The element also addresses the relationship between development, community enhancement, and natural resource management. Policy 1.200: Street hardware including but not limited to: • Mailboxes or multiple box units (MBU's) • Bus shelters, bike racks, benches, etc. • Fire hydrants • Utility poles and boxes • Street lighting • Parking meters • Road signage • Other ancillary facilities shall not detract, but shall enhance, the streetscape and adjoining land uses and community. Policy 1.11C: Where feasible, common open space shall be integrated with adjacent common or public open spaces, trails, or bicycle transit systems to promote an open space or trails network throughout the City. Policy 1.22C: Drought-tolerant materials, including native California plant species, shall be encouraged as a landscape type. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 16 Policy 2.741: Emphasize trail linkage opportunities between community, County, and State open space systems and recreation facilities and throughout those private developments where deemed both suitable and appropriate. Policy 3.21A:The City shall encourage the preservation of significant visual open areas. Circulation Element. The purpose of the Circulation Element is to ensure that the City's Master Transportation Plan and its implementation policies and programs will safely and efficiently accommodate the growth envisioned in the Land Use Element. Circulation Element Policy B: The City shall provide necessary facilities to obtain a balanced use of all travel modes to address the transportation needs of all ages and to provide mobility for a variety of trip purposes. The City shall generally recognize the following priorities for new transportation facilities: vehicular, transit, pedestrian, bicycle, equestrian, and freight movement. Roadway Improvements Policy M: The City shall require that those responsible for street improvements replant, replace, or install new landscaping pursuant to existing City policy along all new roadways, or on those that have been redesigned and reconstructed. Transportation Demand Management Policy B: Policy C: Policy D: Consider the use of bicycles during the design and implementation of the street system. Update and maintain a bikeway plan as part of the Recreational Trails Element. These routes shall connect residential areas with schools, parks, recreation areas, major employment centers, and neighborhood commercial areas. Require pedestrian facilities along all streets in other locations throughout the City as noted in the Recreational Trails Element. Nonmotorized Transportation Policy A: Policy C: Policy F: Class II Bikeways (on-street bike lanes) shall be planned into all prime, major, and secondary arterials. The City shall cooperate with other governmental agencies to provide connection and continuation of the Pacific Coastal Bicycle Corridor and the San Diego-Anza Borrego Bicycle Corridor as identified in the Regional Transportation Plan of San Diego County. Development of the Bicycle Circulation System shall be consistent with the implementation of the City's Recreational Trails Element. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 17 Environmental Resource Management Element. The Environmental Resource Management Element is a workable program designed to conserve natural resources and preserve open space. This element encourages the preservation of significant visual open spaces when such preservation is in the best interest of the public health, safety, and welfare. Community Facilities Element. The Community Facilities Element addresses the community's need for public services and facilities. Parks and Recreation Facilities Policy 1.2: The City of Oceanside shall assist in the coordinated planning, development, and maintenance of unique regional amenities within and adjacent to the community. These amenities include: Guajome Regional Park; the Oceanside Public Beach Area; the proposed greenway and bikeway along the San Luis Rey Corridor; and the Buena Vista Lagoon. This regional recreational and open space amenity system shall be planned, developed, and implemented in coordination with the existing system of parks throughout the City of Oceanside. Circulation System Policy 12.7: The City shall encourage the comprehensive development of on-and off-street bicycle routes throughout the community. This shall include the provision of bicycle-bus stop locations and bicycle parking lockers at Park and Ride areas. Policy 12.8: The City shall encourage the comprehensive development of pedestrian sidewalks, pathways, and trails throughout the community. Recreational Trails Element. The purpose of the Recreational Trails Element is to state the specific goals and objectives that will improve the operation and design of the City's trail system for bicycles, pedestrians, and equestrians. This element is a sub-element of the Circulation Element. Mission Statement Policy 1.2: Encourage incorporation of pedestrian use within the north-south rail-trail during the planning and design process. Policy 1.6: Design trails which are aesthetically pleasing, incorporating landscaping, buffering, scenic overlooks, and historic elements where possible to provide a variety of experiences. Bicycle System Policy 2. 7: Prioritize the development of the three major Class I trails: the San Luis Rey River, north-south rail-trail, and east-west rail-trail. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 18 Pedestrian System Policy 8.4: Provide links and associated signage to pedestrian amenities such as Buena Vista Lagoon and Calavera Lake in adjacent cities, the beach, and public parks. Policy 8.5: Emphasize the positive linkage of the Oceanside Public Beach Area with the San Luis Rey Open Space Corridor and the Buena Vista Lagoon and Nature Center. City of Oceanside Local Coastal Program The City of Oceanside Local Coastal Program (Oceanside LCP) (adopted May 8, 1985) includes two main components: a land use plan and related implementing measures including a zoning map and zoning ordinance. In particular, the local coastal land use plans include measures specifically intended to protect natural open space resources, scenic resources, agricultural lands, and public access rights. Visual Resources and Special Communities The Coastal Act requires that the visual qualities of the Coastal Zone be protected and that new development be sited and designed to be visually compatible with the character of surrounding areas. The Buena Vista Lagoon is a natural aesthetic resource. The City's grid street pattern allows public views of this water body from several vantage points. The fishing area at Buena Vista Lagoon is considered to be a vista point in the City. Policy 1: In areas of significant natural aesthetic value, new developments shall be sub ordinate to the natural environment. Policy 3: All new development shall be designed in a manner which minimizes disruption of natural land forms and significant vegetation. Policy 4: The City shall maintain existing view corridors through public rights-of-way. Policy 5: The City shall encourage development of viewing areas at the Pacific Street Linear Park, the Buena Vista Lagoon Fishing area, and from the frontage road between Highway 78 and the inland portion of Buena Vista Lagoon. Policy 6: Open space buffers or greenbelts shall be provided along major scenic corridors. Policy 8: The City shall ensure that all new development is compatible in height, scale, color, and form with the surrounding neighborhood. Policy 13: New development shall utilize optimum landscaping to achieve the following effects: a. Accent and enhance desirable site characteristics and architectural features. b. Soften, shade, and screen parking and other problem areas. c. Frame and accent (but not obscure) coastal views. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 19 d. Create a sense of spaciousness, where appropriate. e. In areas where significant natural vegetation exists, replant, as appropriate, developed areas with native drought-tolerant species. Policy 14: In areas where significant "theme" architecture has been established, the City shall encourage continuation of this theme. Such theme areas include: a. St. Malo (and vicinity)-French Provincial style. b. South Hill Street-Creative use of wall murals, with "beach" motif and muted colors (examples: Unique Expressions, Brother's Three, and Oceanside Fish Market). c. Buena Vista Lagoon -Rustic rough sawn wood exteriors, with pitched roofs and heavy beams. Viewer Awareness/Exposure/Response Motorists Motorists traveling through the project corridor are anticipated to have a moderately high viewer sensitivity to the project (as the on-site roadway is designated as a scenic corridor and visible resources include the Buena Visual Lagoon and associated vegetation and partial views to the Pacific Ocean). On- site roadways that have direct and indirect views to the project include Carlsbad Boulevard/Coast Highway, State Street, and Laguna Drive. Motorists within the project corridor have short duration views to proposed improvements. These viewers will have a moderately high visual awareness of the project features. The resultant viewer response of motorists is anticipated to be moderately high. Local Street Users Carlsbad Boulevard/Coast Highway and State Street are heavily traveled roadways that provide access to the commercial, institutional/recreation, open space, and residential uses adjacent to the project area. Local street users (i.e., bicyclists and pedestrians) have a high sensitivity to the project and direct, moderate duration views to the project site. Visible resources include the Buena Visual Lagoon and associated vegetation and partial views to the Pacific Ocean. It should be noted that pedestrians and bicyclists are not easily connected through the project corridor, as sidewalks and bike paths are afforded within the northern and southern portions, but are lacking along the portion of roadway that trends over the Buena Vista Lagoon. Local street users are anticipated to have a high awareness of the project. The resultant viewer response of local street users is anticipated to be high. Community Residents Numerous residents live within the project area (along Carlsbad Boulevard/Coast Highway, State Street, and Laguna Drive) and have a high sensitivity to the proposed project. Visual resources include the Buena Visual Lagoon and associated vegetation. According to the City's General Plan, residents are concerned with the key issues of open space preservation and the community character associated with the Buena Vista Lagoon. Residents will have limited, long-duration views (depending on the location and orientation of each residence) to the project corridor. Viewer awareness of these changes is moderate, as most residents will only have limited views to portions of the proposed improvements. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 20 The overall resultant viewer response of community residents in the project corridor is anticipated to be moderately high. Recreational Users Recreational users at Maxton Brown Park, BVAS Nature Center, and the Buena Vista Lagoon as well as regional recreational bicyclists are afforded views to the project corridor. Viewer sensitivity is high, as visual resources include partial views to the Pacific Ocean and views to the Buena Visual Lagoon and associated vegetation. Recreational users will have direct, moderate duration views to the project corridor. Recreational users are anticipated to have a high awareness of the project. The resultant viewer response of recreational users is anticipated to be high. Commercial Area Emplovees and Customers A variety of commercial uses, including from general commercial, service commercial, and neighborhood commercial uses, are located in the vicinity of the project site (particularly in the northern and southern portions of the project corridor). Viewer sensitivity is moderate, as views to the Buena Visual Lagoon and associated vegetation and partial views to the Pacific Ocean are afforded. Commercial employees and clientele will likely have short to moderate duration views and moderate awareness of the project. The resultant viewer response of commercial area employees and customers is anticipated to be moderate. Viewer Response As depicted in Table 1, Viewer Response, it is anticipated that the average response of all viewer groups will be moderately high. Moderate VISUAL IMPACT Table 1 Viewer Response Moderate/Short-Moderate Duration Moderate Visual impacts are determined by assessing changes to the visual resources and predicting viewer response to those changes. Implementation of the proposed project will result in the development of Class I, Class II, and Class Ill bike paths along the project site as well as a new roundabout located at the intersection of Carlsbad Boulevard and State Street. A new 10-foot wide paved (asphalt) Class I bike path will extend along, and to the west of Carlsbad Boulevard/Coast Highway. A new 5-foot wide paved (asphalt) Class II bike path will extend along, and to the east of Carlsbad Boulevard/Coast Highway. Proposed bike paths will transition into either the existing paved Class Ill bike paths available at the terminus of the project site or future proposed segments of the Carlsbad Coastal Rail trail. A concrete Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 21 barrier (3-feet in height, 20-feet long, with 3-foot breaks in between) will be situated between the proposed Class II and Class Ill bike paths and Carlsbad Boulevard/Coast Highway along the project corridor. A single-lane roundabout will be constructed at the intersection of Carlsbad Boulevard and State Street. Concrete bike paths will be provided connecting the proposed bike paths through the new roundabout feature. Pedestrian/bicycle crosswalks and associated signage will be constructed at the roundabout. New native and non-native, drought tolerant shrub and grass plant species will be installed along the proposed bike paths and at the new roundabout. One Torrey Pine tree will be installed in the center of the proposed roundabout. Short-Term Construction Impacts Implementation of the proposed project will expose sensitive viewers to proposed construction activities. Construction-related vehicle access and staging of construction materials will occur within roadway R/W along the length of the project site and at Maxton Brown Park. The project construction will expose surfaces, construction debris, equipment, and truck traffic to nearby sensitive viewers. Construction vehicle access and staging of construction materials will be visible from motorists traveling along the project site as well as residents and recreational users located in the project vicinity. Recreational users at Maxton Brown Park will be temporarily impacted during construction. These impacts are short-term and will cease upon project completion of construction (which is anticipated to take approximately nine months). Adhering to Caltrans Standard Specifications for Construction will minimize visual impacts through the use of opaque temporary construction fencing that will be situated around construction staging areas. Further, implementation of Minimization Measure (MM-2) will require that upon completion of construction, proposed off-site staging areas (i.e., Maxton Brown Park) be returned to the pre-construction condition. Thus, impacts in this regard will be reduced to less than significant levels. Long-Term Operational Impacts Implementation of the proposed project will result in moderately low changes to the project corridor. The project will result in new pedestrian/bicycle-related transportation uses along the existing roadway network within the project corridor. Public views of new bike paths (ranging from striped bike lanes in the road, to separated paved bike lanes along the road), a new roundabout, and proposed signage and landscaping will be afforded. A new concrete barrier (3-feet in height, 20-feet long, with 3-foot breaks in between) will also be visible along Carlsbad Boulevard/Coast Highway through the project corridor. Proposed project changes will result in a positive increase in visual character/quality, as the new separated bike paths and roundabout feature will result in an increased pedestrian scale environment (compared to the existing conditions), and new landscaping will soften the visible hardscape (further increasing visual intactness and unity). Minimization Measure (MM-1) will also reduce the monotonous appearance of the new barrier feature through the use of architectural treatment(s). Views from stationary viewers (i.e., residents and commercial users) will have partial views to the new paved areas, as well as new landscaping features. These viewers will have a moderate to long duration of view with a moderate to high viewer sensitivity. The anticipated viewer response to the project from these viewers is moderate to moderately high. However, as the project will result in overall increased character/quality in the project corridor, these resultant impacts are less than significant. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 22 Recreational users will also have direct, moderate duration views toward the project corridor, with a high viewer awareness and anticipated high viewer response. Altered views will include increased hardscape as well as new landscaping features. Overall, project implementation will result in an increased pedestrian scale, as seen from these viewers. Further, implementation of the proposed planting plan and Minimization Measures MM-1 and MM-2 will soften the visible hardscape and minimize site disturbance as a result of construction. With implementation of the recommended Minimization Measure, impacts as seen from recreational users will be reduced to less than significant levels. Changes along the project corridor, visible by motorists, will include the new roundabout and associated signage, new paved areas, as well as new landscaping and a new barrier. Motorists are anticipated to have a moderately high visual response to the proposed changes in the project corridor. However, with implementation of the proposed planting plan and Minimization Measures MM-1 and MM-2, impacts as seen from motorists will be reduced to less than significant levels. Scenic Vistas Stationary public views afforded across the Buena Vista Lagoon (e.g., public views from Maxton Brown Park looking across the Buena Vista Lagoon) are considered to be scenic vistas. Although portions of the proposed improvements may be visible from these views, these public views do not include direct views to the project site. Portions of the proposed roadway striping, signage, and landscaping may be visible. As these project features will appear compatible with the existing transportation uses and proposed landscaping will appear compatible with the existing vegetation at the Buena Vista Lagoon, impacts in this regard are less than significant. Further, temporary construction impacts will occur at Maxton Brown Park as a result of construction staging. During this time, portions of the park will not be accessible to the public. However, these impacts are short-term (anticipated to take approximately nine months) and will cease upon completion. With implementation of the Minimization Measure MM-2, the project will be required to restore all off-site staging areas to the pre-construction condition. Thus, impacts in this regard will be reduced to less than significant levels. The City of Carlsbad considers Carlsbad Boulevard to be a scenic corridor (designated as a Community Theme Corridor). The goal of this scenic corridor is to connect Carlsbad with adjacent municipalities and present the City of Carlsbad to persons entering and passing through the community. The project corridor trends through both the cities of Carlsbad and Oceanside. The proposed project will construct Class I, Class II, and Class Ill bike paths along Carlsbad Boulevard, with the intent of connecting bicycle and pedestrian users to the cities of Carlsbad and Oceanside, while also providing access to the Buena Vista Lagoon and BVAS Nature Center. The project will also result in a roundabout feature at the intersection of Carlsbad Boulevard and State Street. Proposed landscaping will minimize the visible hardscape proposed. The planting plan, as approved by the City of Carlsbad, is consistent with the City's goals for the project corridor with regard to the designated Community Theme Corridor. The proposed barrier will be required to install architectural treatment (consistent with the community character desired by the Scenic Corridor Guidelines. As only one tree (at the proposed roundabout feature) is proposed, open views across the Buena Vista Lagoon will remain upon project completion. Last, project implementation will preserve the existing monument signage located at the intersection of Carlsbad Boulevard and State Street, which allows the project to be consistent with the goals of the Scenic Corridor Guidelines (with regard to Major Entry Monumentation). Thus, with implementation of Minimization Measure MM-1, impacts in this regard will be reduced to less than significant levels. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 23 State Scenic Highways No designated state scenic highways are present in or near the project corridor. The nearest designated eligible scenic highway is Interstate 5 (1-5), located greater than 0.5-mile west of the project corridor.2 Views to the project corridor from 1-5 are not readily available. No officially designated scenic highways are located within the project area. Thus, the proposed project features will not substantially degrade scenic resources along a state designated scenic highway, as the project site is not readily visible from I- S. No impact will result in this regard. Visual Character/Quality Project implementation will result in proposed paved bike path and a new roundabout feature within the project corridor. Proposed project features will appear similar in character to the existing roadway network. Further, the proposed landscaping and implementation of the recommended Minimization Measures MM-1 and MM-2 will reduce the hardscape appearance of the barrier feature and maintain the character/quality of Maxton Brown Park. Overall, the project will result in an increase in visual character/quality in the project corridor, as the project will increase the pedestrian scale of the area, soften hardscape features, and increase the visible connectivity through the corridor (as viewers move from the City of Carlsbad into the City of Oceanside). Thus, with implementation of MM-1, impacts in this regard will be reduced to less than significant levels. Light and Glare The project area currently experiences lighting typical of urban areas. Primary sources of light and glare in the area include motor vehicle headlights, streetlights, parking lot and exterior security lighting, interior building lighting, and illuminated signs. No nighttime construction will occur as part of the proposed project. Thus, no short-term construction lighting impacts will result. However, implementation of the proposed project will install new lighting fixtures along the proposed roundabout feature. Lighting fixtures will be compliant with existing City Code. The project will also be required to shield lighting in a manner that will avoid direct and indirect glare to any off-site properties (Minimization Measure MM-3). Proposed lighting will provide the minimum lighting necessary to maintain security/safety of the proposed roadway right-of-way areas. No new lighting signals and vehicle headlights will result with implementation of the proposed project. With implementation of the recommended Avoidance Measure MM-3, impacts in this regard will be reduced to less than significant levels. No Build Alternative With implementation of the "No Build" Alternative, the proposed project will not be constructed. No other improvements are planned for the project corridor. Thus, the project corridor will remain in its existing condition. The proposed Class I, Class II, and Class Ill bike paths and roundabout feature will not be constructed. The project corridor will lack pedestrian/bicycle connectivity between the cities of Carlsbad, Oceanside, as well as to the Buena Vista Lagoon, BVAS Nature Center, and M.axton Brown Park. Further, no landscaping improvements will occur throughout the length of the project corridor. 2 State of California Department of Transportation, California Scenic Highway Mapping System, http://www.dot. ca.gov/hq/LandArch/scenic_ highways/, accessed on June 19, 2012. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 24 With implementation of the "No Build" Alternative, the overall visual character/quality of the project corridor will not be improved. AVOIDANCE AND MINIMIZATION MEASURES Avoidance or Minimization Measures have been identified and can lessen visual impacts caused by the project. Also, the inclusion of aesthetic features in the project design previously discussed can help generate public acceptance of a project. This section describes additional avoidance and/or Minimization Measures to address specific visual impacts. These will be designed and implemented with concurrence of the District Landscape Architect. The following measures to avoid or minimize visual impacts will be incorporated into the project: MM-1 To minimize visual impacts caused by the proposed barrier feature, aesthetic enhancements shall be implemented (i.e., color treatment, textural treatment, and/or use of material other than concrete, etc.) in order to avoid visual monotony. All aesthetic enhancements as well as any proposed street furniture, shall consider the Scenic Corridor Guidelines, and shall be determined in consultation with the City of Carlsbad Community Development Director prior to project approval and the Department District Landscape Architect during the Plans, Specifications, and Estimates (PS&E) stage. MM-2 Construction equipment staging areas shall use appropriate screening (i.e., temporary fencing with opaque material) to buffer views of construction equipment and material, when feasible. All off-site staging areas shall be returned to the pre-construction condition upon completion of construction. These conditions shall be indicated on the Final Construction Plans, as approved by the City Engineer. MM-3 All proposed lighting shall be shielded/directed in a manner that will avoid direct and indirect glare to any off-site properties. Proposed lighting shall provide the minimum lighting necessary to maintain security/safety of the proposed roadway right-of-way areas. All lighting shall be noted on the Final Plans, as approved by the City Engineer. CONCLUSIONS Implementation of the proposed project will result in moderately low visual impacts. With implementation of the recommended Minimization Measures, impacts in this regard will be reduced to less than significant levels. REFERENCES California Department of Transportation, Landscape Architecture Program, http://www.dot.ca.gov/hq/LandArch/via_outlines/index.htm, accessed in June 2012. California Department of Transportation, Standard Environmental Reference, Chapter 27: Aesthetics and Visual Review, http://www.dot.ca.gov/ser/vol1/sec3/community/ch27via/chap27via.htm, last updated February 3, 2012. City of Carlsbad, City of Carlsbad General Plan, as amended. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 25 .. .. ' . City of Carlsbad, City of Carlsbad local Coastal Program, dated 1996 (as amended). City of Carlsbad, Carlsbad Community Vision, dated November 2009. City of Carlsbad, Open Space Management Plan, dated May 2004. City of Carlsbad, landscape Manual Policies and Requirements, dated February 2012. City of Oceanside, City of Oceanside local Coastal Program, adopted May 8, 1985. City of Oceanside, Oceanside General Plan, dated 2002. RBF Consulting, Planting Plan, dated June 25, 2012. U.S.D.O.T., Federal Highway Administration, Office of Environmental Policy, Visual Impact Assessment for Highway Projects, January 1988. Visual Impact Assessment for Carlsbad Coastal Rail Trail, Reach 1 Page 26