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HomeMy WebLinkAbout1971-05-04; City Council; 427; Proposed Parks and Open Space Bond IssueTHE CITY O F CARLSBAD,CALIFORNIA Agenda Bill No. 427 Referred To: Date: May 4, 1971 Subject:Proposed Parks and Open Space Bond Issue. Submitted By City Manager Statement of the Matter 5-4-71 A Preliminary Report for the Proposed Parks and Open Space Bond Issue has been prepared, and the City Manager will review the report at the City Council meeting. Exhibit 1. Preliminary Report dated May 4, 1971 Staff Recommendations AS No. d?7 Date: Mav 4. 1971 City Manager's Recommendation Counci1'Action 5_4_71 The City Manager reviewed the Preliminary Report in connection with the Proposed Parks and Open Space Bond Issue. It was agreed that an adjourned meeting be held to study the report in detail, and that a member from the Parks and Recreation Commission and the Planning Commission be present at the meeting. Cmn. Jardine suggested that colored slides'of th-e proposed sites be made " available in order to save time. Also that the meeting be held Saturday morning May 22, 1971 at 8:30 A.M.. — 2 — ,^lwwwKr rwn^sfl^J W^j^M^w Wt%s -2s^yn t^ift/i ^?i^-tets^yfi -,-w- Nfpv..5g^|r?S^^A| •• .-.. -*'•.**,: ~~^~^ ' 't T X" Vx,^•••?r*y^r^yiv-rrr|r'Vv^-^ ^^S^^/K®^^^^^>J«*««^>//\'r^^>»Ka^^'^ .- e^v4^^4^fev^/"r/ /; vPfc"^^^4>^^%r^> b M x-J® i PROPOSED PARKS^J^D ^^^ OPEN SPACE BOND ISSUE. MAY - 4 -1971 May 4, 1971 TO: Honorable Mayor and Members of the City Council FROM: City Manager SUBJECT: Preliminary Report - Proposed Park and Open Space Bond Issue INTRODUCTION Historically, Carlsbad residents have at various times in the history of the City considered acquisition and development of parks and open space. Our present general plan indicates a proposed park system, but little beyond active discussion has taken place to implement the general plan recommendations. Until very recent years, Carlsbad has not been in a financial position to consider a more active acquisi- tion program because of the community's lack of an industrial tax base outside the San Diego Gas & Electric Encina plant, and due to a very low per capita sales tax revenue. With the development of Plaza Camino Real and the promise of future commercial development, it is becoming apparent that we will achieve a more normal amount of revenue from the sales tax than heretofore. In addition, the development of the Burroughs Corporation facility and other light industrial firms, combined with the large amount of industrial acreage adjoining Palomar Airport, gives every indication that our industrial tax base will expand in future years. Now that the tax base of the City permits consideration being given to development of a park and open space acquisition program, this re- port is being submitted to the City Council in order that a workable program may be developed and guidelines set for a program of acquisi- tion and development. Present City-owned park and open space consists of Holiday Park with 5-1/2 acres, Laguna Riviera Park with four (4) acres, and Maxton Brown Park with approximately three (3) acres for a total of 12-1/2 acres. Holiday Park is partially improved, and Laguna Riviera and Lagoon Parks are unimproved. In addition, we have Rotary Park which enchances the central business district but is leased land, and Cannon Park which is on leased property from the San Diego Gas & Electric Company. Reasonable standards for a City the size of Carlsbad indicate that we should presently have in the parks system, 20 acres in neighborhood parks, 100 to 140 acres in a community-wide park, and from 0 to 40 acres of specialized recreation areas. Property for these parks must be acquired prior to or at the time of subdivision or development of property; otherwise we are placed in the position of acquiring devel- oped property which is prohibitively expensive. Carlsbad is fortunate Honorable Mayor ant .-mbers - 2 - May 4, 1971of the City Counc( I in that there are presently available park sites in older portions of the community which are either undeveloped or substantially under- developed. Much of this property will be developed in a reasonably short period of time if it is not placed in public ownership. The older portion of Carlsbad contains much undeveloped or under- developed land; hence, it is obvious that any sites acquired in this portion of the City should be of adequate size and distribution to serve this portion of the community when it is fully developed. Much of our contemplated community park site is wooded and ideal for a large type of community park envisioned. Again it is imperative that some of this property be placed in public ownership before the wooded areas are developed, or vandalism, fire, or simple cutting for firewood re- moves the trees from the site. LOCATIONAL CRITERIA Neighborhood parks ideally should be located adjoining or in close proximity to elementary schools. Elementary schools are usually placed so that for each portion of the City served by elementary schools there are various criteria that are met indicating a neigh- borhood park should serve the same area. Using this criteria for lo- cation of neighborhood parks encourages joint use of school and park facilities and lowers the cost of school sites as State law permits smaller school sites if they are located adjacent to neighborhood parks. Accepted criteria for the location of community-wide and other large parks indicate that they should be a minimum of 100 to 300 acres, and if possible, centrally located within the community which they serve. It is considered desirable to locate these facilities adjoin- ing public high schools whenever possible. In this large type of park which serves the total community, it is im- portant that existing vegetation and topography be considered in order to acquire the most desirable site. It is also considered wise to ac- quire acreage for such a park that is fairly distant from the developed part of the City in order that reasonably priced land may be acquired to obtain more property within funds made available for this purpose. The corridor concept for a community-wide park is presently considered the most desirable configuration. This particular design concept serves three functions that are not possible with the older rectangular con- cept. It-- (1) permits maximum utilization of property acquired by gift or by subdivision dedication. (2) allows the park to serve in a more beneficial way a sub- stantially greater portion of the community, and (3) this type of park tends to enhance property values to a much greater extent than typical design, thereby assist- ing in the creation of a tax base to support its acquisi- tion and development. Honorable Mayor and .embers of the City Council - 3 -May 4, 1971 FACILITIES TO BE CONSIDERED Contained in this report is a recommendation to acquire and/or develop eight (8) neighborhood parks for an estimated cost of $1,110,000 as indicated in the attached listing. To be included, in addition to the eight (8) neighborhood parks, is a community center at $275,000, a small park operation center for $90,000, and a community-wide park at a cost of $560,000, the cost estimates of whi ch fol1ow: NEIGHBORHOOD PARKS Haxton Brown Park Existing acreage Additional acreage Total acreage Hosp Grove Park Existing acreage Additional acreage Total acreage Buena Vista Park Existing acreage Acquire from Water Dept, Additional acreage Total acreage Holiday Park Existing acreage Additional acreage Jefferson Park Existing acreage Additional acreage Total acreage Magnolia Park Existing acreage Acquire from School Dist Total acreage Arroyo Park Existing acreage Additional acreage Total acreage Laguna Riviera Park Existing acreage Additional acreage Total acreage Neighborhood Park Total 3 acres 1 acre 4 acres 0 acre 28 acres 28 acres 0 acre 3 acres 3 acres 6 acres 5-1/2 acres 1/2 acre 6 acres 0 acre 6 acres 6 acres 0 acre . 3-1/2 acres 3-1/2 acres 0 acre 7 acres 7 acres 4 acres 0 acre 4 acres <n 11 Land Development Cos Total Cost Land - subdivis Development cos Total Cost Land - Water De Other land Development Cos Total Cost Land Development Cos Total Cost Land Development Cos Total Cost Land Development Cos Total Cost Land Development Cos Total Cost Land Development Cos Total Cost n nnn $ 40,000 ts 60,000 $100,000 ion dedication ts $100,000 $100,000 pt. $20,000 80,000 ts 100,000 $200,000 $ 30,000 ts 50,000 $80,000 $120,000 ts 100,000 $220,000 $ 72,000 ts 58,000 $130,000 $105,000 ts 95,000 $200,000 ts $ 80,000 $ 80,000 Honorable Mayor and Members - 4 - May 4, 1971 Of the City Council COMMUNITY FACILITIES Community Center Land (4 acres)$ 80,000 Development costs 35,000 Building 160.000 Total Cost $275,000 ParkOperations Center Land (2 acres)$ 40,000 Development Costs 20,000 Building 30,000 Total Cost $90,000 Community Park Land (40 acres) $400,000 Initial Development Costs 160,000 Total Cost $560,000 AQUATIC FACILITIES An Olympic or competition size swimming pool could be built for $100,000 based on a recently completed facility by the Vista School District. This includes shower facilities but is an uncovered pool. There would be no land costs as it would be placed on the Carlsbad High School site. Normal school-city sharing of costs is on a two-thirds school, one- third city basis if the pool is available for evening swimming dur- ing winter months which requires a covered pool. An uncovered pool is used for recreational swimming in the summer months only; hence participation would be on a three-fourths school, one-fourth city basis. These costs would be shared on both construction and opera- tion of the facility. Our recommendation would be for an uncovered pool at Carlsbad High School initially, and a covered facility at the new high school site, when mutually desired, depending on usage of the Carlsbad High School facility. Our $25,000 for construction could come from the bond issue (if passed) and would be paid for by accumulation over a two or three year period, or could be funded similar to a bond issue by a joint powers agreement. The funding used would probably be greatly depen- dent on how the Carlsbad Unified School District would fund their $75,000 portion. Operational costs would come from the School District's operating bud- get and from our Recreation Division budget. Costs would depend on the extent the public used the facility. Most cities make a small charge (25£ for children, 50<£ for adults) for recreational swimming. This would defray most of our operating costs; hence our main cost would be for initial construction. Swimming instruction in a recre- ation program is usually self-supporting through small registration fees. Honorable Mayor and Members - 5 - May 4, 1971 of the City Council REGIONAL PARKS Buena Vista Lagoon - State Wildlife Conservation Board responsible for additional acquisition. Alternately joint venture between San Diego County, Carlsbad and Oceanside. Near term priority with San Diego County. Lake Calavera - Development as a regional park by San Diego County in cooperation with Carlsbad. Near term priority with San Diego County near top of the county's development priorities. New federal funding available for their project. Agua Hedionda Lagoon - Development as a combination community-regional park facility jointly by Carlsbad, San Diego County, San Diego Gas and Electric and the Corps of Engineers. Near term priority with San Diego County. Priority with Carlsbad dependent on bond issue. Batiquitos Lagoon - Development as a regional park facility by San Diego County. Also has near term priority with the county. Carlsbad to co- ordinate with county on north shore of lagoon. GOLF COURSE A golf course has also been considered. This requires some 125 acres for a regulation 18-hole facility and is beyond the ability of a City of our size to finance at the present time. In the future, as the City grows, a golf course may be considered depending on the rate of growth of the community. Probably the most practical way to develop a regula- tion 18-hole golf facility for Carlsbad would be in cooperation with a major subdivider and in conjunction with a quality, golf course-oriented, residential development. Due to the history of private golf courses be- ing subdivided after a number of years, any privately owned and/or oper- ated golf course should have some provision for eventual revision to pub- lic ownership. DESIGN CRITERIA Each neighborhood park would obviously have trees, shrubbery and turfed areas. Most would have "tot lots" and eventually restrooms. Exact de- signs and other possible facilities such as basketball courts, tennis courts, soccer fields, baseball diamonds, play areas, picnic areas, etc. v/ould vary from site to site. Meetings would be held separately on each neighborhood park with residents of the service area invited to indicate their preferences. Desires of the neighborhood, w.ithin available funds, v/ould be the major determinant in final design. The community park again would have certain basic facilities. Input would be solicited from interested groups such as Boy Scouts, Girl Scouts, Sea Scouts, Campfire Girls, Boys Club, Girls Club, P.T.A.s, service clubs, etc. relative to the needs of their groups. Of course, interested individual citizens would be invited to participate. This would be the site for activities taking large areas such as hiking, rid- ing, etc. Honorable Mayor and Members - 6 - May 4, 1971 of the City Council FINANCE There are many ways to finance the acquisition and development of public park and open space areas. Carlsbad could consider a pay-as- we-go program, but this program would prohibit large property acqui- sitions, making acquisition of a community-wide park dubious. It would also probably restrict neighborhood park development to pres- ently owned sites and new sites in conjunction with subdivisions; hence, would not serve the entire community. A park and open space bond issue would allow acquisition and development of a total park and open space system at present day prices and would benefit every residential neighborhood in the community. There is an excellent possibility that there would be some substantial land donations for a community-wide park concurrent with a large purchase of acreage for this purpose. The proposed program which totals $2,035,000 contemplates a major Federal open space land acquisition and development grant wherein the Federal government equally shares (50%) the cost acquisition and development. It also contemplates a Federal neighborhood facil- ity grant which would pay for 75% of the development cost of a com- munity center were it.to be located west of Interstate 5. The fi- nancing schedule would be, therefore, as follows: Item Bond Issue Federal Grants Total Neighborhood Parks $ 555,000 $ 555,000 $1,110,000 Community Center 75,000 200,000 275,000 Park Operation Center 90,000 -- 90,000 Community Park 280,000 280.000 560,000 $1,000,000 $1,035,000 $2,035,000 A one million dollar park and open space bond issue on a 20-year straight amortization basis would initially require a 15 to 18<£ tax levy permitted by the public resources code. However, the required levy would decrease each year as the assessed valuation of the com- munity increases. It should be indicated, however, that this levy would probably remain rather constant as the lessened requirements in terms of a tax rate to amortize the bond issue would be offset by increased maintenance costs as the park system becomes more fully de- veloped. Even with reasonably full development of the contemplated park and open space system, there should be a tax rate reduction after the first five to ten years. A proposed one million dollar bond issue would require taxes in the amount of approximately $11.25 annually on a home valued at $25,000. This is less than $1.00 per month or approx- imately the cost of two packs of cigarets per month. In the case of City employees and others who are paid twice a month, the cost of the system would amount to a pack of cigarets per payday. Honorable Mayor and Members - 7 - May 4, 1971 of the City Council COMMUNITY BENEFITS In addition to the recreational opportunities that a developed park and open space would provide to residents of the community and visit- ors, there are definite tangible and intangible benefits to any com- munity that possesses the parks and open space facilities that are proposed. It has been documented by independent study that the value of residential property in a community with such a system is enhanced and the marketability of residential property within the community is facilitated. This certainly is of no immediate concern to many of our residential property owners, but is a factor to be considered as a po- tential future benefit in case of transfer, plans to acquire a larger home, or in the case of the older residents when a home is to be dis- posed of so that the resident may move to a retirement unit, a condo- minium apartment, etc. It also has been demonstrated that communities with good schools and public facilities, such as libraries, parks, etc., attract residents with larger family incomes. This results in higher per capita sales volumes, and is of substantial benefit to community retailers and to the community itself through increased sales tax revenues. Industrial firms also find it easier to recruit and retain skilled technical, engi- neering, and management personnel in a community that provides public facilities of this nature. Lastly and perhaps most important, devel- oped park and open space facilities provide retention and enhancement of the environment. One only has to drive through Los Angeles and Orange counties to realize the depressing effect of wall-to-wall sub- divisions where no open space has been provided. RECOMMENDATIONS It is recommended that the City Council modify the staff's recommenda- tion by adding or deleting elements of the proposed park and open space bond issue as in your judgment make the proposal most suitable for our City. Following your changes, the preliminary report will be modified and a final report prepared. Comments of the Parks and Recreation Com- mission and the Planning Commission have been incorporated in this re- port. In reviewing the very fine presentation in the November 16, 1970 issue of U. S. News and World Report on the fate of bond issues throughout the nation, we are encouraged to believe that the trend that is demon- strated in this article, together with the interest demonstrated in this matter to date, would warrant placing this matter before the Carls- bad electorate. The U. S. News and World Report article points out that while school and public works bond issues failed dismally at the polls this November, those issues concerned with the environment received sub- stantial support. Proposed bond issues for water pollution control, development of water supplies, and park and open space acquisition were in a large measure approved by the electorate throughout the country. In noting this Honorable Mayor and Members - 8 - May 4, 1971 of the City Council trend, the Parks and Recreation Commission requests the City Council to place the park and open space bond issue on the ballot separate and apart from any other item, such as streets, etc. In terms of tim- ing, we believe it vital that some commitments be received from the Department of Housing and Urban Development on matching funds prior to submission of this matter to the voters. I believe that the avail- ability of large amounts of Federal funds to assist in this program would enhance the chance for its approval. It would also allow us to be rather definite about what is proposed to be done with the proceeds of the bond issue if it is approved, which I believe to be vital to any successful bond issue. To meet these criteria, an issue on the ballot this summer would appear to be too early to secure necessary Federal commitments, while an issue to be placed on the ballot a year from last April at the time of the regular municipal election might tend to re- duce the current interest in the matter by prolonging its considera- tion unduly. It, therefore, appears that November of 1971 would be the most appropriate date to submit the proposal to the electorate for con- si derati on. Carlsbad's per capita expenditure for Parks and Recreation in 1969-70 was $5.95, lower than every city in the county except San Marcos and Vista, both relatively new incorporations. Of the thirteen cities in San Diego County our expenditures for Parks and Recreation were 2.9% of our budget, a very conclusive thirteenth of thirteen cities. Our nearest "competitor" was Vista with 3.9%. We have, considering the population difference, 1/10 of Escondido's park acreage, 1/10 that of San Marcos, 1/5 that of Oceanside, and 1/2 that of Vista. I am certain both the electorate and the City Council would like to see these fig- ures change as soon as possible. It is recommended that the ballot contain the following questions; 1. Shall the City of Carlsbad be authorized to issue bonds in the amount of $1,000,000 to acquire park and open space facilities herein described? 2. Shall the City of Carlsbad, and the Carlsbad Unified School District, enter into a joint powers agreement to acquire and operate aquatic facilities to allow swimming instruc- tion for children of the community, and to provide recrea- tional swimming opportunities for the children and adults of the community? Jack//B. Arnold, City Manager JBA:hl Ends. /•, a a o o fc •. .5 = 350* _ _] •_" LEGEND 2M3 SINGLE FAMILY i.-...-'. .• . I MULTIPLE FAMILY :-.:-.'N;'M AGRICULTURE .'••ftVig RECREATION VACANT S. D. G. E. " RESERVOIR J SINGLE FAMILY HOUSE 3 PUBLIC SERVICE FACILITIES October 18, 1971 Mr. Perry Lamb 5171 Shore Drive Carlsbad, California 92008 •-v Dear Perry: I read with great interest your letter of the 9th of October regarding planning for Batiquitos Lagoon and I have turned it over to our Planning Department for comments and a report, ! hone to have some oertinent comments for you at an early date.. Best regards, D. II. DUNNE Mayor nn co: Planning Department for comments PERRY A. LAMB 5171 SHORE DRIVE CARLSBAD, CALIFORNIA 92OO8 (714) 729-2688 October 9, 1971 Mayor David M. Dunne City of Carlsbad Carlsbad, California Dear Mayor Dunne, For some time I have been discussing with. Jack Arnold the possibility of having the Metcalf property in the Batiquitos Lagoon area annexed to the City of Carlsbad. Assuming that this annexation will eventually occur, I find myself concerned with the possibility that pre-annexation zoning and annexation might be accomplished without benefit of an up to date General Plan for the area. The 1%5 Daniel, Mann, Johnson, and Mendenhall General Plan for the City of Carlsbad did not seriously consider land uses for Batiquitos Lagoon and cannot effectively be used as a basis for supporting or opposing any zoning in the area. The entire area south of Palomar Airport Road needs and deserves to be included in a new General Plan study. A key part of such a study would be a general policy statement regarding land uses and population densities in the Batiquitos Lagoon area. While other governmental agencies and private groups are developing ideas about what shouldn't be done with the lagoon it is important that Carlsbad develop plans as to what should be done with Batiquitos Lagoon. This is not to say that the opinions of these various groups shouldn't be evaluated according to their merits, however, I consider it both important and appropriate that the City of Carlsbad be the major moving force in determining land uses in an area destined to become a part of the city. I am certain you are aware that I stand ready to offer some ten thousand words on the subject of Batiquitos Lagoon at any time so please accept my standing offer of assistance in this worthy project. Kindest regards,