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HomeMy WebLinkAbout1977-10-18; City Council; 5231; Application of Council Policy No. 17CITY OF CARLSBAD AGENDA BILL NO. x5"«?s3 / Initial: ^j. Dept. Hd ^uO>_ <O DATE: October 18. 1977 DEPARTMENT; Engineering • ' C. Mgr. t: Subject: APPLICATION OF COUNCIL POLICY NO. 17 (PUBLIC FACILITY AVAILABILITY' LETTERS) TO -MINOR SUBDIVISIONS Statement of the Matter The City Engineer has been assigned certain responsibilities of the City Council in processing minor subdivisions. Council Policy 17 requires that public services be available concurrent with need. The San Marcos Unified School District does not write availability letters on individual projects, nor do they have a policy on school fees. The City Engineer proposes to carry out his responsibilities in processing minor subdivisions (where school availability letters are not provided) by making a determination as to whether or not a proposed minor subdivision can be served by the school district. It is the City Engineer's deter- mination that a minor subdivision to convert an existing R-2 duplex into a 2-unit condominium project will have no measurable effect on the student population of the SMUSD and, therefore, is in compliance with Council Policy No. 17. Exhibit: 1. Memorandum from City Engineer with attachments dated October 14, 1977. Recommendations: Adopt a motion that the City Council concurs with the City Engineer's determinations as outlined in Exhibit 1. Council Action: 10-18-77 Council concurred with the City Engineer that Public Facilities Element, including schools, should be administered by the City Engineer for Minor Subdivisions. MEMORANDUM - October 14, 1977 TO: City Manager FROM: City Engineer SUBJECT: Application of Council Policy No. 17, (Adequacy of Public Services in Connection with Development Proposals) to Minor Subdivisions. Background Council Policy No. 17 was adopted on October 16, 1973 (see attached) "to ensure that all necessary public services will be available concurrently with need." The Policy requires, "That the proponent of the zoning, rezoning, development, or redevelopment present evidence satisfactory to the City Council that all required public services, including schools, will in fact be provided concurrent with the need." With respect to school facilities, this Policy was implemented by accepting a letter from the appropriate school district indicating that the proposed development could be served by the school district. At least one school district (but not all) adopted procedures whereby a "letter of availability" was conditioned upon guarantees by the developer that temporary school class- rooms would be provided to handle the students generated by the development. The City Council has approved many major and minor subdivisions since then, each of which provided a letter of availability. On April 15, 1975, as part of a major revision to the Subdivision Ordinance, the Council enacted Section 20.24.100 which states, "The responsibilities of the City Council "...are assigned to the city engineer with respect to those tentative parcel maps filed pursuant to this chapter." During the 2-1/2 years this ordinance has been in effect the City Engineer has accepted a letter of availability from the appropriate school district on all minor subdivisions that have been processed. Up until recently, the overwhelming majority of minor subdivision applications has been from the Carlsbad Unified School District area, and the developers have been able to provide acceptable letters of availability from the school district. Recently a large number of building permits have been issued for "duplex" units on existing, buildable R-2 lots in the La Costa area and within the San Marcos Unified School District (SMUSD). Many of the permit holders have indicated their intention to convert these units to 2-unit condominiums. Staff has determined that such a conversion requires a parcel map (minor subdivision). One applicant has 53 of these "duplex to condominium conversion" tentative parcel map applications pending. MEMO to City Manager -2- October 14, 1977 Attachment 2 is a form letter dated May 9, 1977 which SMUSD has been providing to all developers who have requested a school availability letter. In staff's opinion this letter does not satisfy Council Policy No. 17. Attachment 3 is a letter dated October 3, 1977 from SMUSD Superintendent of Schools, Ralph E. Kellogg, stating that SMUSD has no policy on school fees and onlysendsout housing information (Attachment 2) to appropriate agencies when requested. Attachment 4 is a letter dated October 10, 1977 from SMUSD indicating a concern of the school district about annexations to cities where higher land use densities are approved (as opposed to County land use densities) and where there are no provisions for "..the collection of fees from subdividers to offset the cost of classrooms." Because the school district will not indicate whether or not various develop- ment projects within the City can be served by the district, staff will be making an independent analysis in order to make findings consistent with Council Policy No. 17 (see Attachment 5). As can be seen on Attachment 5, it is our determination that the conversion of a duplex unit on an R-2 lot to a 2-unit condominium project will have no signi- ficant effect on the student population of the schools. Accordingly, it is my intention,in processing minor subdivision applications in the SMUSD and other school districts that do not provide school availability letters, to continue to make staff determinations as to the availability of schools. Because the processing procedures we plan to carry out are interpretations of the intent of Council Policy No. 17, and because the City Engineer is carrying out the responsibilities of the City Council in these matters, I request that the City Council either concur in the actions being taken or direct an alternate course of action. Tim Flanagan City Engineer TCF:ms c: PWA City Attorney Planning CITY. OF CARLSiiAD MCCHnlC I IPOLICY STATEMEN General Subject: Adequacy of PUBLIC SERVICES in -Connection with' Devel op- Specific Subject: ment Proposals Poli iio. 17 Effecti ve D*ts 1 O/ 1 5/73 Cancellation Date S u o e r s e d e s i-I o . Copies to: City Council, City Manager, City Attorney, Department and Division Heads, Employee Bulletin Boards, Press, File BACKGROUND: In considering zoni posals for areas within insure the public health City Departments, School regarding the adequacy o ments expected to occur required public services development shows a need newly developed areas' ha schools, libraries, fire ngs. rezoning, development or redevelopment, pro- the' City, the City Council has, in order to , safety and welfare, evaluated reports from Districts, Water Districts and other agencies public services required to serve the develop- In many cases, however, "the been installed by.the time the been that residents in the ve been inadequately served v/ith access, parks, protection and other public services. within such areas have'not in fact The result has PURPOSE: will To establish be available a. policy to insure that concurrently with need.. all necessary public services POLICY: -.' ' .. •>..; -" ' Before giving approval to zoning, rezoning, development or redevel opment proposals, the public health and safety and the general welfare of the community and all its citizens require that provisions be made by the proponent of the zoning, rezoning, development or redevelopment in conjunction v/ith appropriate governmental agencies to insure: 1. . That the zoning , 'rezoning , development' or redevelopment be consistent with a master development plan for the general area' which has been reviewed by the Planning Commission and adopted by the City Council. / .--.". 2. That the development plan includes an implementation section which sets forth in detail measures which will be taken to insure that all necessary public services are. provided concurrent with need in the development. • . ' 3. That the proponent of the zon.ing, rezoning, development or redevelopment present evidence satisfactory to the City Council that all the required public services, including schools, will in b e p r o v i d e d c o n c u r r e n t w i t h t h e n e e d .f a c t Attachment 1 : , -S6'< MARCOS UNIFIED SCHOOL OISTRI 270 San Marcos Boulevard San Marcos, California 92069 TO: Board of Supervisors • • FROM: Ralph E. Kellogg, Suprintendent of Schools RE: Information Relating to Housing and Student Growth, San Marcos Unified School District DATE: May 9, 1977 The County Planning Department and other planning departments from time to time wish information regarding the availability of school housing in the San Marcos Unified School District. The information provided here is an attempt to succinctly, accurately describe the current situation in the San Marcos Unified School District regarding the (1) current housing of students-, (2) short term enrollment projections, and (3) future housing capacity. Numbers of Schools San Marcos Unified School District consists, at the present time, of four K-6 elementary schools, one 7-8 junior high, school, one 9-12 senior high school, and a new to be established continuation school. Capacities and Projections Capacity Projection thru June,1?: Alvin Dunn Elementary, K-6 Maximum, double loading Kindergarten - 555 524 Richland Elementary, K-6 Maximum, double loading Kindergarten - 613 611 San Marcos Elementary, K-6 Maximum, double loading Kindergarten - 613 . 618 Woodland Park Elem., K-6 Maximum, double loading Kindergarten - 613 786 San Marcos Jr.Hi., 7-8 Maximum - 828 737 San Marcos High, 9-12 Maximum, Regular Permanent Facilities, 900 1206 Additiona 1 Non f criiuinent Housjjiq Five additional relocatable classrooms have -been authorized and will be in place at Woodland Park School for operation during the next schoolyear. Attachment 2 Board of Supervisors May 9, 1977 . Page 2 .'The high school currently has seven relocatable classrooms on campus to accomodate the existing load. Future Housing Architectural plans are under way and funding is available for the addition •of permanent additions to house students at the high school up to 1350 in the next projected building increment. This would be completed in January of 1979. Projections are that this increment would house the then existing student population in permanent construction without use of the relocatables. A continuation school will be established in rented facilities for the coming year. It is expected that this program would accommodate approximately 30 students. Financing Available for Additional Housing Currently approved Bond Funds will be exhausted by the high school addition, relocatables at Woodland Park, and other capital outlay needs. "It is safe to say that, with the exception of the junior high school, the housing capacity of the school district for 1978-79 school year will be at capacity. A citizens ad hoc advisory committee on school housing has been appointed by the Board and is currently studying projections, housing problems and methods of finance of housing. Sincerely, Authorized Representative of the School District Ratified by the Governing Board telph/ Superintendent SAN MARCOS UNIFIED SCHOOL DISTRICT 270 San Marcos F levard San Marcos, Calirornia 92069 Phone (714) 744-4776 October 3, 1977 Mr. Paul Bussy, City Manager City of Carlsbad 1200 Elm Street Carlsbad, California Dear Paul, This letter is to inform you that the San Marcos Unified School Board of Trustees has not taken an official policy position, relative to collection of the builder's fees on developments within this district. It has directed administration to send housing information to those appropriate agencies when requested. A copy of that informtion is provided. We are not, at this time, collecting any builder*s fees. You are aware that there is recent state legislation in this area. Our Board will be analyzing this information to determine its future posture. Singe-rely, Ralph E. Kellogg Superintendent San Marcos Unified School District REKrld cc: James C. Ketcherside Attachment 3 SAN MARCOS UNIFIED 270 San Marcos Blvd. San Marcos, California 92069 Phone (714) 744-4776 .OOL DISTRICT October 10, 1977 San Diego County Board of Supervisors 335 San Diego County Administration Center San Diego, California 92101 Gentlemen: The Board of Trustees of the San Marcos Unified School District is concerned about subdividers who have been refused higher density zoning by the San Diego County Board of Supervisors requesting and receiving annexation to a contiguous city and then receiving the higher density zoning they seek from that city. This problem has had an impact on the ability of this district to house the students generated by the subdivision. The impact of this practice, if it is allowed to continue, will'be much greater in the future, particularly in those cities that do not have an ordinance permitting the collection of fees from sub- dividers to offset the cost of classrooms. The Board of Trustees of this district has requested the Local Agency Formation Commission to refer to this Board any requests for annexation of territory within the district so that the district can provide input to LAFCO on the impact of the proposed annexation on the district's capability of housing students. Very truly yours, ///.James C. KetchefVside ^'Assistant Superintendent San Marcos Unified School District JCK:ld COPY San Marcos City Council Vista City Council Carlsbad City Council ^ Escondido City Council Attachment 4 MEMORANDUM October 14, 1977 TO: James C. Hagaman, Planning Director FROM: Mike Zander, Associate Planner ^" SUBJECT: School Availability Letters for Projects in the San Marcos Unified School District It is my understanding that the San Marcos Unified School District (SMUSD) has stopped issuing school availability letters for projects within their district. Since the City is currently processing numerous projects that are at various stages of development within their district, I felt it important to analyze these projects in relationship to Council Policy No. 17 (Public Facilities Policy) and to formulate a recommendation to the City Council for future processing of these projects. I have keyed the general status of the various projects within the district to a colored map (attached). The projects, and their potential requirement for school availability letters for future City action, can be categorized as follows: Orange Areas .These are areas that are either R-l subdivisions or non-residential projects that will not require future discretionary actions by the City or the need for school availability letters. The current policy of the school district should have no effect on these areas. Gray Areas These are areas within the Master Plan boundaries of La Costa or Carrillo Ranch. As you know, we are currently processing a Master Plan Amendment for the La Costa area. We have not received an application to date to amend the Carrillo Ranch Master Plan. We will need further direction by the City Council on how to handle these Master Plan Amendments with regards to compliance with Council Policy No. 17. Blue Areas These are residential prior to development, actions should remain Red Areas areas that would have to be further The Council Policy as utilized for the same for these areas. subdivided past similar These are the residential areas that are creating the immediate question and where the emphasis of this report lies. All of these areas have previously been subdivided, some with condominium notes and some without. Physical development could potentially occur on all of these lots without any further discretionary actions by the City, thus no assurances of school availability would be necessary. However, further discretionary actions are sometimes requested. A developer may wish to consolidate two or three existing condo parcels into one for his project. Also, many developers of existing R-2 lots wish to apply a condo note to their development so that each unit can be sold individually. These types of requests require further discretionary action by the City and, therefore, must comply with Council Pol icy No. 17. There are two ways of looking at these types of actions. First of all, will the action in itself add additional impact to the school district? Theanswerisno. Based on figures from the Carlsbad Unified School District, each duplex unit will generate approximately .25 school age children (.06 elementary students per unit, .05 junior high students per unit, and .14 high school students per unit). This generation factor would apply regardless of whether or not the unit was a condominium or a rental unit. Therefore, the total number of students generated by development of the existing R-2 lots would not change by approval of a condominium map. I have attached an analysis of one such project presently before the City for approval. However, there is another way of looking at this problem. Council Policy No. 17 requires the proponents of these types of actions to "present evidence satisfactory to the City Council that all required public services, including schools, will in fact be provided concurrent with the need." In the past, staff and the Council have accepted school availability letters from each of the districts as evidence. Now we. understand that at least one of the school districts does not intend on issuing any more availability letters for projects within their district. If this understanding is correct, there are two options left for the City to follow in regards to implementing Council Policy No. 17. First of all, other forms of evidence could be developed and accepted by Council. This option would require extensive investigation, or at least involvement, by City staff to verify the alternative evidence. The second option takes the approach that the City will not approve any discretionary action without a school availability letter from the applicable school district. Both of these options overlook the fact that development of these existing lots could occur without further discretionary action and application of Council Policy No. 17 by the City and impact the school district to the same degree as would a condominium development. MZrjp -2- l/.j /; ^ Potential School Impact of Development of 53 R-2 Lots in SMUSD Elementary School Based on SMUSD figures, Alvin Dunn Elementary School will have space for an additional 31 students through June, 1978. All other elementary schools in the district will be at or exceed capacity by that time. 53 duplexes would generate approximately 7 elementary students (106 units x .06 students per unit). If all other factors are held constant. there will be capacity to serve the elementary students generated by this project. Junior High School Based on SMUSD figures, San Marcos Junior High School will have space for an additional 91 students through June, 1978. 53 duplexes would generate approximately 6 junior high students (106 units x .05 students per unit). If all other factors are held constant, there will be capacity to serve the junior high students generated by this project. High School Based on SMUSD figures, San Marcos High School will not have space for any additional students until January, 1979. Permanent additions to be completed at that time will increase school's capacity from 900 to 1350 students, present excess of students (386 students) is currently housed in seven relocatable classrooms. 53 duplexes would generate approximately 15 high school students (106 units x .14 students per unit). If all other factors are held constant, there will be capacity to serve the high school students generated by this project by January, 1979.