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HomeMy WebLinkAbout1978-02-21; City Council; 5342; LCP issue Identification and Work ProgramCITY OF CARLSBAD Initial: AGENDA BILL NO. jTd'f'&S .' ' ' Dept. Hd.i -—'y- • •"*— " DATE: February 21, 1978 City Atty DEPARTMENT: PLANNING City Mgr. \/Cf SUBJECT : LOCAL COASTAL PROGRAM (LCP) ISSUE IDENTUTCATIOSr AND WDRK PROGRAM NT OF" THE iMATTER Under the provisions of the Coastal Act, local jurisdictions requesting funding for the fulfillment of the planning program outlined in the Act must perform certain initial tasks (Issue Identification and Work Program) to provide a basis for the effort. The attached document represents the proposed City version of these initial tasks. There are no requirements that necessitate formal adoption of these documents prior to their submittal to the Coastal Corrrnission staff. However, City staff has submitted the Issue Identification to the public and Planning Commission for review. "The Planning Cormission forwarded the document to the Council, by minute motion, after public hearing on January 25, 1978. Staff has added the projected costs and tasks in the form of a Work Program. To receive a previously contracted $4,000 sum for preparation of the Issue Identification and 'fork Program, the City muat submit the documents to the Regional Contnission staff by February 28, 1978 EXHIBITS Memo from Planning Department to. City Manager, dated February 7, 1978 Issue Identification/Work Program RECOMMEM3ATION: " ' Staff recommends that the Council forward the Issue Identification and Work Program to the Regional Commission staff in compliance with the provisions of the Coastal Act. Council action . ' 2-21-78 The Council instructed staff to forward -the Issue Identification and Work Program to the Regional Commission Staf.f in compliance with the provi sian-s; of the Coastal Act. JCH:TH:le FORM PLANNING 73 MEMORANDUM February 1, 1978 TO: Paul Bussey, City Managi FROM: Planning Department SUBJECT: Local Coastal Program (LCP) Issue Identification and Work Program • Under provisions of the Coastal Act, the City must perform certain initial tasks to create a foundation for future planning and funding. The attached document represents the proposed City version of these initial tasks. There is no specific requirement that public hearings be held at the local jurisdiction level on the Issue Identification or Wsrk Program. Public hearings are required after the documents have been submitted to the Regional Coastal Commission. However, the staff believes that the public should be exposed to the LCP groundwork at an early stage, and therefore has submitted the Issue Identification to the Planning Commission „ (at public hearing) for review. The Commission, as a result, has forwarded the report to the Council. Staff has also included the Work .Program budget for the Council's review. A draft Issue Identification was sent to all City Departments and to approximately 20 interested agencies and. individuals. All appropriate comments received have been incorporated. Staff would like to emphasize that it is not necessary for the Council to formally act and subsequently submit an "approved" Issue Identification/ Work Program document to the Coastal Commission. The responsibility for coastal staff analysis in light of the Coastal Act requirements, rests on the Regional and State Commissions. Because specific planning tasks based on Coastal Act policies and funding for reimbursement to the City are necessitated under the Act, it seems appropriate that the Coastal Commission decide on which tasks are appropriate, given the projected costs. To receive a previously contracted $4,000 funding for Issue Identification/ Work Program preparation, the City must submit the documents to the Regional Commission staff by February 28, 1978. JCH:TH:le CITY OF CARLSBAD ISSUE IDENTIFICATION February 10, 1978 Thomas C. Hageman Richard L. Miller 1200 Elm Avenue Carlsbad, CA 92008 PH: 729-1181 Ext. 25, 26 TABLE OF CONTENTS Introduction Page 1 Issue Identification Methodology Page 2 Area Wide Description «, * Area 1 - Buena Vista Lagoon, Downtown Carlsbad, The Northern Coastal Strip and the Agua Hedionda Specific Plan Area Page 4 Area 2 - The Southern Coastal Strip Page 7 Area 3 - Palomar Airport and the Batiquitos Lagoon .Page 10 Policy Group Evaluation Agriculture « Page 12 Housing Page 15' Public Access Page 18 Recreation and Visitor Serving Facilities Page 21 • ' y Hazards . . '. j Page 24 Visual Resources and Special Communities Page 26 Environmentally Sensitive Areas Page 28 Water and Marine Resources' '. . .Page 30 Public Works Page 32 Locating and Planning New Development Page 35 Non Applicable Policy Groups .Page 39 INTRODUCTION The Coastal Act of 1976 (SB 1277 Smith), which is the latest protective measure in a series that originated with Proposition 20, delegates much of the responsibility for managing the coastal zone to local government. In the act, the legislature recognizes that, "to achieve maximum responsiveness to local conditions, accountability, and public accessibility, it is necessary to rely heavily on local government and local land use planning procedures." The act in fulfilling its stated policies and procedures, has designed the Local Coastal Program (LCP). This report, the first step in creating a comprehensive local mechanism to equitably govern and protect the coast, contains the issue identification section. 4 I V V - 1 - ISSUE IDENTIFICATION METHODOLOGY The issue identification is one of the most important components of the local coastal program for it sets a tone and direction for ensuing efforts. The purpose of the issue identification is to: X 1. Determine the applicability of the Coastal Act Policies to Carlsbad; 2. Assess the potential adequacy of local plans to meet Coastal Act requirements; and, 3. Identify any potential conflicts between local plans and Coastal Act Policies. The City of Carlsbad's issue identification is divided into two sections: 1. An area-wide description; and, 2. A policy group evaluation. - 2 - AREA-WIDE DESCRIPTION HWY 78- t= ^ cn/W6000 SCALE CITY OP CARLSBAD 1977 BUENA VISTA , 'v DATE SQUIRES DAM ^» AGUAHEDIONDA PACIFIC OCEAW ,3ATIQUITOS LAGOON r1 I , _< I COASTAL ZONE BOUNDARY AREA I- AREA 0- AREA m- BUENA VISTA LAGOON , DOWNTOWN CARLSBAD, THE NORTHERN COASTAL STRIP AND THE AGUA HEDIONDA SPECIFIC PLAN AREA THE SOUTHERN COASTAL STRIP PALOMAR AIRPORT AND BATI- QUITOS LAGOON The City of Carlsbad, which was incorporated in 1952, has a population of approximately 28,800. Major population centers within the City- are the older Northwestern and -the newer Southeastern corners. While the corporate boundaries of the City encompasses 24 square miles, the macro level planning area including some unincorporated islands consists of 36 square miles. Important north-south transportation routes inclueJ-e Interstate 5, the Atchison, Topeka and Santa Fe Railway, Carlsbad Boulevard and El Camino Real.. Important east-west routes include State Highway 78, Elm Avenue, Tamarack Avenue, Palomar Airport Road, and La Costa Avenue. Future major east-west routes that are currently complete only near freeway interchanges, are Cannon Road and Poinsettia Lane. The Carlsbad Coastal Zone boundary, including some unincorporated County area, encompasses 15 square miles and houses approximately 40% of the City's population. For purposes of this description jand the Carlsbad Local Coastal Program, the unincorporated islands will be included. The area-wide description which follows divides the Coastal Zone into three distinct areas. This will .facilitate an introduction and understanding of Carlsbad rather than to present segmented local coastal planning areas. The three areas are: Area 1) Buena Vista,. Lagoon, Downtown Carlsbad, the Northern Coastal Strip and the Agua Hedionda Specific Plan Area. Area 2) The Southern Coastal Strip. Area 3) Palomar Airport and the Batiquitos Lagoon. - 3 - •.n - V /x^ I \ I i 101 - - - Agua Hedionda Specific' Plan AREA I (MAP 2) 1 AREA 1 BUENA VISTA LAGOON, DOWNTOWN CARLSBAD, THE NORTHERN - COASTAL STRIP AND THE AGUA HEDIONDA SPECIFIC PLAN AREA (MAP 2) The Buena Vista Lagoon provides a natural boundary for Carlsbad's corporate and coastal zone limits to the north. The shoreline and water areas of the lagoon have been designated open space, *• " as a State Ecological Preserve. Hosp Grove (1), an extensive stand of eucalyptus trees, is a predominate physical feature. The lagoon serves as a receptacle for water that is channelized from the Buena Vista Creek and its tributary drainage courses. The water is fresh and is not subject to tidal flushing. A weir has created biological conditions which accommodate a wide diversity of plants and animals. The topography of the area is terraced with a flat elevation in the wetlands of the lagoon to a significant slope from the ridge section which overlooks the lagoon. East of Interstate 5, the area has remained relatively undeveloped as only a scattering of single family residences exist. West of the freeway, the density increases as the housing pattern shows a mixture of older single family homes and newer condominiums and apartments. Some of these structures are constructed on the bluff fronting on the lagoon. % V Carlsbad Boulevard, the closest major arterial to the ocean (formerly Highway 101) begins at the lagoon and extends south throughout the length of the City. While Carlsbad Boulevard provides a major access to the ocean, State Street offers an inland route to Elm"Avenue which runs through the heart of the " - ^"~"*Ss^.*«s..central business district (2). At present, plans are being •_ 4 _ formulated td revitalize the downtown section with the hopes of preserving older housing through rehabilitation and increasing the economic viability of the CBD. Immediately'north of the CBD there are General Plan categories that accommodate both professional as well as a Medium High Residential Land Use designation. South of the CBD is an area which also entails a diversity of uses. This area surrounding Chestnut Avenue and Tyler Street includes older, low cost housing, light manufacturing, professional buildings, and apartments. The neighborhood is composed of a Spanish speaking community, the elderly, and low and moderate income families (3) . The Northern Coastal strip which extends from Buena Vista Lagoon south to Agua Hedionda Lagoon is the area most densely developed in the Coastal Zone. The northern portion around Ocean Street (4) is an area of predominantly apartments (some within single family residences), condominiums, and summer ' i rentals that line both the east and west side of the street. Three city owned, maintained and posted easements providing access are within this area. The first is an unimproved access on Mountain View Drive. Provisions have also been made for access to the south shore,pf Buena Vista Lagoon. The next city-owned access is at the foot of Grand Avenue. The area between Mt. View Drive and Grand Avenue is the site of numerous access stairways that have been built to give vertical access for private developments. Lateral access, for the most part, is unrestricted except-along northern Ocean Avenue. Lastly, the , - * ^ , "*Ss*f^.. Elm Street access is the southernmost method of reaching the beach and water area. Further south on Carlsbad Boulevard, developments border the eastern side of the street and are characteristically low rise apartment complexes mixed with single family residences. The beach area west of the coastal route is controlled and maintained by the State of California (5). East of a portion of the State beach is Agua Hedionda Lagoon and surrounding plan area which is the subject of a pilot program that was approved in concept by the Carlsbad City Council on August 11, 1976. The area which encompasses the Encina Power Plant (6), the water body, agricultural lands and a privately fenced beach has been approved as a separate segment of the LCP by the San Diego Regional Coastal Commission and has been deleted from this report. For more information concerning Agua Hedionda, the reader is advised to see the Specific Plan for the lagoon and surrounding area. JI North of the Lagoon and inland is an area which is composed of older established single family residences. Tamarack Avenue, a secondary arterial provides an east-west route. While the internal roadway system is essentially complete, the linkage of Tamarack Avenue to El Camino Real is tied to the development of a City approved Tentative Tract Map. The visual access of the area and the topography of'rolling hills all give the area an orientatation toward the west and south. - 6 - ROAD AREA IT (MAP 3) AREA 2 THE' SOUTHERN COASTAL STRIP (MAP 3) Sub-area two is split practically in half by Interstate 5. Palomar Airport Road, which provides a major arterial from the western (Pacific Ocean) to the eastern (El Camino Real) boundary of the coastal zone makes a further division. The borders of area two are the ocean to the west, the Agua Hedionda Specific Plan to the north, a predominant ridge line to the east and the Ponto area to the south. In the northwestern section of area two are single family residences which line both sides of Carlsbad Boulevard. Approximately fifty-five homes front the ocean. South of the Agua Hedionda Specific Plan area are single family dwellings situated 4 along the western side of Shore Drive and Tierra Del Oro Drive. The beach below the development has light use and primarily serves local residences. The only access points consist of two locked and fenced private gates. Because these access points are located within residential areas with limited parking and no directional signing, demand for public use of these points is minimal. The light use of the beach combined with the nearness of other access points makes the area a low priority for future acquisition. On the east side of Carlsbad Boulevard, some homes are adjacent to Cannon Lake (1) which was recently dedicated to the City. The sur- rounding area to the east and south is owned by the City and the ">v State respectively.^;*Th_«|-.area under City control is vacant; however, the property controlled by the State is in agriculture. Both areas — 7 — are shown as open space on the City General Plan. Between the railroad right-of-way and Interstate 5 is a planned industrial zone that is the site of travel and regional commercial businesses. The area east of Interstate 5, along Paseo del Norte, is designated by the General Plan to be extensive regional retail. The area known as "Car Country" (2) is the location of ten new car agencies. The far eastern section of Area 2 behind Car Country is utilized <;•- / « for agriculture. \ V - 8 - South of Palomar Airport Road, and east of Carlsbad Boulevard are three relatively large mobile home parks. The inland area is comprised of a mixture of light industry and commercial buildings along Avenida Encinas. Adjacent to and west of 1-5 is the Encina Sewage Treatment Facility (3) which serves the cities of Carlsbad, San Marcos and Vista and the unincorporated communities of Encinitas and Leucadia. East of 1-5 is an;adult condominium development tract of medium density which is built on a westerly sloping hill and affords a predominate view of the ocean for many of the 500 units. Final development within the same tract is to be completed by December 1977. The southernmost section of Area 2 is represented by South Carlsbad State Beach (west of Carlsbad Boulevard), fallow agricultural fields and the Ponto area (4). At one time flower fields and truck farms, particularly tomatoes, were prevalent, However, in the last few year's, the fields have been held from production and remain vacant. Poinsettia Lane provides an on and off ramp from the freeway and access to one of the previously mentioned mobile home parks. Although it is one of the major southern interchanges, it does not offer an overpass to Carlsbad Boulevard. The Ponto area which can be characterized as an area of differing uses, contains agriculture, single family residences, commercial buildings and industrial uses side by side. The City's plans recommend phasing out of industry in favor of residential development. Lastly, the State Beach offers picnicing and camping primarily for tourists from March through November (5), '••v. The .State Beach faci-^i^i-e^s are regularly filled during the summer months and require reservations well in advance.„ *• % - 9 - (AREA H) PALOMAR AIRPORT AREA IH (MAP 4) AREA 3 PALOMAR AIRPORT AND BATIQUITOS LAGOON (MAP 4) Area 3 is characterized by Pale-mar Airport, an industrial park, wholesale flower nurseries, agricultural lands, large pockets of unincorporated territory and two major housing developments.;.'-, '•/1 The predominate features are natural rather than man-made because much of Area 3 is undeveloped. Palomar Airport (1) is located at the junction of Palomar Airport Road and El Camino Real. The airport, which provides private as'well as limited commercial service, is run by the County. The City, in an effort to minimize noise pollution, has identified much of the area north of Palomar Airport Road as part of a special treatment category of land uses. Within the airport * flight path is an 86 acre agriculture preserve under the Williamson Act. Future uses will be designed to minimize exposure to airport noise by prohibiting residential and other incompatible developments, This is particularly .important because the airport may be annexed to the City at a later date. The area immediately south of the airport and Palomar Airport Road is devoted to a partially developed industrial park\ ,(2) . One factor that distinguishes Area 3 is that large parts are within San Diego County's jurisdiction. The county's property is made up of successively rolling hills interrupted by canyons. oak, eucalyptus and sycamore trees line the canyons. Many of ^the Jcnolls are" us_ed foife various crops such as squash, corn and tomatoes. The area is almost entirely free of residential - 10 - developmer.t except for a scattering of single family houses, two water tanks and San Diego Gas and Electric's transmission easements. Unimproved roads serve as access to and from the higher elevations. In the southern part of Area 3 are two fairly large single family residential tracts (3 & 4). Both are within the City's X corporate territory, one bordering on the east, the other on the west. Each development contains 350 single family residences and affords excellent views of Batiquitos Lagoon and the ocean. A large wholesale flower producer (greenhouse) is located to the north of.the western tract (5). The southernmost physical boundary of Carlsbad's planning ar,ea is Batiquitos Lagoon. The lagoon and surrounding area, which are under the County's jurisdiction, have been proposed as a regional park. Planning of the Local Coastal Program for' ;' Batiquitos Lagoon will be the primary responsibility of the County with cooperation from the City of Carlsbad. V V - 11 - POLICY GROUP EVALUATION Y v AGRICULTURE COASTAL ACT POLICIES "The maximum amount of prime agricultural land shall be main- tained in agricultural production to assure the protection of the areas1 agricultural economy and conflicts shall be minimized between agricultural and urban land uses through all of the following: X (a) By establishing stable boundaries separating urban and rural areas, including, where necessary, clearly defined buffer areas to minimize conflicts between agricultural and urban land uses. (b) By limiting conversions of agricultural lands around the periphery of urban areas to the lands where the ,- viability of existing agricultural use is already severely limited by conflicts with urban uses and where the conversion of the lands ..would complete af logical and viable neighborhood and contribute to the establishment of a stable limit to urban development. (c) By developing available lands not suited for agri- culture prior to the conversion of agricultural lands. (d) By assuring that public service and facility expansions and nonagricultural develppment do not impair agricultural viability, either through increased assessment costs or degraded air and water quality. (e) By assuring that all divisions of prime agricultural lands, except those conversions approved pursuant to subdivision (b) of this sectiorr,- and all development adjacent to prime agricultural lands shall not diminish the productivity of such »* - 12 - prime agricultural lands." (Section30241 of the Coastal Act) ISSUE IDENTIFICATION One of the major objectives of the Open Space Element is, "to prevent the premature elimination of prime agricultural land and preserve said lands wherever feasible." The economic vitality of a $28,000,000 combined agricultural and horticultural industry is a prime consideration within the broadest context of Carlsbad's environment. In acknowledgement of the importance of agriculture, the City has one large agricultural preserve which was created through recently enacted City procedures. New zoning designations which have been developed to accommodate agriculture are the Exclusive Agricultural Zone (E-A) and r~" Residential Agricultural Zone (R-A). The intent and purpose of the E-A Zone, for example, is to: "(1) 'Provide for those areas, such as agriculture, / which are customarily conducted in areas which are not yet appropriate or suited for urban development; (2) Protect and encourage agricultural uses wherever feasible; (3) Implement the goals and objectives of the V V General Plan; (4) Recognize that agricultural activities are a necessary part of the ongoing character of Carlsbad; (5) Help assure the continuation of a healthy, agriculturalb^iefconomy in appropriate areas of Carlsbad." * - 13 - The City of Carlsbad, as one of tho fastest growing communities in San Diego County is faced with a growing demand for new housing. Between 1970 and 1975, the population of the City increased 29. 8%. One inevitable issue is that the location and timing of new development will disrupt the agricultural community. Granting that a successful agricultural industry and adequate housing is not mutually exclusive, the issue becomes; Wha£; non-replenishable resources can be sacrificed? The decision is not one that can be made solely by the municipality. Prevailing State laws, the prerogative of those that have agricultural land holdings, and the status of the economy, all contribute to the resolution of the issue. Decisions such as these can only be made within the context of current, accurate information and realistic projections. The work program with this in mind will be oriented to collecting • v information such as soil suitability, climate, economic characteristics, availability of water and accessibility of all land that is or could be used for agricultural production. Ultimately, the amount of agricultural land that will be preserved or converted will be based upon Coastal Act Policy. Issues such as economic feasibility, urban conflict, and effect on county- wide production will influence the future of these lands. LAND USES OF MORE THAN LOCAL SIGNIFICANCE Carlsbad's agricultural crops comprise a significant amount of county-wide production. .- 14 - HOUSING COASTAL ACT'POLICIES ". . .housing opportunities for persons of low and moderate income shall be protected, encouraged, and, where feasible, provided. . . New housing in the coastal zone shall be developed in conformity with the standards, policies, and goals of local housing elements adopted in accordance with the requirements of subdivision (c) of Section 65301 of the Government Code." (Section 30213 of the Coastal Act) ISSUE IDENTIFICATION The Housing Element of the Carlsbad General Plan has emphatically stated that a priority of the City is to promote a housing .- market that can shelter a diversity of families regardless of income. Approximately 38.9 percent of households surveyed in the 1975 census were identified as low-income. The goals of the Housing Element, recognizing that a need for housing exists, among the low-income group, has formulated goals. They are: 1. That all residents of Carlsbad have access to adequate housing within a price range they can afford. 2. That current housing problems be met with programs for remedial action withc-ut wholesale displacement of residents. 3. That current trends in housing development be understood and problems met with preventive action. 4. That priorities be based on the critical nature of housing needs as certain people are affected. The City, in an effort to fulfill these goals, has embarked on * - ^'""Ns^r^.. several courses of action. m * % - 15 - As recommended by the General Plan, Carlsbad has become a member of the County Housing Authority. Two distinct HUD programs have been adopted to provide housing assistance for over 150 families. In Section 8, the Lower Income Rental Assistance Program, "HUD makes up the difference between what a lower-income household can afford and the fair market rent for an adequate housing unit. No eligible tenant need pay.' more ;. than 25 percent of adjusted income toward rent." Another program, Section 23, the Low Rent Leased Public Housing, "pays annual contributions which make up the difference between the rents paid to private owners and what low income tenants can afford." The continued availability of low and moderate income housing is an integral part of downtown redevelopment. A $100,000 Housing and Community Development grant received by the City will be predominantly used to rehabilitate older homes. The objective of rehabilitating homes will be' to prevent wholesale dispersal of downtown residents while preserving community character. Three medium size mobile home parks, which are located within the coastal zone, also act as an alternative supplier of moderate income housing. This is particularly true for the many retirees that migrate to Carlsbad^ and would otherwise be forced to compete with residents and each other for rentals. Negotiations are also taking place with a developer on a tract that would provide 100 low cost units for the elderly just east of the Coastal Zone boundary The City of Carlsbad's commitment to promoting low and moderate "•v, inqpme housing. istu^a£f.ort that must periodically be re-evaluated. - 16 - This necessitates current demographic data, in order to assess i future needs and demands. Lastly, study should be given to explore techniques such as density transfers or multiple use permits, that will preserve or facilitate housing for low and moderate income families within the coastal zone. USES OF MORE THAN LOCAL SIGNIFICANCE i>'~ The City of Carlsbad, as a member of the County Housing Authority, and generally as a supplier of low and moderate income housing, can be considered regionally significant. - 17 - PUBLIC ACCESS COASTAL ACT POLICIES "In carrying out the requirement of Section 2 of Article XV of the California Constitution, maximum access, which shall be conspicuously posted, and recreational opportunities shall be provided for all the people consistent with public safety needs and the need to protect public rights, rights of private property owners, and natural resource areas from overuse." (Section 30210 of the Coastal Act) ISSUE IDENTIFICATION The City of Carlsbad's coastline, which stretches from the Buena Vista Lagoon, covers approximately 5.8 miles. Although public access is not directly addressed in public documents, the City of Carlsbad offers movement toward the ocean that is in compliance with the intent,'of State law. The focus of the * / Local Coastal Program will be to further improve access areas, insure the safety of pedestrians ulilizing access points, assess the adequacy of parking and to promote increased public awareness through directional signing'. Three central issues will warrant attention for the duration of the LCP. Initially, efforts ^should concentrate on exploring potential public accessways. The beach and bluff top area to the south raises additional issues. The land, which is currently being negotiated for acquisition by the State, has a barbed wire fence which limits access except for a .gate at the southern part of >»v ___ the beach. Regardless ^pf the ownership of the property, the issue - 18 - of restricted access is still to be resolved. One other possible course of action to improve overall access is to study three northern vacant lots which act as de facto or non-legal methods of reaching the beach. All should be analyzed for possible public use as no other access exists for approximately one-half mile. The second area of concern is the safety of presently used access points. An issue that merits investigation is the X stability and safety of the bluffs overlooking the beach along Carlsbad Boulevard. Although housing is not situated along the bluff, it is eroding due to excessive foot traffic. The location of parking scattered on the top of the bluff and a lateral unimproved foot path, combined with the lack of a channelized downward movement, has allowed foot trails to be carved approxi- mately every 70 feet for about one-half mile. The details of bluff erosion problems are presently being studies for the City by Scripps Institute and will:' be available in final form within two years. Additionally, one issue that arises from the Mountain View Drive access is whether the safety of pedestrians can be assured. At present, a dirt trail without a railing or stairs is the only way to the beach. These factors combined with the slope could present difficulty of access for elderly and/or handicapped people. ^ v Another issue that should be taken into account is the existence/ proximity of beach support facilities in relationship to the intensity of beach use. One topic which will definitely be discussed is the adequacy of parking near access points. -19 - LAND USES OF MORE THAN LOCAL SIGNIFICANCE The Carlsbad beaches are utilized by many non-local residents For this reason, the improvement of parking areas and other visitor serving facilities are important to increase and support direct beach access. - 20 - OCEANSiDE BUENA VISTA LAGOON/ HWY 78 \ 6000' SCALE CITY .OF CARLSBAD DATE 4,7.1977 , SQUIRSS D*M I .( •',/ AGUA HEDIONDA LAGOON PACIFIC OCEAN PUBLIC ACCESS City Access State Access RECREATION AND VISITOR SERVING FACILITIES COASTAL ACT POLICIES "Coastal areas suited for water-oriented recreational activities that cannot readily be provided at inland water areas shall be protected for such uses. Oceanfront land suitable for recreational use shall be protected X /. for recreational use and development unless present and foreseeable future demand for public or commercial recreational activities that could be accommodated on the property is already adequately provided for in the area." (Sections 30220 and 30221 of the Coastal Act) ISSUE IDENTIFICATION The City of Carlsbad's Parks and Recreation element has acknowledged increased demand will occur and provisions will be made for City-wide *ibeach oriented recreational opportunities. While the policies of the Coastal Act and City are in conformance, three particular courses of action will further enhance a balanced park and recreation system. . One course of action that has been initiated is the establishment of a bike lane that willNr,un along Carlsbad Boulevard. The City has received $190,000 from the State of California's Local Transportation Fund and has hired a private consulting firm to design a 6.2 mile route that will complete the last link in a system that starts in San Clemente and ends in Del Mar. The bike route, which will accommodate 150 to^400 bikes a day offers a view of the coastline. - 21 - A second course of action is to study the feasibility of designating a launching area for non-motorized, trailerable small crafts. Although recreational boating is offered in Agua Hedionda, a designated launching area for small crafts does not exist in the 68.2 acres of shoreline beach property. While design standards have not been specified, it is unlikely that any type of permanent structure would be constructed; however, some accommodation could be appropriate. The last method of improving recreational facilities is cooperation with the State of California and San Diego County, in the event a regional park is to be situated at Batiquitos Lagoon. This is a distinct possibility as $1,000,000 has been appropriated by the state to purchase property in and adjacent to the lagc^n. Additionally, potential park sites near Cannon Lake and Altamira may be developed within the next five years. The Coastal Commission defines visitor-serving facilities as: "public and private developments that provide accommodations, food and services, including hotels, motels, campgrounds, restaur- ants, and commercial-recreation developments such as shopping, eating, and amusement areas for tourists." % V Tourism, as a non-polluting $6 million industry annually is an important facet of the City's economy. At present, the City has over 600 rooms for overnight lodging. In addition, South Carlsbad State Beach offers overnight spaces which provide relatively .inexperi^ye^accommodations and recreational opportunity. - 22 - . ISSUES OF MORE.THAN LOCAL SIGNIFICANCE Carlsbad State Beach and South Carlsbad State Beach, because they offer a variety of recreational opportunities for tourists and residents alike, are of more than local significance. V v - 23 - HAZARDS COASTAL ACT POLICY "New development shall: (1) Minimize risks to life and property in areas of high geologic, flood, and fire hazard. (2) Assure stability and structural integrity, and neither create nor contribute significantly to erosion, geologic instability, or destruction of the site or surrounding area or in any way require the construction of protective devices that would substantially alter natural landforms along bluffs and cliffs." (Section 30253 of the Coastal Act) ISSUE IDENTIFICATION The reduction of hazardous conditions is a function of the Geologic and Seismic Safety Element and the Public Safety Element of the Carlsbad General Plan. Both/elements reflect the sentiment that proper planning and implementation can reduce loss of life and property. The primary task of the local coastal program will be to further refine and implement the General Plan. In compiling the Geologic and Seismic Safety Element, it was determined that approximately 85% of Carlsbad was suitable for \ V urban activities. The remaining 15% of the study area requires more extensive geotechnical investigations to evaluate the feasibility of urbanized 1-and uses. Erosion and siltation were deemed existing geotechnical problem areas. The Scripps Institute has recently initiated a study to .evaluate the severity of bluff and beach eltbiaon. The City will pay close attention * r 24 - to the study, to assess whether any preventive actions should be taken. The consulting firm that assisted in the writing of the General Plan element also noted potential problems. They included slope instability, excavation of hard rock, drainage, flooding, compressible soils, and secondary seismic effects. No special f'" study zones were developed as a result of negative findings made during the geotechnical surveys. -• 25 - VISUAL RESOURCES AND SPECIAL COMMUNITIES COASTAL ACT POLICY "The scenic and visual qualities of coastal areas shall be considered and protected as a resource of public importance. Permitted development shall be sited and designed to protect views to and along the ocean and scenic coastal areas, toi( >>•"- minimize the alteration of natural land forms, to be visually compatible with the character of surrounding areas, and, where feasible, to restore and enhance visual quality in visually degraded areas. . ."(Section 30251 of the Coastal Act) "Where appropriate, protect special communities and neighbor- hoods which, because of their unique characteristics, are popular visitor destination points for recreational uses." (Section 30253 (5) of the Coastal Act) ISSUE IDENTIFICATION <•. ^ The City of Carlsbad's physical features have contributed to create a view shed, which is available to many of the local residents. The topography "of the area is terraced so that a view of the ocean or lagoons can be seen regardless of proximity, The limited width of the bluffs along most of the coastline pre- cludes any future development which has the- effect of preserving the ocean view. Views are considered an important natural resource which characterizes the uniqueness of the community. The City has denied or requested, modification of structures which obscure - 26 - public views. ! One potential problem area that could exist is west of Interstate 5 between Palomar-Airport Road and Poinsettia Lane. Future develop- ment in some R-l-1000 zone areas could block a view from the free- way.* A possible course of action would be to formulate City policy concerning views. At present the topic is covered indirectly by the zoning ordinance. Study should be given towards researching and writing a comprehensive policy which would govern the obstruction of visual resources. Study should also be given towards the feasibility of designating special communities. The Spanish-speaking community, which reflects Hispanic culture, is a possible candidate. One course of action would be to create a community-like plan which would guide the location, timing, density and scale of future development in the area. The City of San Diego, as an example, has proposed a ! Barrio Logan Plan which will .try to resolve the mixed land use conflict between industry and residences. If designated, the objective of the plan would be to preserve and enhance community character. \ V *0ther critical view areas include major coastal access routes such as 'Carlsbad Boulevard, Elm Avenue, Tamarack Street, Ocean Street and Jefferson Street. - 27 - ENVIRONMENTALLY SENSITIVE AREAS COASTAL ACT POLICY "The biological productivity and the quality of coastal waters, streams, wetlands, estuaries, and lakes appropriate to maintain optimum populations of marine organisms and for the protection of human health shall be maintained and, where feasible, restored through, among other means, minimizing adverse effects of;.' waste water discharges and entrainment, controlling runoff, preventing depletion of ground water supplies and substantial interference with surface waterflow, encouraging waste water reclamation, maintaining natural vegetation buffer areas that protect riparian habitats, and minimizing alteration of natural streams." (Section 30231 of the Coastal Act) ISSUE IDENTIFICATION The City of Carlsbad recognizes that wildlife habitats are a natural resource that should be preserved and enhanced. One of the first steps that should be taken is to identify and inventory potential environmentally sensitive areas. A policy should then be developed to protect significant vegetation and wildlife from elimination. If applicable, continuous protection should be given. The issue of environmentally sensitive areas is an important one because many of the possible sites include areas of minimal development. Questions involving use, intensity, compatibility of development, and the suitability of an urban buffer zone should promote a design which protects valuable resources. Three areas which could be designated as habitat areas are * - 28 Buena Vista, Agua " -^dionda and Batiquitos Lagans. Buena Vista Lagoon, the northernmost of the three, is a state maintained wildlife preserve. Agua Hedionda, the middle lagoon, has been the subject of a pilot program and segmented LCP. Batiquitos Lagoon, the southern physical boundary of Carlsbad, is within the jurisdiction of San Diego County. Planning for the Batiquitos Lagoon area will be a responsibility of the County for the Local Coastal Program. City Staff, however, will assist in the preparation. Both governmental units have agreed that future plans will have.' to be compatible with the wildlife of the lagoon. LAND USES OF MORE THAN LOCAL SIGNIFICANCE Buena Vista Lagoon has been accepted by the City and State as a resource that is beyond local concern. It is imperative that any potential development on the South Shore not encroach upon the ecological preserve. Agua Hedionda and Batiquitos may also be considered in this regard. - 29 - WATER AND MARINE RESOURCES COASTAL ACT POLICIES "Marine resources shall be maintained, enhanced, and where feasible, restored. Special protection shall be given to areas and species of special biological or economic significance. Uses of the marine environment shall be carried out in a manner that S 'will sustain the -biological productivity of coastal water's and that will maintain healthy populations of all species of marine organisms adequate for long-term commercial, recreational, scientific, and educational purposes." (Section 30230 of the Coastal Act) "The biological productivity and the quality of coastal waters, r*~ streams, wetlands, estuaries, and lakes appropriate to maintain optimum populations of marine organisms and for the protection of human health shall be maintained and, where feasible, restored ' / through, among other means, minimizing adverse effects of waste water discharges and entrainment, controlling runoff, preventing depletion of ground water supplies and substantial interference with surface water flow, encouraging waste water reclamation, maintaining natural vegetation buffer areas that protect riparian habitats, and minimizing alteration of natural streams." > V (Section 30231 of the Coastal Act) ISSUE IDENTIFICATION , The marine environment is governed by a myriad of state and federal laws that ^re designed to preserve resources such as - 30 - coastal water, kelp beds, salt marshes, tidepocls, islets and i offshore rocks and anadromous fisheries. The role of the local entity is to augment the other jurisdictions protective measures. In order to more fully understand the legal framework surrounding the subject, it seems incumbent upon the City to compile a guide- line of pertinent regulations. A program should be initiated to compile information concerning the present National Pollution Discharge Elimination System inventory of ocean outfall. Investigations have occurred regarding the impact of the Encina Sewage Facility upon the marine environment. Another area of concern is the development of an effective mechanism to protect wetlands from urban intrusions such as the runoff sedimentation produced by grading. Although problems or conflicts are not presently evident, the possible impacts or influences on marine resources makes * / continual updating necessary. - 31 - PUBLIC WORKS ' COASTAL ACT POLICY "New or expanded public works facilities shall be designed and limited to accommodate needs generated by development or uses permitted consistent with the provisions of this division; provided, however, that is is the intent of the Legislature that State f'^ ' ' V Highway Route 1 in rural areas of the coastal zone remain a scenic two-lane road. Special districts shall not be formed or expanded except where assessment for, and provision of, the service would not induce new development inconsistent with this division. Where existing or planned public works facilities can accommodate only a limited amount of new development, services to coastal-dependent land use, essential public services and basic industries vital to the economic health of the region, state, or nation, public recreation, commercial recreation, and visitor-serving land uses* ii shall not be precluded by other development." (Section 30254 of the Coastal Act) ISSUE IDENTIFICATION The Carlsbad General Plan public facility element recognizes the many implications that are associated with expanding public works \ V projects. The goal of the element is, "to provide a comprehensive public services and facilities and public building program for the citizens of the 'City of Carlsbad, now and in the future, so as to insure that all necessary public facilities will be available concurrent with need in connection with the development of the •v^ City pursuant to, tti&SSalance of the General Plan." - 32 - Much of the issue identification has alluded to the concept that the provision of services affect the timing, location and intensity of development. 'The City in acknowledging this concept should work toward a five year Capital Facilities Improvement Program that will accommodate new growth. This will lessen the likelihood of problems such as the current sewer moratorium. In addition, guidelines for a Public Facilities Management Program shoupL'd be ; initiated to evaluate the need and the potential impact that a change in circulation or sewer capacity would produce. Evaluation should also be given to determine the adequacy of Public Facilities Element of the General Plan. One particular type of public works project that will have to be addressed is the development and expansion of existing circulation systems. As the population shifts toward the North County of San Diego, areas such as Carlsbad, Vista, San Marcos, and the / unincorporated areas surrounding Oceanside will undoubtedly grow. Granting that public access to the beach for the population outside the coastal zone is a desirable goal, the issue then becomes the best method to accommodate traffic. The work program with this in mind will be oriented toward improving the overall transportation needs of the community. V v The impact of special districts on the City's public works projects cannot be underestimated. A primary task of the LCP will be to reconcile the City's and special district's future plans. Special Districts, which serve residents inside and outside of the coastal zone must be included. These districts include Leucadia County - 33 - Water District; Carlsbad Municipal Water District; San Marcos Unified School District, Carlsbad Unified School District, San Dieguito Unified School District, San Diego Gas and Electric, Tri-City Hospital District, San Diego County Flood Control District, and North County Transit District. LAND USES OF MORE THAN LOCAL SIGNIFICANCE -..._—UN. II '"I. ._,. , , . . I I-..,.. I .1. . -,.——. .1 I . , I • I I - ^ , /'-• The major uses of more than local significance include: (1) Cannon Road extension (east) - If completed it would greatly improve east-west access within and outside the City. The updated version of the Comprehensive Plan for the San Diego Region recommended that Cannon Road be extended because of its Regional significance in relationship to the total county wide * transportation system. (2) Poinsettia Lane extension (west and east) — would serve same purpose in the southern part of the City. (3) The old Highway 1 (Carlsbad Boulevard and Pacific Coast Highway) because of its scenic value. \ t ' LOCATING AND PLANNING NEW DEVELOPMENT COASTAL ACT POLICY : "New development, except as otherwise provided in this division, shall be located within, contiguous with, or in close proximity to, existing developed areas able to accommodate it or, where such areas are not able to accommodate it, in other areas with adequate public services and where it will not have significant adverse effects, either individually or cumulatively, on coastal resources. In addition, land divisions, other than leases for agricultural uses, outside existing developed areas shall be permitted only where 50 percent of the usable parcels in the area have been developed and the created parcels would be no smaller than the average size of surrounding parcels." (Section 302^0 (a) of the Coastal Act) "The location and amount of new development should maintain * and enhance p'ublic access to the coast by (1) facilitating the provision or extension of transit service, (2) providing commercial facilities within or adjoining residential develop- ment or in other areas that will minimize the use of coastal access roads, (3) providing nonautomobile circulation within the development, (4) providing adequate parking facilities or providing substitute means'of serving the development with public transportation, (5) assuring the potential for public transit for high intensity uses such as high-rise office buildings, and by (6) assuring that the recreational needs of new residents will not overload nearby coastal recreation areas by correlating ">v. the amount of -develTOgme.nt^ with local park acquisition and development plans with the provision of onsite recreational fc s * - 35 - facilities to serve the new development." (Section 30252 of the Coastal Act) ISSUE IDENTIFICATION One of the major issues that faces Carlsbad is the location and planning of future development. The issue is crucial because the vast majority of the City is developed to less than 50% if'" of its potential. Map A, which was compiled by the Comprehensive Planning Organization indicates the intensity of development. A lack of development is particularly discernible for the coastal zone. An important factor that influences the location and timing of growth is the availability of services. A sewer hookup moratorium, which is currently in effect, has been lifted for a limited sewer allocation program. The prerequisite for being eligible for the rating system is, that the' prospective residential building site be within the infill areas of Carlsbad which are shown in Map B. The delineation of'urban infill areas are subject to varying interpretations. While the .state categorizes areas of 50% develop- ment or more as urban infill, the City defines it according to the availability of sewer service and boundaries of urban Map B development. The City's definition/includes some areas that are not built out to 50% or more. Eventually a dialogue between the City and the Coastal Commission will have to decide the future of these areas. Until the Encina sewage treatment facility expands its capacity and the accompanying public works.projects occur, the result wtll be curtailment of further extensive - 36 - EEWE\^.LOPED JAM 1S7 LESS THAN 25% DEVELOPED 25% TO 49% DEVELOPED' » .'-•*' 50% TO 74% DEVELOPED Hill 75% TO 100% DEVELOPED 8 8 S 3 ento MILES .00 1.14 2.27 3.41 HTOMJNC oncnHiznncM OF THE * rvi I w » r-^. O t r-rf OCEANSIDE BUENA VISTA HWY 78 ;OONSTF^iiL^^^^ CALAVERA 6000* I SCALE ! CITY OF'I DAiE • . 1977SQUIRES DAM HEDIONDA LAGOON OAK • LAKE PACIFIC OCEAN .i"ssss. INFILL AREA COASTAL" ZONE BOUNDARY (MAP B) urban development. The Carlsbad General Plan Land Use Element addresses the problem of leapfrog development by identifying urban reserve areas. "The urban reserve overlay designates areas that may remain as open space for an undetermined period of time, with long-range uses indicated on the Land Use Plan. The land reserves are areas where development is not expected or encouraged to occur in the immediate future. The objectives of identifying such areas include the temporary preservations of "open space" to control development patterns, discourage urban sprawl, channel growth into desirable areas, manage rate of growth to achieve optimal coordination of utilities and public facilities, expendi- tures, and reserve land (land bank) for future (possibly unforeseen at this time) technical, governmental, commercial and industrial land uses." (Map C) * The desired results of concentrating development in an orderly, balanced manner will be a reduction of air pollution and energy needs, maximization of public facilities, protection of coastal resources and promotion of the revitalization of downtown. The problem with the physical realities of contemporary Carlsbad is that the urban infill area and the urban land bank accommodates^ v growth predominantly in the Coastal Zone. This growth must be consistent with Coastal Act Policy so as not to inhibit the public's right to enjoy the ocean and to protect environmentally sensitive areas. The optimal method of insuring growth that is within the City's best interest is to develop guidelines for a * ^ ^^'XV'-fe TX , 'Public Facilities Management Program, which is explained in more detail in the section on Public Works. * — 37 - A-^^^^^i/^V^ ^V s . POSSIBLE. URBAN RESERVE AREAS The Comprehehsive Planning Organization (CPO) is presently undertaking a Regional Historic Preservation study which will collect, research and analyze local history, architecture, archaeology and culture. As a first step, CPO has chosen a pilot area which encompasses the Carlsbad Coastal Zone. The City expects that the data generated by the initial survey will /"' serve as an excellent informational source, particularly in fulfilling Section 30250 of the Coastal Act which prohibits adversely impacting archaeological, or paleontological sites. LAND USES OF MORE THAN LOCAL IMPORTANCE Palomar Airport and the nearby industrial park could potentially r—grow in county wic"e importance. The airport, which is under the county's jurisdiction, is being considered for annexation. Whether the airport becomes part of the City or remains unincorporated, s questions of 'expansion will need to be resolved. The Palomar Airport Industrial Park is another possibly significant factor that could effect the growth of the community. As the population of San Diego County shifts north, the 1,600 mostly vacant acres could hold a key economic factor in the growth of North County. V v - 38 - NON-APPLICABLE POLICY GROUP 5 During the course of evaluating the Carlsbad Coastal Zone, four non-applicable policy groups were determined. They include: 1. Industrial and Energy Development 2. Forestry and Soils Resources /•- 3. Commercial Fishing 4. Dredging, Filling, and Shoreline Structures \ r - 39 -