HomeMy WebLinkAbout1978-03-21; City Council; 5130-1; Report on Village Area Planning EffortCITY OF CARLSBAD
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AGEND BILL. NO. Sr Dept. Hd.
DATE: March 21, 1978 City Atty
DE'ARTMENT: PLANNING (REDEVELOPMENT) City Mgr. \P\:
EJECT:
REPORT ON VILLAGE AREA PLANNING EFFORT
ST EMENT h THE MATTER
Council, at its meeting of July 6, 1977, designated a redevelopmnet survey area for
the purpose of,initiating a revitalization program in the "inner city" area. In
addition,. Council at that time directed staff to undertake study efforts which would
enable the Planning Commission to select a project area and prepare a preliminary plan.
Staff has completed the general studies necessary to make preliminary recommendations .
to the Commission on project area boundaries and preliminary plan content. These
studies were undertaken in conjunction with the Interim Village Area Advisory
Committee's efforts to formulate a goal and objective statement.
The attached report is the result of Council Is direction of July 6, 1977, and is
presented at this time to give Council the opportunity to.determine whether
it desires to provide additienAl direction prior to Commission consideration. The,
report contains a brief explanation of the goal and objective process and further
relates the goal and objectives to the attaches} discussion draft of the legally
required preliminary plan. _
The next step in the process, if Council concurs, is to forward the discussion draft
to the Planning Commission 'for its consideration and adoption. 'Following the
Commission's action forwarding the plan to the Redevelopment Agency, the final
Redevelopment Plan process will be initiated.
EXHIBIT
Memo to City Manager dated 3-13-78
Goals and Objectives .
Discussion Draft No. 1 - Village Area Preliminary Plan
RECMUNDATIONS
If Council concurs with the efforts ofthe Interim Advisory Committee and the
staff,'a Minute 2btion should be adopted directing that the discussion draft of -
the preliminary plan be forwarded to the Planning Commission for its report and
recommendation.
Council action
3-21-78 The Council concurred with the efforts of the Interim Advisory
Committee and staff, which were adopted, and directed that the
discussion draft; -of the preliminary plan be forwarded to the
Planning Commission for its report- and recommendation.
JEH:le
FORM PLANNING 73
MEMORANDUM
March 13, 1978
TO: Paul Bussey, City Manager
FROM: Jack Henthorn, Redevelopment Coordinator
SUBJECT: Village Area Redevelopment Goals, Objectives, Working Draft
of Preliminary Plan
TMIDO iPIPTOM
' At its meeting of November 1, 1977, Council appointed the Interim Village
Area Advisory Committee. The primary responsibility of the Committee was to
i formulate goals and objectives upon which a redevelopment plan would be based.
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The Committee held its first meeting on December 1, 1977, and concluded its
deliberation on March 2, 1978. The product of the effort is attached as ;
exhibit 1. It should be noted that during the time frame involved it was
difficult to obtain quorum status (mainly because of holidays) due to
conflicts With prior. commitments. However, the Committee should be commended
for its dedication and deliberation during those instances where quorums were
present.
# CHARACTER
!it The Committee indicated early in the process that a village character should
prevail within the central area of the City. This character is typlified by ?
low development intensity and informal arrangement of land uses encouraging
pedestrian activity. In short, the character is one of human scale.
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Utilizing this concept as a starting point, the Committee proceeded to formulate t
an overall goal and fifteen objectives upon which programs to attain the goal
could be based. These statements indicate a desire for general physical improvement
of the central area with a strong orientation toward maintaining and improving
upon the existing village -like atmosphere.
In addition, there appears to be,a desire to encourage evolution to specialty s
commercial uses in the core area. This appears to fit well with the desire to
increase pedestrian amenity and to improve circulation and parking.
Basically, the Committee's document encourages a total environment where individuals
can live, shop, work and recreate.
DRAFT PRELIMINARY PLAN
Recognizing that the goals and objectives are necessarily broad in order to set
the "tone" of the plan, staff has attempted to illustrate how the statements
would be incorporated into a preliminary plan. The document attached as Exhibit 2
is a discussion draft which will be submitted to the Planning Commission for its
review and recommendation in accordance with State Community Redevelopment Law.
The preliminary plan is a legally required document Vhich serves as the base from
which the redevelopment plan will be developed. It is again, a rather general
document which will have specificity added as the Agency and Project Area
Committee di:.t�t the preparation of the final redevelopment plan and implementing
documents.
The preliminary plan contains a boundary recommendation and a preliminary land
use designation map. The boundaries are based upon existing land use, general
plan, zoning -and field studies. The intent was to include an area large enough
to effectively deal with blighting conditions, but small enough to be manageable.
It is anticipated that for purposes of plan implementation, the area will be
broken into subareas on the basis of such items as proposed uses, existing uses,
needed,public improvements, etc. This will permit the formulation of programs
capable to goal attainment on a methodical, phased basis.
The Generalized Land Use designation shown in the preliminary plan are in
conformity with the existing general plan and zoning. As the final plan evolves,
more detailed land use desinations and controls will be developed.
PRELIMINARY PLAN PROCESSING
The discussion draft, upon authorization from the Council, should be distributed
to property owners, tenants and residents so that they have an opportunity to
review the document prior to presentation to the Planning Commission.
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Following Planning Commission action, the plan will be forwarded to the Agency
and the final plan process will be instituted.
WORK PROGRAM STATUS
Council, at its meeting of June 21, 1977, adopted a work program for CBD
revitalization which indicated a total time frame of 11 - 15 months. Although
the preliminary plan process is running nearly a month late, the time frame still
appears reasonable due mainly to adjustments which permit the goal/objective
and preliminary plan phases to be undertaken in a parallel manner.
RECOMMENDATION
It is recommended that the goal and objectives as formulated by the Committee as
the discussion draft of the preliminary plan be forwarded to Council for their review
and comment. If Council concurs with the efforts to date, the discussion draft
should be forwarded to the Planning Commission for its report and recommendation to
the Agency to institute the final plan adoption process.
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VILLAGE AREA REVITALIZATION PROGRAM
i GOALS AND OBJECTIVE STATEMENTS
a
GOALS
The overall goal of the Village Area revitalization effort is
as follows`:
"To create a pleasant, attractive, accessible
environment for living, shopping, recreation,
civic, cultural, and service functions throug!i
restoration and new private and public development
forms which preserve and enhance the existing
} character of the Village Area and surrounding
community."
OBJECTIVE STATEMENTS
The objective statements containe& herein will guide the
Preparation of the revitalization plan and program
necessary for effective goal attainment.
Attainment of the above noted goals will require a plan and
program which will:
A. encourage a variety of residential accommodation
and amenity in the village area so as to increase the advantage
of "close -in" ►iving and convenient core shopping, toward the
end of encouraging a diversity of age, income, and ethnic
characteristics.
b. restrict the highest residential density to areas
in or near the village area.
c. introduce programs to revitalize all areas which
are deteriorating or have high potential to become deteriorated.
d. provide an organized system of commercial land uses
to be grouped in a village setting, rather than a strip or
EXHIBIT 1
sprawled commercial manner. Such uses should include adminis-
trative and professional offices, business services, retail outlets,
and public offices.
e. provide within the village core area a variety of
spaces and locations for specialty, unique, and attractive shops
` with a strong pedestrian orientation. Locations and spaces should
be interconnected with attractive pedestrian belts incorporating
landscaping and/or unique texture:
f. provide a variety of commercial/tourist recreational
activity, especially close to the beach, in conjunction with
,special entertainment facilities, restaurants P,rid other uses
which will foster the village concept and not detrimentally impact j
:resident;al usage. i
g. provide for pedestrian and bicycle access to development
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clusters and open areas. -
h. provide for visual amenity through such means as
landscaped courtyards, landscaped parking, and harmonious archi-
tectural forms and 'vest pocket parks.
i. arrest decay and decline throughout the project area,
through restoration and/or removal of -deteriorated residential -
and commercial centers.
J. guide development to preserve aesthetic and cultural
qualities.
k. stimulate and attract private investment.
1. provide a convenient circulation system with an
emphasis upon ease of access and convenient, safe, attractive
offstreet parking areas.
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m. accommodate existing and future Local and regional
mass public transit facilities.
n. establish th.e Village Core.Area as North County's
focus for specialty goods and services.
o. establish design and sign control in keeping with
the desired village atmosphere.
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DISCUSSION DRAFT NO. 1
VILLAGE AREA
PRELIMINARY PLAN
PROJECT NO. 1
MARCH 1978
EXHIBIT 2
FORKING DRAFT
SECTION I. BOUNDARY DESCRIPTION
(Note. See Exhibit 1)
SECTION II. PROTECT AREA DESCRIPTION
A. Design
Although the City of Carlsbad, a municipal entity, has only recently
celebrated its 25th year of existence, the problems confronting the village area
are those indicative of a much older area. This is due mainly to the facet
that prior to incorporation, the village area served the commercial needs of
the unincorporated community that was to become the City of Carlsbad.
1. Deficiencies in design are partially the result of small lot
subdivisions permitted near the turn of the century. The small lot effectively
precludes any opportunity for expansion of viable central business district
uses. Additionally, small lots tend to compound parking problems due to
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ownership conflicts which eliminate any possible provision for_on-site
parking.
2. Structural deficiencies exist in the older structures locate,
within the project area. In some instances, these deficiencies are the
result of aging, while in other instances, they are the result of inadequate
construction or alteration over the past life of the structure. Several ?
buildings are sited and located so that they cannot be effectively altered or
expanded to accommodate the volume of trade which would justify continued
existence in the urban core area.
3. The residential areas within the proposed area exhibit signs
of deterioration as a result of age and encroachment of non-residential
uses. Office use is the primary encroaching use, although some retail
commercial usage is occuring where permitted by the existing zoning ordinance.
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4. Existing circulation patterns reflect t_a age of the area and
an uncoordinated development approach. The grid iron street system, railroad
tracks$ minimal freeway crossing all further add tc the transportation dif-
ficulties experienced in the area. Alley access is limited and oft -times
not adequate for delivery, trash pick-up, and transportation.
Parking is primarily limited to on -street and alley parking. Alley parking
is utilized most frequently in areas where business entrances are known and
well identified. The parking `situation in the alleys tends to be fragmented
and not well identified, which results in low levels of utilization.
B. Structures
The highest incidence of structural inadequacy appears to occur along S
Street north of Oak Avenue and south of Beech Avenue. Residential
deterioration is most evident along Tyler although isolated instances are
found throughout the project area. Several residential structures were
removed during the early 1970's as a result of an aggressive building
inspection program. This program, however, was later abandoned and a signifi-
cant number of deteriorated residential structures still exist.
Many older commercial structures within the project area are substandard and
in need of restoration or replacement. Some require only general maintenance
and/or modernization, while others may require complete demolition and
reconstruction.
C. Economic Conditions
The village area, the historic central business district of the City of
Carlsbad, has not seen an appreciable amount -if major new development or
new employment opportunities in recent years. The majority of new
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developments and opportunities have occurred in areas removed from the village
area, primarily to the east and south. An increase in competition, as a result
of new shopping centers being developed to the east and increased accessibility
to regional shopping centers, has further adversely impacted the retail position
f' of the village area.
D. Demographics
The project area, as noted in the 1975 mid -decade census, contained approximately
20 percent of the total households in the City. At the time of the census,
it should be noted that 36 percent of the households with a total income
of less than $10,000 were located within the proposed boundaries. When the
project was viewed in isolation, it was found that 690 of the area's
population earned less than $10,000. This is significant when viewed in
light of the fact that City-wide, only 38 percent of the households had incomes
within the same range. Additional analysis found that 22 percent of the total
population in 1975 was over the age of 55. Normally, a highe- incidence of
senior citizens is found close to a given City's central business district
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than is found proportionately on a City-wide basis. However, in the City of
Carlsbad, the census does not bear this out. In fact, the project area contains
seniors only to that proportion found City-wide. ;
E. Purpose and Intent of the Redevelopment Plan
1. Economic Base. The plan should direct market potential into a
total project rather than relying on private development decisions which axe
often unrelated to surrounding areas. The intent here is to complement the
private development process by providing direction which will result in a
better over-all development than would be possible on a sity-by-site approach.
2, Existing Conditions. Redevelopment and rehabilitation should
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strive to bring about an increased quality in new and existing development.
This activity should concentrate on upgrading existing development which:
a. is historically and/or aesthetically unique.
b. will enrich the project'sability to attract.
c. will be compatible with the character desired to result
from the development of the area.
3. New Development. Redevelopment of the area should not be
limited to a single purpose, but should attempt to create an integrated,
multi -purpose land use pattern fostering both daytime and night-time activities.
4. Peripheral Relationships. Redevelopment of the area should not
be viewed as ending at the project area boundary, but should provide a
catalyst to surrounding development. Special attention should be given
to linkages (architecture and land use) from the site to surrounding areas.
S. Types of Proposed Redevelopment Activity. In order to attain
the goals and objectives of the plan, activities to be undertaken could involve
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acquisition of land; clearance of some structures; rehabilitation by owner/
participants, or developers; removal and/or installation of public improvements;
the undergrounding and/or modification of private utilities; and, the
disposition and/or lease of land for redevelopment purposes permitted under
the plan. It is the aim of the plan to stimulate participation of owners,
residents, and merchants, in order to achieve and facilitate implementation.
SECTION III. GOAL & OBJECTIVES
GOAL
The overall goal of the village area revitalization effort is as follows:
"To create a pleasant, attractive, accessible environment
for living, shopping, recreation, civic, cultural, and
service functions through restoration and new private
and public development forms which prc5erve and enhance
the existing character of the village area and surrounding
community."
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OBJECTIVES
The objective statements contained herein will guide the preparation of
the revitalization plan and program necessary for effective goal attainment.
Attainment of the above noted goal will require a plan and program which will:
a. encourage a variety of residential accominodation and amenity
in the village area so as to increase the advantage of "close-&' living
and convenient core shopping, toward the end of encouraging a diversity of
age, income, and ethnic characteristics.
b. restrict the highest residential density to areas in or near the
village area.
c. introduce programs to revitalize all areas which are deteriorating
or have high potential to become deteriorated.
d. provide an organized system of commercial land uses to be grouped
in a village setting, rather than a strip or sprawled commercial manner. Such
uses should include administrative and professional offices, business services,
retail outlets, and public offices.
e. provide within the v-.Ilage core area a variety of spaces and
locations for specialty, -unique, and attractive shops with a strong pedes� ian
orientation. Locations and spaces should be interconnected with attractive
pedestrian belts incorporating landscaping and/or unique texture.
f. provide a variety of commercial/tourism recreational activity,
especially close to the beach, in conjunction with special entertainment
facilities, restaurants and other uses which will foster the village concept
and not detrimentally impact residential usage.
g. provide for pedestrian and bicycle access to development clusters
and open areas.
h. provide for visual amenity through such means as landscaped court-
yards, landscaped parking, and harmonious s:rchitectural forras and vest pocket parks.
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i. arrest decay and decline throughout the project area through
restoration and/or removal of deteriorated residential and commercial centers.
j. guide development to preserve aesthetic and cultural qualities.
k. stimulate and attract private investment.
1. provide a convenient circulation system with an emphasis upon ease
of access and convenient, safe, attractive off-street parking areas.
m. accommodate existing and future local and regional mass public
transit facilities.
n. establish the village core area as ;North County's focus for
specialty goods and services.
o. establish design and sign control in keeping with the desired
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v village atmosphere.
SECTION IV. DEVELOPMT PLAN CRITERIA
This section is provided to address the requirements of community redevelopment
law, Section 33324 which requires that the preliminary plan "show how the
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purposes of this part (of the proposed redevelopment) would'be attained by
such redevelopment." After adoption of the redevelopment plan, a manual is
proposed to be formulated for the purpose of setting development standards.
This will be done in cooperation with the project area committee, planning ?
commission, and redevelopment agency.
A. Land Use
1. Plan Formulation Standards. The project area should be divided in.
subareas on the basis of major function. Primary and alternate land uses should
be developed for each subarea. Use designation should be deliberately located
to encourage a variety of activities. Additionally, the most active uses
(retail, commercial, recreational and cultural) should be located at the
pedestrian level. A generalized land use map is attached as Exhibit 2.
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2. Development Intensity. The intensity the land uses proposed
will be compatible with the City Zoning Ordinance unless otherwise specified
in the final redevelopment plan. A map delineateing existing zoning designations
is provided as Exhibit 3.
B. Open Space
Open space areas should be provided throughout the project area to meet a
need for pedestrian amenity and aesthetic appeal. Open space should function
to encourage public, pedestrian activity by working as access points to
parking, shopping, and recreation. In addition, open space should function as
a break in the built environment, giving visual and physical relief from the
typical lot line to lot line development. Plazas, courtyards, and other open
space amenity should be encouraged within the project area. Design of these
areas should consider environmental factors such as light, shadow, wind, vegetation,
and materials to be used'in construction. These factors should be given
consideration from the standpoint of creating spaces which will be attractive
to the potential user.
C. Spatial Relationships !
Each site should be carefully planned to provide visual continuity and
attractive linkage from the site to surrounding areas. Commercial uses
should be oriented to encourage pedestrian activity and movement along
established corridors. All areas designated as "focal" points should be
clear of interference and appropriately landscaped to avoid "screening out"
of the focal point. (See Core Area concept, Exhibit 4)
D. Subarea Designation
As noted above, the project area should be divided into major subareas.
As the final plan moves toward completion, it could be desirable to divide
the area further to meet development plan criteria.
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Preliminary studies indicate that the goal of the redevelopment plan might
be accomplished within some areas through application of design criteria
and without using the agencyls exercise of the power of eminent domain.
Accordingly, the agency could restrict or exclude its exercise of the power
of ----eminent domain within whole subareas or portions thereof.
E. Frozen Tax Base Exclusion and Limitation
As the final plan is being prepared, analysis should be undertaken to
determine if the project can be implemented without utilization of the
total tax revenue provided through Health and Safety Code, Section 33670.
If the analysis shows that total revenue gerarated is not required to maintain
the projects viability, then some land area could be exempted from these
provisions.
It is recognized that the provision of Section 33670 of the Health and Safety
Code can affect the ability of taxing agencies to provide public services.
In recognition of this, analysis should be undertaken in an effort to develop
a means of minimizing such impact, '
F. Design Consideration
I The redevelopment plan should be conceived as a well blended -mixture
of buildings and open space with the purpose of restoring and maintaining a low to
Taid = rise village character made up -of old, as well as new, structures.
The following factors should be incorporated into the design of the final plan:
1. Natural Environment. The site plan should be carefully designed
in terms of the natural environment. The elements of sun, wind, view orientation,
and temperature are the main elements of concern. Siting, volume and material
should be carefully chosen in relationship to sun and shadow.
2. Historic Preservation. Historical landmarks within the project area
which exhibit architectural character of a unique nature should be given
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important consideration in the preparation of the redevelopment plan.
3. Architectural Design. Architecture, through its various
facets, including detailing and use of materials, should express use and
function.
4. Cultural Elements. Activities of a cultural nature should
take place in and around the project area. It is desirable that physical
development of the project reflect desire to expand these activities.
S. Urban Design. The public rights -of -way are as important as the
design feature of the buildings. All elements of street furniture, such as
street lighting, newspaper stands, trash containers, fire hydrants, telephone
booths, etc., should be treated as part of the overall design.
A plant material list should be established as part of the development
standard manual for use in open areas. All major design features should be
appropriately lighted, including water areas and landscaping. Special
architectural lighting should be considered for significant landmarks in
the project area to set off the unique character.
G. Circulation
It is essential that the movement of the people and goods throughout
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the project take place easily. Circulation patters of various types of
transportation should be integrated and conflict areas avoided whenever
possible. Access, both ingress and egress, should be improved where possible,
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given other constraints imposed by the final plan. ;
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1. Parking and Land Use. In an effort to enhance the village character,
major emphasis should be placed upon pedestrian movement. In light of the
dependency upon the automobile as a primary means of transportation, all
parking areas should have attractive, convenient access points. In the event
that a major parking program is implemented, any area designated and used as
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interim parking should utlimately be made available for expansion or other
public usage. Additionally, early efforts should be made to determine the
proper location of various types of parking such as parallel, diagonal,
off-street, on -street, etc.
2. Transportation. Although the automobile is the primary means of
transportation, it would be desirable to study other modes of transportation
which could reduce vehicular -pedestrian conflict. Alternate methods of
providing intra-project movement should be explored.
H. Linkages
The final redevelopment plan should emphasize pedestrian movement and the
j elimination of pedestrian -vehicular conflict.
Vehicle flow should be improved throughout the project. Methods of improving
the flow and accessibility, such as utilization of medians, interconnected
signals, restricted driveway access, and on -site, interior circulation,
should be analyzed. !
Pedestrian linkages should be provided in a convenient, safe, and attractive
fashion. Methods of encouraging adjacent developers to make structural
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linkages ,from one development to another for the purpose of providing
project continuity should be analyzed in the preparation of the final plan.
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SEC 9-14 V. CONFORMITY WITH THE GENFnAL PLkN
OF THE CITY OF CARLSBAD
The Community Redevelopment Law, Section 33324, requires that the preliminary
plan "show that the proposed redevelopment conforms to the master or general
community plan." A map depicting existing General Plan land use designations
is attached as Exhibit S.
The General Plan land use element addresses the village area as "downtown
area," "central business district," "inner city," and "commercial core."
The area is addressed in terms of creating a pleasant and unique environment
which will attract the tourist and provide for the residents of the area.
In an effort to attain the above noted goal, the area is designated as a
"special treatment area" for which "specific plans" should be formulated.
The guidelines under which specific plans should be formulated call for a
variety of residential uses which increase the advantages of "close -in" living.
The commercial guidelines are concerned with preventing "strip" or "sprawl"
types of development and call for the grouping of mixtures of land uses in a
"community setting". In addition, the guidelines encourage development with
a strong pedestrian orientation coupled with specialty, unique, and attractive
shops.
The provisions of the preliminary plan call for the establishment of an area
consonant with the goals and policies contained in the general plan.
Further, the final redevelopment plan and associated documents should meet
the definition of a specific plan as defined by the general plan. Therefore,
the preliminary plan conforms to the intent of the existing general plan.
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I. Impact of the Project upon Residents and Surrounding Neighborhoods
The project will provide better circulation for pedestrians. In an effort
to promote retail trade, surrounding residents and neighborhoods should
benefit from improved commercial activity. The project will also J.rovide
for the elimination of inadequate housing conditions and, through integration
with other programs, provide new standard housing for project area residents.
An effective relocation program will be developed for utilization in this
regard. lbe major emphasis of the plan will be on preservation of existing
dwelling units and structures, and enhancing the living environment of the
project area residents and surrounding neighborhoods through the installation
and upgrading of public improvements. Additionally, the project should have
the effect of improving employment opportunities for the residents of the area.
In addition, improved circulation will increase the resident population's
accessibility to employment centers, and, hopefully, reduce travel time and
vehicular pollution.
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The installation of effective street lighting and street furniture should
result in reduction of, the crime rate and establishment of more active night-
time activities within the commercial core. 4
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F-A
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MEMORANDUM
March 21, 1978
TO: Paul Bussey, City Manager
FROM: Jack Henthorn, Redevelopment Coordinato
SUBJECT: Agenda Bill No. 5130, supplement No. 1
Letter from Mr. Charles Garner
Attached is a copy of a document received from Mr. Charles Garner, a local
businessman who served on the interim Village Area Advisory Committee.
At the committee meeting during which the goals and objectives were
considered, Mr. Garner voted for adoption. However, a couple of days
later Mr. Garner informed me that he was forwarding additional language
for consideration.
Mr. Garner's document has been reviewed and does not appear to be'
different from that adopted by the committee with the exception cif his
objectives F and P.
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it is recommended that Mr. Garner's packet be distributed to Council
tonight in order to provide them the opportunity to rorward it along with
any other direction they may desire to the Planning Commission as a part
of Agenda Bill 5130, supplement No. 1.
Mr. Garner has advised me that he will be in attendance at the -City i
Council meeting tonight.
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