HomeMy WebLinkAbout1983-09-13; City Council; 7099-2; Public Facilities Fees Management System&-OF CARLSBAD - AGENDIb BILL
AB# ‘?09?-qa TITLE DEPT. HD.&j&
MTG. 911 J/83 PUBLIC FACILITIES MANAGEMENT SYSTEM (PFMS) CITY Amm
DEPT. R&A SEPTEMBER, 1983 MONITORING REPORT CITY MGR.&
RECOMMENDED ACTION:
None. Information item only.
ITEM EXPLANATION:
The attached PFMS Monitoring Report covers the period November, 1982 thru July,
1983. The report indicates that community park and administrative facilities
are currently inadequate. Community park facilities are expected to remain
inadequate at least over the next five years. The status of administrative
facilities is dependent upon the outcome of the November election regarding
construction of the Public Safety Center which, if built, would satisfy the
City's administrative space needs.
The report also indicates that the projected status of library and fire facili-
ties could become inadequate. Construction of the La Costa Library modular
(approved by Council on g/6/83) would bring the projected status of library
facilities into the adequate range. Demand for fire service facilities in
the southwest City is increasing such that a station may be necessary there
in the short term.
FISCAL IMPACT:
None.
EXHIBITS:
1. PFMS September, 1983 Monitoring Report.
1
\ City of Carlsbad, California : Research/Analysis Group
.
PFMS PERIODIC MONITORING REPORT
SEPTEMBER, 1983
SUMMARY
FACILITY SERVICE
1. - Water - Present status: ADEQUATE. Projected status*: ADEQUATE.
Based on storage capacity, current demand is 5.1% of capacity.
Five-year projected demand could be 5.3% of capacity. This
figure is well within the adequate range. The design capacity
of the water distribution system exceeds the five-year projected
demand.
2. - Sewer - Present status: ADEQUATE. Projected status: ADEQUATE.
The projected PFMS five-year demand will not exceed current sewer
capacity.plus the Encina expansions scheduled for January, 1984.
3. Parks & Recreation - Present status: Community Parks - INADEQUATE;
all other categories - ADEQUATE. Projected status: Community
Parks - LIMITED; all other categories - ADEQUATE. At present, 78
acres of community parks are demanded. The City does not have any
developed community parks. Implementation of the proposed 1983-88
CIP will provide 25 acres of community parks over the next five
years. In addition, another 30.5 acres of "other parks" can be
credited to the community park category. This will bring the total
to 55.5 acres over five years. See the Parks & Recreation section
(pp. 3-4) for further discussion.
4. Library - Present status: ADEQUATE. Projected status: INADEQUATE.
The City currently provides 24,700 sq.ft. of library space. The
five-year projected demand is forecast to be 26,760 sq.ft. See the
Library section (p.5) for further discussion.
5. Fire - Present status: ADEQUATE. Projected status: LIMITED to
INADEQUATE (southwest portion of the City). Recent construction
activity could add 1100 new units to the existing 1500 units in the
southwest that are beyond the five-minute response time. See Fire
section (pp.6-7) for further discussion.
6. Circulation - Present status: ADEQUATE. Projected status: ADEQUATE.
Except for sections of Palomar Airport Road and La Costa Avenue (see
text, pp.8-g for discussion), projected five-year traffic volumes
will be less .than 70% of roadway capacities for all other Carlsbad
arterials.
PFMS - SEPTEMBER, 1983 - SUMMARY/2
7. Administrative Facilities - Present status: INADEQUATE. Pro-
JeCted status: ADEQUATE. Current space requirements exceed
supply by 27,040 sq.ft. Construction of the approved Police/
Fire Operations Center, coupled with existing square footage,
would provide enough administrative facilities to exceed the
projected five-year demand. However, the status of Operations
Center will be determined by the results of November election.
* Projected status is based on respective benchmark time frames.
Water, sewer, library, circulation and administrative facilities -
five years. Parks and fire - three years.
PFMS - SEPTEMBER, 1983/l
WATER
Standard: Benchmark 1, design capacity of distribution system will
be reached in five years.
Benchmark 2, water demand fully using design capacity.
Present status: Adequate Projected status: Adequate
Demand:
The five year population projection based on the 26 month
monitoring period is 5456, which is down 210 from the previous report*.
Approximately 10.7-million gallons per day (MGD) are demanded by the
current population. The PFMS' five-year population projections
(based on final inspections and a per capita demand of 100 gal/day)
would increase water demand by approximately 0.5 MGD. The projected
total water demand in five years would be 11.2 MGD.
Supply:
At present, 210.8-million gallons of water can be stored.
This storage capacity can supply approximately 19.7 days of water
given the current demand. The water districts consider two days stor-
age under maximum demand conditions are adequate. Based on storage
capacity, current demand is 5.1% of capacity.
Discussion:
The total five year PFMS projected demand of 11.2 MGD would
reduce storage from 19.7 days to 18.8 days. Based on storage, the
projected demand will be 5.3% of capacity. It should be noted that
the water transmission lines can deliver a much greater flow than
required by the five year projected demand. Based on the current
status of water supply to the City, water service is below Benchmark
1 and is considered ADEQUATE.
* Note: Some of this demand will be in the Olivenhain and San Marcos
Water Districts. At present it is not possible to track the
demand in these two water districts.
' PFMS - SEPTEMBER, 1983/2
SEWERS
Standard: Benchmark 1, projected average daily flow in equivalent
dwelling units equals design capacity in five years.
Benchmark 2, average daily flow equals design capacity.
Present status: ADEQUATE Projected status: ADEQUATE
Demand:
Approximately 423 Equivalent Dwelling Units (EDUS) were
issued during this monitoring period. This is an average 47.0 EDU/mo.
This average is up from the previous monitoring period (which was 40.4
EDU/mo.). Based on this nine-month monitoring period, the five-year
projected sewer demand is 2,820 EDUs. This would be in addition to
the current estimated flow of approximately 14,864 EDU (3.66-million
gallons per day-MGD).
Supply:
As of November 1, 1982, Carlsbad had 2889.67 EDUs available.
The 423 EDUs issued since November 1982 reduce Carlsbad's allotment
to approximately 2,467 EDUs. Approved Encina expansions (III and III-A) and the Lake Calavera Hills (LCH) Plan would increase the City's
allotment by approximately 12,800 EDUs.
Discussion:
The projected PFMS five-year demand exceeds the current
available allotment. Encina expansions (III and III-A) are scheduled
for completion in January, 1984. The Encina Expansions will increase
Carlsbad's allotment by approximately 7,000 EDUs. Therefore, sewer
facilities are currently ADEQUATE and are projected to remain adequate
over the next five years.
1 .-.-*.“* _._, : / is
' PFMS - SEPTEMBER, 1983/3
PARKS & RECREATION
Standard: Benchmark 1, less than two acres of developed Community
Parks, .5 acres of Special Use Areas, and 2.5 acres of
Special Resources Areas per 1000 population within
three years.
Benchmark 2, fewer than the required acreage of the
three park categories per 1000 population.
Present status: Community Parks - Projected status: Community Parks -
ADEQUATE LIMITED
All other categories - All others -
ADEQUATE ADEQUATE
Demand:
Based on the park standards established by the revised Parks
and Recreation Element, the current park demand is as follows:
Community Parks 78.0 acres
Special Use Facilities 19.5 acres
Special Resource Areas 97.5 acres
The PFMS projected park demand in three years would be as
follows:
Community Parks 84 acres
Special Use Facilities 21 acres
Special Resource Areas 105 acres
Supply:
The City holds title to over 600 acres of Special Resource Areas
which will satisfy the park need even for a buildout population. There-
fore, the Special Resource Area category will no longer be monitored by
PFMS.
The City owns, or holds, joint-use agreements on approximately
45 acres of developed Special Use Facilities (SUF), (e.g. Carlsbad Swim
and Tennis Complex, Pine and Chase Fields, etc.). The City also owns, or
has dedication agreements for ap,proximately 95 acres of Community Parks.
(Currently none of the Community Parks have been developed.) In addition,
the City has approximately 30 acres of "other" developed parks which,
when added to the 45 acres of SUF, equals about 76 acres of developed
Parks & Recreation facilities. The "other" category includes neighbor-
hood and mini-parks. The City, with the adoption of the revised Parks
and Recreation Element, has changed to a philosophy of larger but fewer
community parks and will no longer acquire and develop the smaller
neighborhood and mini-parks.
PFMS - SEPTEMBER, 1983 - PARKS & RECREATION/4
Discussion:
Special Use Facility requirements are satisfied for a popula-
tion of approximately 90,000 and, therefore, Special Use Facilities are
both presently and in the benchmark timeframe considered ADEQUATE. Since
the City does not have any developed Community Parks and 78 acres are
currently demanded, this facility service level can be considered inade-
quate.
It would not be reasonable,in light of the time involved, to
acquire and develop approximately 80 acres of Community Parks all at once.
Furthermore, it would not be economically feasible to finance all the neces-
sary park projects at the expense of other capital projects. Therefore, for
the purposes of PFMS, the existing 30.5 acres of "other" parks will be credi-
ted towards the Community Park needs. When the City has met the Community
Park demands, the "other" category will no longer be credited towards Com-
munity Park requirements. However, given the above discussion, Community
Park Supply is still considered inadequate. The current 1983-88 CIP has
requests for the development of approximately 25 acres of Community Parks.
When the CIP requests are added to the 30.5 acres (credit as noted above),
a total of 55.5 acres of Community Parks could be provided over the next
five years. Given a five-year projected need, the status is considered
limited.
In any case, the general conclusion to be drawn is that continued
emphasis needs to be placed on developing community park facilities.
C
PFMS - SEPTEMBER, 1983/5
LIBRARY
Standard: Benchmark 1, less than 0.6 square feet per capita within
five years.
Benchark 2, space requirements equal space demands.
Present status: ADEQUATE Projected status: INADEQUATE (see
discussion below)
Demand:
Approximately 23,400 square feet of library space is demanded
by the current population. The five year PFMS population projection,
based on the present monitoring period, is approximately 5,600 additional
people. This projected population would require 3,360 square feet of
library space , or a total of 26,760 when combined with the current demand.
Supply:
The City currently has approximately 24,700 square feet of library
space, plus 2,000 sq.ft. of storage located near Palomar Airport. The 1983-
88 CIP does not contain projects for expansion of library facilities.
Discussion:
The last PFMS monitoring report noted that projected demand was
98% of the current supply of facilities. The increased residential buil-
ding activity recorded in the present monitoring period has caused library
facilities to fall below Benchmark 1. Library facilities are currently
adequate, but could fall to inadequate within five years if current faci-
lities are not expanded. At present, there are plans to construct a 3,000
sq.ft. modular library branch in La Costa. If approved, this would increase
library space to 27,700 sq.ft. (excluding the storage space), and the pro-
jected status would change inadequate to adequate.
PFMS - SEPTEMBER, 1983/6
FIRE
Standard: Benchmark 1, 750-800 additional units outside the five-
minute response time.
Benchmark 2, when 1500 additional units are within the
five-minute response time of a future fire station.
Present status: ADEQUATE Projected status: LIMITED TO INADEQUATE
(southwest portion of
the City)
Demand:
There were 208 structures constructed during the present moni-
toring period. In addition, there has been a total of 1001 structures
constructed since PFMS monitoring began. Most of the construction has
been in areas within the five-minute response time. Several areas out-
side the five-minute response time have recently begun to develop (see
discussion below).
Supply:
The standard for fire service is measured in number of units beyond
the five-minute response time. It was assumed that when PFMS began, fire
service was adequate for the City as a whole, but that some areas experienced
below ideal fire service. However, the initiation of PFMS began the counting
of units outside the five-minute response time.
Discussion:
The last PFMS monitoring report contained an analysis of fire ser-
vice, based on final map approvals. Since that report, it has been deter-
mined that building permits would be a better indicator of future demand
because of the certainty of development. PFMS monitoring is currently done
by hand (not automated), so a re-examination of fire service demand, using
building permits, would require a tremendous records search.
Generally, there has been a large amount of construction activity
in areas beyond the five-minute response time. In the southwest Plaza
Builders has begun construction on the first phase of 300 units, and Stan-
dard Pacific has begun grading for 584 units. Pacesetter has also begun
grading for the first phase of 260 units. In the La Costa area, construc-
tion has begun on over 300 units adjacent to Alga Road and El Fuerte. In
the northeast there has been a surge in building in Lake Calavera Hills.
Finally, industrial construction continues in the Palomar Airport corridor.
ic
PFMS - SEPTEMBER, 1983 - FIRE/7
Discussion/continued...
The new development at the east end of Alga Road is just beyond
the five-minute response time from Station No. 2. The new units there
do not exceed Benchmark 1, but PFMS will closely monitor development in
this region. The majority of the development in Lake Calavera Hills can
be adequately served by existing Station No. 3. PFMS will monitor this
area closely because pending development of subsequent phases of Lake
Calavera Hills, as well as the Carlsbad Highlands project, would place
enough units beyond the five-minute response time to exceed Benchmark 2.
Development in the Palomar Airport area is primarily large
scale industrial. The Benchmark system based 800-1500 units may not be
expressive of fire service needs in the industrial area. Less than 50
new structures have been constructed in the area and Benchmark 1 is far
from being exceeded.
At the beginning of PFMS, there were approximately 1500 units
beyond the five-minute response time in the southwest of the City. The
recent construction activity there could add over 1,100 new units to
this area within the next few years. Therefore, fire service demand in
the southwest will exceed Benchmark 1, based on projected new develop-
ment, or may exceed Benchmark 2 when existing development is also con-
sidered.
The 1983-88 CIP includes fire station projects in all the affec-
ted areas noted above. Implementation of the CIP would provide adequate
fire service for all portions of the City, except the southwest. The CIP
fire project in the southwest allocates $150,000 for the purchase of a
site only. City Council has recently authorized the utilization of sur-
plus land in the southwest for a fire station site. Since the impending
need for a station in the southwest is greater than in Lake Calavera Hills
(LCH), or east La Costa, Research/Analysis Group recommends that the CIP
be modified in 1984 to include construction of a station in the southwest.
If all the proposed fire stations cannot be provided with available CIP
funds, Research/Analysis Group recommends that the station in the south-
west be given priority over the ones in LCH or east La Costa.
PFMS - SEPTEMBER, 1983/8
CIRCULATION
Standard: Benchmark 1, traffic volume is 70% of road capacity.'
Benchmark 2, traffic volume is greater than 90% of road
capacity.
1 Road capacity can be defined as the maximum volume of traffic for
which a'road-can provide an acceptable level of service (Highway
Design Manual).
(ADT).
Volume is usually measured in average daily trips
Present status: ADEQUATE* Projected status: ADEQUATE*
*except for Palomar Airport Road and La Costa Avenue (see discussion
below).
Demand/Supply:
At present Palomar Airport Road (PAR) east of El Camino Real
(ECR) and La Costa Avenue between I-5 and ECR are the only long stret-
ches of road that have exceeded Benchmark 1. It should be noted that
several intersections, as tie11 as individual blocks, have exceeded
Benchmark 1. The Engineering Department is aware of the problem inter-
sections and blocks. PFMS is not designed to produce detailed traffic
studies and, therefore, cannot predict the impact of development on
intersections or individual blocks. Instead, PFMS can monitor the
location of development and, in a general way, predict its impact on
"arterials."
Discussion:
During the past monitoring period, three areas continued to
show the greatest development activity. They are:
1. La Costa
2. Lake Calavera Hills
3. Palomar Airport
In addition, development activity is beginning in the southwest
section of the City. Development in areas 1 and 3 above will add to the
deterioration of service levels on the already impacted arterials noted
above. Residential development trends in La Costa (20 du/mo) could almost
double the traffic on La Costa Avenue over the next five years. Develop-
ment trends in the Palomar Airport area have the potential of generating
approximately 6,300 additional trips per day to PAR in the next five years.
A
PFMS - SEPTEMBER, 1983 - CIRCULATION/9
The 1983-88 CIP does not contain any project requests for imp-
rovements to the impacted roads. La Costa Avenue is in the county (but
within the City's sphere of influence) and, therefore, not currently
under the City's control.
It is the present City policy to have developers build the road
improvements on arterials adjacent or through their property at the time
of development. Therefore, it is assumed that PAR east of College will
be improved when the adjacent land is developed. The PFF contains fun-
ding ($2,500,000) for improvements to PAR where no development is expected.
The expenditure of PFF funds is dependent upon availability and priority of
other PFF projects. Utilization of PFF funds for PAR will probably not
occur until private development along the road initiates the needed road-
way improvements.
At least for the present, it does not seem feasible for the City
to establish the capital improvement projects to increase the capacity of
the impacted arterials. As an alternative, the City could work with the
County to upgrade La Costa Avenue. In addition, the City should continue
to require improvement of PAR as adjacent development is constructed.
Also, the CIP should recognize the need to accumulate PFF revenues for
PAR improvements.
PFMS - SEPTEMBER, 1983/10
ADMINISTRATIVE FACILITIES
Standard: Benchmark 1, when the PFMS population projections indi-
cate that respective target populations would be reached
in five years and the then existing space would be below
the space required at the target population.
Benchmark 2, facility space is less than the space req-
uirements at the target populations.
Note:
The SUA report, accepted by the City Council in 1978, sets forth
recommended administrative space requirements necessary to serve the
City through a range of populations. The SUA recommended space req-
uirements are as follows:
Space Requirements in Sq.Ft. Target Populations
64,540 35,000
101,000 60,000 115,000 100,000
Present status: INADEQUATE Projected status: INADEQUATE (see discussion below)
Demand:
Development activity during the present monitoring period indi-
cates an upward trend in the City's growth rate over the last monitoring
period. According to the PFMS standard, the City currently needs 64,540
sq.ft. of administrative facilities, The five-year PFMS population pro-
jection is 44,667 (August.1, 1988), which is less than the 60,000 thresh-
hold population which would require 101,000 sq.ft. of administrative
facilities.
Supply:
The City has approximately 37,500 sq.ft. of administrative
facility space.
Discussion:
The current CIP contains two projects which would add considerably
to the City's administrative facilities. City Hall expansion would add
24,000 sq.ft. and the Operations Center would add 110,000 sq.ft. Construc-
tion of the City Hall expansion would not by itself bring the projected
status to the "adequate" level. City Hall expansion is a three-year
PFMS - SEPTEMBER, 1983 - ADMINISTRATIVE FACILITIES/11
Discussion/continued...
phased project scheduled to begin in 1985. Funding for this project
has not yet been. appropriated and this project will be subject to
Council approval before implementation.
The Operations Center is also a phased project that has already
begun. The project has received $3,250,045 in appropriations for fiscal
year 1983-84. However, the project is on temporary hold until the res-
ults of a November, 1983 ballot measure are known. The project is sub-
ject to voter approval, pursuant to Ordinance 1255 (million dollar spending
limitation). Should the voters approve the project, administrative facili-
ties would become adequate upon project completion. If the voters do not
approve the project, facilities would be considered grossly inadequate.
PFMS - DATA - SEPTEMBER, 1983
APPENDIX
Monitoring period - November, 1982 thru July, 1983 - 9 months.
Residen tial Development: d
Applications 2,471 x 2.54" = 6,276 population
Approvals 900 x 2.54 = 2,286 '
Final Maps 537 x 2.54 = 1,364 '
Building Permits 726 x 2.54 = 1,844 '
Inspections 298 x 2.54 = 757 'I
*household size as per 1980 census.
ANALYSIS:
Table 1 provides an analysis of the various monitoring points. The moni-
toring points represent the assumed time frame for demand for public
facilities as follows:
1. Final Inspections = immediate potential demand
2. Building Permits = potential demand within 1 year
3. Final Maps = potential demand with l-3 years
4. Tentative Approvals = potential demand within 2-4 years
5. Applications = potential demand within 2-5 years
Note: Almost all building permits yield structures (i.e., potential
demand), whereas, only a percentage of applications, tentative
approvals and final maps are implemented.
1. FINAL INSPECTIONS:
Table 1 indicates a moderate increase in residential development over
the last monitoring period. There is no significant difference in
residential final inspections between the current monitoring period
and either the previous like period, or the total monitoring period.
Commercial development in the current monitoring period is about
equal to that for the entire monitoring period. There were no comp-
leted industrial developments during the current period. Industrial
completions have been averaging slightly more than 1 per month over
the entire monitoring period.
PFMS - DATA - SEPTEMBER, 1983/...2
2. BUILDING PERMITS:
Residential building permits were up significantly. In fact,
residential activity during the current monitoring period
accounts for almost 57% of the dwelling units represented by
building permits. Building permit activity was about average
for commercial structures, but was almost double the monthly
average for industrial units, when compared to the total moni-
toring period.
3. FINAL MAPS:
The monthly average of dwelling units represented by final maps
was significantly up when compared to the last monitoring period,
but was slightly below the monthly average for both a previous
like period and the total monitoring period.
There were no commercial, or industrial, subdivisions finalized
during the current period.
4. TENTATIVE APPROVALS: (see figure 2)
900 residential units (100 du/mo) were approved during the cur-
rent monitoring period. This is moderately lower than the 147.6
du/mo average tentatively approved throughout the entire moni-
toring period, but approximately equal to the 105.4 du/mo average
of the previous similar monitoring period.
Commercial approvals ran about the same (5.2 vs. 5.7 per mo) as
the previous like period, but considerably higher than the average
for the total period (5.2 vs. 2.7 per mo). Industrial approvals
were substantially lower than for any previous monitoring period.
5. APPLICATIONS: (see figure 1)
On the average, .more residential units were applied for during
the current period than at any other period throughout the moni-
toring history. Applications for 606 units and 5 lot splits were
the second highest monthly total recorded since monitoring began
(the highest was 971 multi-family units in June, 1982).
Commercial applications were about average, but industrial appli-
cations were considerably below average.
17
. * ‘2‘ - m 2 u o-i . . N cu t-9 . c 7 N
Lr -h 7 w uh . . . co .
w- CUN or- Ln mcu In
F . I-FJ a3
t-e m- wo
xi - hrn Nd -ccl - N
3 0
- v CI Ia v l-3 In . m
h” . 0 P -aI ttn . r-y ad
0 rb
2 C-Y -co . Oh h
. is - w uh
M .
E.2 h-J- . ulm h?
r-. W u . .
wo e-r- pi (VC0 - h
N M
CoGorl-md is:”
W t-7 . . do, t--P ml- r-u u pr) !-I cu P , w & 2
- F
gcj or: && - I I N
‘4-l N
l .
cnr- cur-
c9 e-l
?A 2 W -W (cIK.3 w 0% WI- s
; z
d r”
I I
850
' 800
650
600
500
UNITS
450 I
250
1981 I J F,M
1982
. I \ \ 4 , \ \ \ , \ . \ \ ,
:
!
6
,
.
,
+
,
\
‘
RESIDENTIAL DEVELOPMENT
APPLICATIONS
single-fami
multi-family
AS0 NDc, L F M
1983
figure 1
.
900
850
800
750
700
650
600
550
500
UNITS 450
400
350
300
250
200
150
100
50
RESIDENTIAL DEVELOPMENT
TENTATIVE APPROVALS
single-family 1-1 multi-family m
1983
figure 2