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1984-02-14; City Council; 6133-9; Agua Hedionda Lagoon Study
CIT. OF CARLSBAD - AGENDA BILL © AB#-& MTQ. 2/14/84 DPPT P & R TITLE: AGUA HEDIONDA LAGOON STUDY DEPT. HD. CITY MGFL QLU O Q. < Z O Oz I RECOMMENDED ACTION: City Council direct staff to continue the existing lagoon program, monitor silt and sandbar build-up, plan for future south shore launching facility development, monitor improvements to the Hindsong/Papagayo easement, and continue to seek funds for dredging. ITEM EXPLANATION: Staff has completed a study on the long and short range plans for the Agua i-ledionda Lagoon. A presentation using visual aids will be made to the Council outlining the current program and various issues. PARKS & RECREATION COMMISSION: At their August.15, 1983 meeting the Parks & Recreation Commission recommended the following: - The lagoon is a valuable resource that should be expanded and developed. - The lagoon should be dredged. - Continue with the existing activities but separate passive and active uses by utilizing the outer lagoon for passive activities. - Do not develop Hoover Street as a launching facility, but keep the easement. - Develop the launching facility on the south shore and the Windsong/ Papagayo property. - Provide for public access. FISCAL IMPACT: Estimated cost for projects outlined in this report are: - Hoover Street Launching Facility $1,214,596 - South Shore Launching Facility $585,000 -Dredging $815,000 to $1,342,000 - Windsong/Papagayo $175,000 (to be completed by developer) PAGE 2 of AB# FUND AVAILABILITY: The Windsong/Papagayo project will be constructed by the developer. The south shore marina development is scheduled to be constructed in the ninth year of the 15-year phase program in the Macario park plan from PFF funds. Hoover Street facility and dredging are unfunded projects. MAINTENANCE IMPACT: Undetermined at this time. EXHIBITS: 1. Agua Hedionda Lagoon Study February 9, 1984 TO: CITY MANAGER FROM: Parks & Recreation Director AGUA HEDIONDA LAGOON (AHL) STUDY Statement of Purpose The purpose of this study is to update the issues pertaining to the short and long range plans, current adopted programs and their fiscal impact on the Agua Hedionda Lagoon (AHL). Summary of Findings The direction the City should take regarding the future use of AHL is rather complex. Traditionally, the lagoon has served as an active regional aquatic resource. The primary users of the lagoon have been non-residents. Because of the economic climate and various restrictions, power boat usage is on a decline. However, passive use type activities are on the increase. To reduce the City's liability and to make water skiing safer, dredging should be considered in the future. Dredging materials can be distributed on the beach. Developing a small boat launching facility on the south shore and adding improve- ments to the Windsong/Papagayo easement in the future has some merit. Developing Hoover Street extension may not be cost-effective. Funds for AHL capital projects have not been budgeted. There are some monies available through a State Grant Program for launching facilities, marina develop- ment, and some dredging. The average grant throughout the state has been $147,000. Staff is presently reviewing the status of other state and federal grant programs. Qpti ons/Alternati ves for AHL 1. Have State take over control of lagoon 2. Return to SDG&E 3. Contract out to private operator 4. Continue existing program and monitor impact of uses 5. Plan for long range uses a. Dredge b. Public launch facilities c. Improvements to Middle Lagoon d. Implement passive usage concept EXHIBIT 1 Agua Hedionda Lagoon Study February 9, 1984 Background and History AHL comprises approximately 230 water surface acres. The lagoon extends 1.7 miles inland from the coast and is approximately .5 miles wide. Fifty-five species of birds and extensive colonies of eel grass inhabit the lagoon area. The lagoon is divided into three distinct areas: Area 1 Outer Lagoon - 66 acres of water surface - Used as a cooling water source for the SDG&E power plant facility - Southern part used for aquatic life experimentation purposes - Northern part used by public for fishing - No other activities allowed Area 2 Middle Lagoon - 27 acres of water surface - Water surface leased by City from SDG&E - City subleases water surface to YMCA - Is a popular clamming area - Some use by general public - Primarily used for passive water activities - Is very shallow in spots Area 3 Inner Lagoon - 140 acres of water surface - Water surface leased by City from SDG&E - City has two agreements with private landowners to provide boat launching facilities and public access - Area used primarily for active and passive water activities - There has been a liability and noise problem associated with power boats - Has a silt and sandbar problem -2- Agua Hedionda Lagoon Study February 9, 1984 Originally, the lagoon was a restricted salt water marsh. The three separate lagoon areas were created by the construction of Highway 101, the railroad bridge, and Interstate 5. SDG&E purchased the land and water surface areas in 1950. Between 1952 and 1954, SDG&E removed approximately 4,279,319 cubic yards of sediment from the three lagoon areas. This dredging project established the depth of the lagoon to approximately 10 feet. SDG&E also created the two permanent inlet and outlet channels to allow permanent tidal flushing. This created the potential for various lagoon uses and a new ecosystem. The State has identified the lagoon as one of the 19 California Coastal wet lands that they would like to acquire. For many years the lagoon has been used by power boaters for water skiing. A recent ordinance revision has allowed other uses with specific controls and conditions, i.e. sailboats, board-sails, jet skiis, and fishing. Bristol Cove has an agreement with SDG&E that grants them access from their development to the lagoon water surface. Other important dates and actions are noted as follows: 1. 1800 - railroad constructed 2. 1910 - Highway 101 constructed 3. 1957 - City leased water surface of inner and middle sections of lagoon from SDG&E 4. 1962 - City subleased the water surface of the middle sections to the YMCA 5. 1967 - Interstate 5 constructed 6. 1978 - Dredging report prepared 7. 1980 - Lagoon enforcement program implemented 8. 1981 - Macario Plan adopted 9. 1982 - AHL Land-Use Plan adopted Discussion The AHL Land-Use Plan was adopted in May of 1982. The plan identifies the requirements, policies, goals and priorities of the California Coastal Act and the Carlsbad General Plan. The Land-Use Plan also highlights: -3- Agua Hedionda Lagoon Study February 9, 1984 - Land use areas - Agricultural requirements - Environmental data - Geological hazards - Public works demands - Recreational demands - Shoreline accesses - Visual resources - Circulation and bike routes Future Plans The main emphasis of discussion in this report will deal with the short and long range plans relating to the recreational uses of the lagoon. Short Range Plans 1. Provide safe environment/reduce city liability 2. Generate revenue 3. Continue with various lease, agreements, and subleases 4. Continue to monitor sandbar and silt build-up 5. Monitor existing uses Pbssible Long Range PIans 1. Public boat launch facilities a. Hoover Street b. South shore adjacent to SDG&E land 2. Dredging a. Sandbar b. Silt build-up 3. Develop public access at Middle Lagoon a. Papagayo 4. Expand recreational usage a. Outer Lagoon b. Middle Lagoon -4- Agua Hedionda Lagoon Study February 9, 1984 5. Macario Development Plan a. South shore development 6. Implement Land-Use Plan 7. Grants 8. Harbor entrance expansion 9. Revert Inner Lagoon to passive use only 10. Sublease to private enterprise 11. State take over 12. Monitor agricultural uses 13. Generate additional revenues Fiscal Implications There are several long range projects that may have a tremendous financial impact on the future plans for the lagoon. The idea of developing Hoover Street access into a boat launch facility has been explored for years. The greatest expense would be the acquisition of land for off-street parking. The Macario Park plan recommends that the City build a revenue generating non-motorized boat launch facility on the south shore leasing the land from SDG&E. Funds for this project have been incorporated into the Public Facility Fee. Dredging has been an issue for years and will be a continuing problem. A cost analysis of these projects is as follows: I. Hoover Street Boat Launch Facility: a. Land Acquisition (parking) b. Street Improvement c. Parking Improvements d. Restroom Facility Total Cost $1,214,596 -5- 7 Agua Hedionda Lagoon Study February 9, 1984 II. South Shore Launching Facility: Cost a. Boat Launch Non-Motorized b. Rental Office c. Restroom d. Tackle Shop/Food Concession e. Land Lease from SDG&E Total Cost $585,000 III. Papagayo Easement Development Middle Lagoon: a. Steps b. Boardwalk c. Dock d. Picnic Area e. Restrooms f. Land Dedicated to City Total Cost $175,000 (partially funded and constructed by the developer) IV. Dredging: According to the dredging study prepared by David Smith and Associates in 1978, it is feasible to dredge Agua Hediona Middle and Inner lagoons with a portable hydraulic suction dredge. Sediments dredged appear to meet the Environmental Protection Agency's criteria for disposal as a beach nourish- ment. Disposal may require pumping distance of 4,000 to 6,000 feet. To restore the Middle and Inner lagoons to the 1954 depth (10'), approximately 310,000 cubic yards of sediment would have to be removed. It is possible to reduce the cost by cutting the tops off of the bars and shoals to a depth of 5 to 6 feet. This would require a removal of about 25,000-60,000 cubic yards of sediment. However, the study indicated that it is more cost-effective in the long run to remove the larger quantity rather than the cheaper smaller quantity or an incremental approach. Several questions must be answered before the City should undertake a project of this magnitude. -6- Agua Hedionda Lagoon Study February 9, 1984 1. Does the present and anticipated future use warrant a major dredging expenditure? Presently, water skiers can get around the sandbar adjacent to the 1-5 bridge. However, it appears that the sandbar is increasing in size. Siltation on the southern and eastern shore is also building up reducing the lagoon's water surface. 2. Does the City wish to continue active boating use? If not, dredging may not be required. 3. Will U.S. Wildlife Service and the Coastal Commission approve dredging that will disturb the eel grass colonies? There is controversy on whether dredging encourages eel grass growth rather than destroying it. The cost of dredging has been updated from the study utilizing a 69.8% inflation factor (CPI) since 1978. The inflation factor may be rather high. It is based on the growth indicator in the San Diego area. Contractor's price may be 10% less. Dredging Cost 1978 1983 Lease from SDG&E $480,000-510,000 $ 815,000- 866,000 City Lease & Operate* 490,000-525,000 832,000- 811,050 Open Bid 645,000-750,000 1,095,000-1,274,000 City Purchase* 635,000-790,000 1,078,000-1,342,000 *Does not include hidden cost that would drive estimated cost up. Fund Availability Funding the projects outlined in 1-4 is a major problem. Funding sources for development projects could be: - General Fund - Park In Lieu (PIL) - Public Facility Fee (PFF) - Grants - Bonds - Others -7- Agua Hedionda Lagoon Study February 9, 1984 Funding for dredging could be all the above and in addition: - U.S. Army Corps of Engineers - Various State & Federal Grants The AHL projects have not been incorporated in the long range PIL and/or PFF fund programs, except for south shore marina development in the Macario Plan. However, Council may wish to revise the Parks and Recreation Element to the General Plan to incorporate the additional projects. Grants A grant program which the City may wish to explore is offered by the State Department of Boating and Waterways. The program has approximately $2,000,000 per year available for certain approved projects. It is based on a usage and benefit analysis that can be justified economically. The funds are generated through gas sales tax from pleasure boats. 100% funding is available. The grants are approved on a competitive basis depending on the size of water area and amount of potential use. The average award throughout the State has been $140,000. The highest grant approved to date was for an exceptionally lacge project in the Los Angeles area for $1,000,000. Grant applications must be submitted prior to June 1 of each year. Funds may be requested for marine facilities and boat docks. Dredging can be a portion of the request. To be eligible, the applicant must be in control of the land and water for at least 20 years. An Environmental Impact Report and a feasi- bility study must also be completed. The launch area must be made free to the public, however, an entrance fee may be charged for admission into a recreational complex in which the launching ramp is located. There is also a loan program available. The rates are 7.9% for 30 years. Who Uses the Lagoon? The lagoon historically has been used as a regional area. Records from the last three years indicate that 57% of the annual users and 88% of the daily users are non-residents. The average number of all boats using the lagoon June through July, 1983 is 17 per day. Power boat usage averages 8 per weekday and 18 on weekends. Revenues from permits have decreased from a high in 1980-81 of $16,750 to a low in 1982-83 of $11,049. Current Adopted Program The current adopted program for the lagoon is administered by the Parks & Recreation Department. The City has an agreement with Dr. Sarkaria who provides a launching and parking facility for the users of the lagoon at Snug Harbor Marina. -8- IC Agua Hedionda Lagoon Study February 9, 1984 The Department implemented a use permit program in 1980 which helps offset maintenance and operation costs. Rules and regulations are updated each year to provide a safer environment. Current approved uses of the lagoon are: - Power boating - Water skiing - Jet ski is - Sail boating - Board-sailing - Fishing Conclusion AHL is a valuable regional resource that is facing some serious growth problems if it is to be used for active recreational uses. This study has explored the history, short and long range plans, public launching facility development, dredging, cost related to long range projects, various options open to the City and fund availability. Currently, existing programs/activities in the Inner Lagoon are working out well. However, with the increase of sandbar and silt build-up year after year, dredging or changing the intent of use must be a high priority. Fund availability is a problem. The only long range project that PFF monies have been planned for is the south shore boat launching development during the 9th year of the 15-year phase in the Macario development program. Grants may not fund 100% of the other projects based on benefit and demand. The most logical action presently would be for the City to continue the existing program and to closely monitor the sand and silt build-up. It appears that because the lagoon is such a valuable resource, it could be a benefit to the City. Developement plans for boat launching facilities and public accesses should be considered in the future. DAVID BRADSTREET DB:jm -9- // Bibliography City of Carlsbad. "Agua Hedionda Land Use Plan", May, 1982. Iwanaga and Associates. "Development Plan for Macario Canyon Park", December, 1982. Smith, David R. and Associates. "An Analysis of Dredging Requirements for Agua Hedionda Lagoon", July 28, 1978.