HomeMy WebLinkAbout1989-11-14; City Council; 10370; NORTHWEST QUADRANT CITIZENS' GROUP REPORTGIIWW GARLSBAD - AGEN~ILL
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AB# 1 L, '3 "IC TITLE: DEPT. I
MTG. 11-14-89 NORTHWEST QUADRANT CITIZENS' GROUP REPORT DEPT. RES
CITY A'
RECOMMENDED ACTION:
CITY M
Consider report and take appropriate action.
ITEM EXPLANATION:
Mr. Monroy, on behalf of the Northwest Quadrant Citizens' Group, ha! requested that the City Council consider their parks report.
FISCAL IMPACT:
None at this time.
EXHIBITS:
1. Letter from Mario R. Monroy to the City Manager, dated October 25, 1989.
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October 25, 1989 D'CT 1989
@I). MAN&g-I-
' cW€l40 cITY w'"':
Ray Patchett
Carlsbad City Hall Carlsbad, CA 92008
Dear Ray:
The Northwest Quadrant Citizens' Group requests that it be put
on the agenda of the city council meeting at which the Parks and. Recreation Commission will present their report on park
issues in the Northwest Quadrant. The Group has prepared a
separate report which it wishes to present to the council for
its consideration.
Please let me know as soon as possible the date on which this
matter will be discussed.
Y/' /p/ Sincer,@y,
Lfl& c-
Mz'rio R. Monroy i' 361 0 Carlsbad Blvd,
Carlsbad, CA 92008 pH2.
729-7242
cc: Mayor Lewis Dave Bradstreet
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REPORT ON PARK ISSUES
IN THE NORTHWEST QUADRANT
by
The Citizens' Group
Mignon Bowen Jeanne McFadden
Margaret Brownley Margie Monroy
Dave Copley Mario Monroy
Ramona Finnila Gini Morito
James M. Gaiser Barbara Otwell
Thelma Hayes Roy P. Sanchez
Don Jackson Pearl Tade
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PARK ISSUES IN THE NORTHWEST QUADRANT
INTRODUCTION
In February, 1989, a group of concerned residents of the Northwest Quadrant of Carlsbad,
herein referred to as the Citizens’ Group, met to discuss park issues in this area. The first
concern of the Group was the city’s current policy of counting school grounds at 100% of
their acreage to meet park standards. The city now counts 22.4 acres of school grounds to
meet park standards in the Northwest Quadrant. This represents 27% of the Northwest
Quadrant’s park land and is all used for active organized recreation.
On November 4, 1986 the citizens of Carlsbad approved Proposition E (See Attachment I)
which requires that construction of all necessary public facilities, including parks, must be
guaranteed before the Council or the Planning Commission can make findings that the
requirements of the growth management plan have been met. The city cannot guarantee the
continued existence of parks on land it does not own.
If the city continues to count school grounds and leased lands as parks and they become
unavailable, the city, under the growth management plan, might have to purchase land to
replace any shortfall from the general fund if growth is to continue. By that time, land will
be even scarcer and more expensive than it is now. This policy is delaying the development
of new parks citywide while land is still available. The problem is particularly pronounced in
the Northwest Quadrant where city reports indicate that the area west of the freeway in the
quadrant is at 90% of buildout, while the area east of the freeway is at 79% of buildout.
As a result of these concerns, the Citizens’ Group requested that the City Council create an
ad hoc committee to address park concerns. Instead, the Council asked the group to appoint e
number of its members to work with a sub-committee of the Parks and Recreation
Commission. These two groups met together for three months and have produced two
separate reports. The Citizens’ Group is submitting this separate report on park issues
because there still are fundamental differences between the Parks and Recreation sub-
committee and the Citizens’ Group. While there are a few areas of agreement in the two reports on individual parcels recommended by the Citizens’ Group for park development, the
difference in approach to counting school grounds makes it impossible for the Citizens’ Groq
to be associated with the report of the sub-committee of the Parks and Recreation
Commission.
Furthermore, the Citizens’ Group feels the statement in the sub-committee report regarding
the possibility of acquiring surplus school property at 25% of its value and the concluding
statement regarding the future acquisition of Pine School are misleading.
This report presents a list of recommendations for Council consideration. It includes
information on the park inventory, sites for possible development of parks and financial
considerations to support the recommendations.
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1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
RECOMMENDATIONS
To meet the demands of the growth management plan in the Northwest Quadrant, a
five-year transitional period, starting July 1, 1990, will provide the City with an
opportunity to replace school grounds in the park inventory with other parks.
During the transitional period, school grounds and other leased land should be counted
at 40% of their acreage. This figure reflects the amount of time that school grounds
are open to the public.
Schools should not be counted to meet city park standards in the Northwest Quadrant
after a five-year transitional period. In Park Districts 2, 3 and 4 (the Northeast,
Southeast and Southwest Quadrants), this policy should be implemented immediately
to avoid the problems that have arisen in the Northwest Quadrant.
The Parks and Recreation Element should be revised to reflect the recommendations
above. Furthermore, the element should be changed to take into account the special
problems of the Northwest Quadrant. For example, the large community parks
envisioned by the element are not possible in this highly developed section of the city.
Joint use agreements with the school district, which are negotiated on a yearly basis,
should be continued since they provide facilities needed for organized sports.
Since Pine Street School will not be available for sale in this century or well into the
next, a site of at least an acre for a community center shoJd be acquired near Chase
Field or north of Holiday Park as soon as possible because of rising costs and limited
availability of land in this area.
In the Northwest Quadrant, the city, as permitted by the Quimby Act, should require
a developer with 51 or more parcels to provide land for parks, rather than Park-in-
Lieu fees, because of the scarcity of land.
The Community Garden, currently under-utilized, should be converted for greater
citywide participation by giving the local agricultural community an opportunity to
teach participants the cultivation of various crops or potted plants.
The Parks and Recreation administration office, maintenance yard and the parking lot
east of Fire Station 1 should be integrated with the Community Garden into a Civic
Center Park surrounding the Library and City Hall.
The Buena Vista Reservoir should be developed into a park.
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11. 405 Oak Street should be integrated into the proposed linear park along the railroad
right-of-way. This has the advantage that most of the park facilities could be
constructed on the city-owned land.
12. The feasibility study by city staff of the linear park, sidelined by plans for the golf
course, should be resumed. This park was recommended in the Beach Overlay study of April, 1987,
13. The area adjacent to the Buena Vista Lagoon duck feeding area and portions of Hosp
Grove should be improved for passive or light active recreation.
14. Areas like the sea wall, bluff-top walk, proposed sculpture garden at Ocean Street, anc
trails should be included in the park inventory in the future if owned by the city.
15. Property north of Denny’s restaurant at the north end of Laguna Drive and Grand
should be acquired to provide a park in this densely populated area of apartments and
condominiums.
16. A trail should be added to the trail system proposed by the Open Space Committe to
run along the south side of Buena Vista Lagoon, through Maxton Brown Park to the
beach. There should also be a trail along the north side of Agua Hedionda between
El Camino Real and 1-5,
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PARK INVENTORY
When the Citizens' Group began its study, the park inventory included about 82.1 acres of
example, the Parks and Recreation Park Inventory carried 6.8 acres for Laguna Riviera Park.
A review of the County Assessor's roll showed this park to measure 4.05 acres. Magee Park, carried as three acres, proved to be only 2.1 acres. These and other errors in counting
resulted in an overcount of 2.1 acres. See Table I.
The primary concern the Citizens' Group has with the corrected park inventory is the policy of counting school grounds to meet park standards. While the Citizens' Group favors the
current joint use agreements with the school district to provide facilities for organized sports,
it opposes counting lands which are not owned by the city at 100% of their acreage to meet
city park standards.
In the past few years, the trend by school districts has been to extend school hours at existing
facilities in older areas to cope with increased enrollment, since the funding shortage created
by Proposition 13 makes the construction of new buildings difficult. The California State
Department of Education forecasts a 46% increase in enrollment in the next ten years in San
Diego County (L.A. Times, August 19, 1989). The growth in North County may actually
exceed the countywide projection. As a result, the time and space available for the public to
use school grounds for recreation is likely to steadily diminish. For example, the Parks and
Community Park. At the request of the Citizens' Group, staff consulted with Superintendent
of Schools, Tom Brierly. Staff learned that Pine Street was not likely to be available for sale
to the City "in this century and well into the next."
The Parks and Recreation Commission's sub-committee report deals with the basic issue of
counting school grounds to meet park standards by stating, "the opportunity for continued
recreational use of school sites by the community is guaranteed under the provisions of the
Civic Center Act." On the contrary, the Act gives no such guarantee. It provides for joint
use agreements but does not mandate them. The joint use agreements are generally for a term
of one year. The Act does not guarantee that they will be renewed or extended at the same
cost yearly or that the same acreage or time for use will be available. On the contrary, the
school requirements have priority and the schools' needs will probably increase in the future
and availability for park purposes will decrease.
According to a Carlsbad Parks and Recreation Department survey of May 4, 1989, of 14
cities that have park standards, only six count school grounds to meet park standards. Even a
city as large as San Diego does not include school grounds in its park inventory, nor does our
neighbor to the north, Oceanside.
While it is true that the Civic Center Act requires that school districts give cities the first
chance at acquisition of surplus school property, there are conditions that must be met, one of
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park land, As a result of the Group's research, several numbers have been corrected. For
Recreation Department has carried Pine Street School for several years as a potential site for a
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which is that there must be no other suikible land in the vicinity, Tn addition, a city wnot
assume, as the sub-committee report states, that the property can be acquired at 25% of its
value, as this is only the required minimum price. The law provides that the price could be
as high as cost plus inflation. Considering the financial problems of the local school district,
it would be the district’s responsibility to negotiate the highest price since it too, represents
taxpayers.
In addition to other objections to the inclusion of school grounds in the park inventory, of the
78 acres in the Northwest Quadrant park inventory, only Holiday Park (5.88 acres), Laguna
Riviera (4.05 acres), and Magee (2.1 acres) are owned by the city and available for
picnicking, community events and unorganized play. This represents only 15% of the
Quadrant park inventory. Two city committees have expressed similar concerns: the Citizens’
Committee to Study Growth and The Citizens’ Committee for Review of Carlsbad’s Open
Space Plan and Programs. They do not consider recreational facilities on school grounds to
be either parks or open space.
ALTERNATIVES TO INCLUSION OF SCHOOL GROUNDS IN PARK INVENT
The Citizens’ Group, mindful of the requirements of the Growth Management Plan, proposes
a transitional period during which school grounds and other leased land (Rotary and Cannon
Parks), would be counted at 40% of their acreage. This means that about 15 acres would
have to be found to replace the resulting shortfall. The most economical way to do this
would be to use as much land already owned by the city as possible. Therefore, members of
the Citizens’ Group have researched city-owned land in the Northwest Quadrant and other
potential park sites and found about 17 acres to meet this shortfall. See Table 11. To reach
this figure, the City must require land rather than Park-in-Lieu fees in Zone 8. This would
amount to about 9 acres. The following alternatives are merely suggestions. The city could
investigate other properties suitable for use as parks.
Alternative 1
A beautiful area in Zone 8, along Agua Hedionda Lagoon, south of Park Drive between
Neblina Drive and Valencia Avenue, would benefit the large concentration of people in this
area if it were used as park.
Alternative 2
The Community Garden along Laguna Drive and Stratford Avenue should be upgraded, and
representatives of the local agricultural industry might be invited to provide guidance to make
this under-utilized facility a truly useful and unique activity. It could also be a part of the
Civic Center Park discussed below.
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Alternative 3
The Parks and Recreation administration office and maintenance yard and the parking lot east
of Fire Station #1 should be integrated into a Civic Center Park surrounding the Library and
City Hall.
Alternative 4
The Buena Vista Reservoir and the utility yard at 405 Oak Street are two ideally located
properties for use as parks, since many people live in these areas. Both belong to the city,
but since they, along with Lake Calavera, were used as security for the Water Bond of 1958,
any income derived from them must go to the Water Enterprise Fund. The bonds will be
paid off by July, 1990. The board of the Carlsbad Municipal Water District, during their
meeting of September 20, 1989, in a unanimous vote, went on record as seeing no objections
to using Buena Vista Reservoir and 405 Oak Street as parks. The Oak Street property is not
only surrounded by a heavy concentration of residents, but is also near the Boys’ and Girls’
Club. It has the potential for integration into the linear park along the railroad right-of-way
currently under study by the city. Permanent facilities for the linear park could be built on
this city-owned property.
Alternative 5
In addition, areas not included in the 16.65 acres in Table 1 that could be included in the park
inventory are: the area near the Buena Vista duck feeding area, the Hosp Grove area, the sea
wall, bluff top walk, and the proposed sculpture park at the end of Ocean Street. All city-
owned trails, everyone’s top priority, should also be counted as parks. Trails on leased land
should be counted at 40%.
Alternative 6
The Citizens’ group also identified 2.5-3 acres of land north of Denny’s restaurant for
possible acquisition. This parcel of land could provide a badly needed park for residents of
the nearby high density area.
Alternative 7
Since the plan to use Pine School as the site of a community park is now unrealistic, the city
should consider acquiring at least an acre of land for the construction of a Community Center
building for the Northwest Quadrant similar to Calavera and Stagecoach Centers. Ideally,
this should be integrated with either Chase Field or Holiday Park.
Alternative 8
The property across from Valley Junior High School could be acquired by the City for use as
a park.
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Alternative 9
Maxton Brown Park, already included in the park inventory, deserves further consideration.
Maxton Brown could be integrated into the interpretive center on the north side of the lagoon
that explains to visitors the lagoon ecosystem. This would give this park regional
significance, further beautify the northern entrance to Carlsbad and enhance the
Redevelopment Area.
All properties under discussion here are located in Zone 1, except the land on Agua Hedionda
Lagoon. The Citizens’ Group feels a sense of urgency about acquiring land in this zone
because the properties are becoming very scarce as buildout approaches. SANDAG figures
show that the concentration of dwelling units west of 1-5 will be almost 2.5 times greater than
that east of the freeway. Furthermore, it must be kept in mind that few of the apartments and
condominiums concentrated between the railroad tracks and the freeway provide any
recreational opportunities especially for children.
The Citizens’ Group is concerned about the area between the railroad tracks and the freeway
because it has the highest crime rate in the City. Location of parks and a community center here will help prevent the creation of a ghetto which could have disastrous social and financial
impacts on the city, particularly on the Redevelopment District, and render the Senior Center
and Harding Street Center unusable.
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FINANCIAL RESOURCES
This list of financial sources has been limited to those which do not require a special election.
1. Public Facilities Fund ($2,549,178 as of 9/1/90). Since this fee is collected on a
citywide basis and, according to council policy, is to be used first to remedy existing
deficiencies, the council could decide to spend part of it on parks in the Northwest
Quadrant.
2. Park-in-Lieu Funds ($1,266,280 as of 9-1-90) for the Northwest Quadrant. These
funds have been collected under the Quimby Act which allows governments to collect
fees from developers for parks and other public facilities.
3. Block Grants. Because of the conditions placed on the use of block grants and the
nature of the population between 1-5 and the railroad tracks, these funds are ideally
suited for the acquisition and development of parks in this area. The Block Grant
Program allows advance payments for up to three years. According to Chris
Salamone, the annual grant will be about $500,000 per year. This could provide a 1.5
million dollar advance, less an administrative allocation of 20%.
4. Redevelopment Funds. Currently the Redevelopment Area owes the general fund
about 4 million dollars, plus interest. Either this could be repaid or a given portion of
the yearly tax increment could be allocated for parks either within or directly
benefitting the Redevelopment Area.
5. State Grants including Proposition 70 allocations. a) Per capita program ($178,000 as of September, 1990)
b) Robert Z’Berg Harris fund ($21,416, requiring $9,178 in matching funds)
c) Trails Grant Program (can be investigated)
d) Coastal Conservancy
1 .Coastal Resources Projects
2.Site Renovation Projects
e) Environmental License Plate Fund
6. Fish and Game Public Access Fund.
7. Lease, trade or sale of under-utilized city-owned lands such as Pi0 Pic0 Park or the
Harding Street Community Center (once the new senior center is in operation).
8. Concessions where suitable.
9. General Fund. Uncommitted.
10. Contingency Fund
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CONCLUSION
The Citizens’ GrQup has suggested 16.65 acres of land that could be used to replace the 15.35
acres of school grounds and leased land that should be dropped from the park inventory. See
The greatest urgency is in the area between 1-5 and the railroad track. Once this land is
acquired, a Community Center should be built.
Table 11, The Citizens’ Group has also suggested areas in which land should be purchased,
The group has not only suggested a potential solution to the park problem in the
Northwest Quadrant, but has also identified potential sources of funds, such as:
1. PIL (Northwest Quandrant) - $1,266,280, as of 7-1-90.
2. PFF - $2,549,178, as of 7-1-90. A portion of this could be used for park
development.
3. State Grants under Prop. 70 - $178,000 under per capita program and $21,416
under Robert Z’Berg Harris program.
4. Block Grants - $1.5 million , less administrative costs by requesting a three-
year advance in 1990.
Additionally, funds might be obtained from other state grants, the redevelopment tax
increment, or the general fund. For the year 1990, the city has potential park funds totaling
$4,000,000, assuming the use of about $500,000 of the Public Facility Funds, and $500,000
from the uncommitted portion of the general fund, or from the contingency fund.
The Citizens’ Grooup calculated the incremental cost of its recommendations to be between
$2,900,000 and $4,200,000. This calculation was arrived at as follows:
1. Incremental development costs $2,346,000
2. Acquisition costs high
low
$1,875,000
$ 563,000
3, Incremental maintenance costs
@er Year)
$ 130,000
No further money should be budgeted for park projects in the Northwest Quadrant until the
proposed five-year plan has been worked out, so that financial resources can be used as
efficiently as possible.
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TABLE I
Park District 1
Inventory of Existing Park Lands
9/8/88
Communitv Pa& TvDe Ownership Acres
1. Holiday active City 5.40
2. Laguna Riviera 6.80
3. Magee 3.00
4. Hosp Grove activelpassive 27.00 Subtotal 42.20
n n
n II
I1
Special Use Area
5. Pi0 Pic0
6. Oak
7. Maxton Brown
8. Swim Complex
9. Car Country
10. Pine Senior Center
11. Chase Field
12. Harding C.C.
13. Rotary
14. Cannon
passive
N
II
active
passive
active
II
11
City
11
0
0
It
It
II
II
Subtotal
6/27/89
4/2 1/89
Acres 5.88
4.05
2.10
27.55
39.58
.80
.40
1.40
3.00
1 .00
3.00
2.30 1.00 12.90
.76
.40
.94
3.79
.88
3.31
2.30
1.00 13.38
15.
16.
17.
18.
19.
20.
21.
22.
Pine Senior Center
CHS Tennis Courts
Jefferson Elem.
Kelly
Magnolia
Pine Elem.
Valley Jr. High
Buena Vista School
passive R.R. 1.00 1 .oo
active SDG&E m LLzn Subtotal 2.70 2.70
active CUSD "_
3.00
IO II 2.60
II 11 2.80
11 II 4.10
n I1 2.00
7.50
Subtotal 24.30
11 11 2,30
I1 If
n n
2,30
1.10
2.60
2.8C
4.1c
2.M 7.5c 22.4C
"_
TOTAL 82.10 78.0t
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(Table I continued)
Park District 1
Inventory of Proiected Future Park Lands
Communitv Parks
6/27/89
9/8/88 412 1 189
TvDe Ownership Acres Acres
23 Macario
24 Pine School
Acquisition
active City 25.00 25.00
Subtotal 25.00 25.00
active CUSD 7.00 m Subtotal 7.00 5.20
S~ec~al Use Areas
25. Cannon Lake active City 6.70 6.78
26. Maxton Brown Extension u5 Subtotal 8.80 8.02
TOTAL 40.80 38.22
II I1 2.10
SUMMARY
Park District 1
Projected Build Out AdequacyIInadequacy
of Park Land
9/8/88
6/27/89
4/21/89
Existing Facilities
Proposed Future Facilities
Total Build Out Park Land
82.1 acres 78.06 acre;
40.8 acres 3 8.22 acre:
122.9 acres 116.28 acre
Park Land District 1
Build Out Demand 118.40 acres 118.40 acre
Adequacy/Inadequacy 4.50 acres (2.12 acres
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TABLE II
Northwest Quadrant
New Potential Park Sites
1. Zone 8
2. Laguna Drive Community Gardens
3. Stratford Lane Community Gardens
4. Park & Rec Administration &
Maintenance Yard
5. Parking Lot - by Fire Station #I
6. Buena Vista Reservoir
7. 405 Oak Street
9.07 Ac
.38
.76
1.30
0.65
3.16
1,33 16.65 Ac.
12
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REBR L TO THE ARGUMENT AGAINST PROP
Fact Pop ITI~EplacesrIMtonthbnumberat~thatcrarm de built in-d. ~limitc8nOmYbechrngedbyaVOTEoflhepeople. There is nosuchHunderRopo8llionG.
~sct: momsmm E IS A PLAN fo~ THE .ORDERLY LOMG-TERM "LOPMEKT OF CARW. pRo#wITKH( E provides that NO DEVELOPMENT SHALL BE APPROVED wittraut (111 pubk fadlitles being required up front. This msana the roads, schods, parks, Hbratim and open apace have already been planned, and a memod lor their financing and the mble for theirinstallationhasbeenapprwedbefomanyconstrucdkn~
increased.
next 20 years 50 you will know exsuty where, when and how development is
going to occur. Proposrbon G does not* you any Such m,
WN E
Fact Oensityhasbeenloweredthroughout~CnywhDeopenpr#~beengr~
Fact PROPOSITION E is a blueprint for th Or&@ CkWbpment Of - OW the
Fact: PROPOSITION (3 IS NO PLAN AT Au, m oppo~m of PROWSITEON E contend that if you wle for PROPOS~ON 'E you w be authorizing an increese of over 82,ooO new peopie to culsb.d WitNn the next to years. RIDICULOUS! The Ctty ha8 Only grown to 52,ooO in its HI0 m of . PROmStTmN E is supported by a lerge -nombec d raeponsible eleaon, ZXZ studied the issues. It is a thoughtful, far-reaching masW@mfor the f"e Ot ,Cwb3bad
ow the next two decades.
VOTE YES ON pRmmo)( E
JEANNE 6. MC FADDEN, "chair HOWARD C. HARMON
Cartsbad Association of vlce-presicknt Responsible Electors Senlor clttzens hmmdatbn "chair CarbbadAssodaliond Responsl"
STEPHEN M. CHEUREUX JUUE NYGAARD, TNstee President Carlsbad Unified School OLstrict Cerlsbad Chamber of Commerce
SEENA TRIGAS Trustee, Carlsbad Library
I
I
PR-001.8 591-44
."