HomeMy WebLinkAbout1997-07-08; City Council; 14259; REVIEW PROPOSED PROGRAM FOR THE REALIGNMENT OF CARLSBAD BOULEVARD FROM MANZANO DRIVE TO BATIQUITOS LAGOONP
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%Y OF CARLSBAD - AGEN A BILL ..
AB# 14,25'? DEPT. H I TITLE:
MTG. 7/8/97 REALIGNMENT OF CARLSBAD BOULEVARD FROM CITY ATT%
CITY MGR. 3 DEPT. ENG
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REVIEW PROPOSED PROGRAM FOR THE
MANZANO DRIVE TO BATIQUITOS LAGOON I RECOMMENDED ACTION:
Adopt Resolution No. 97-53 !L directing staff to initiate steps to further study the
realignment of Carlsbad Boulevard between Manzano Drive and Batiquitos Lagoon. I ITEM EXPLANATION:
I The northbound and southbound lanes of Carlsbad Boulevard between Manzano Drivc mouth of Batiquitos Lagoon are currently located in a 200 to 300 hundred foot wide Ci
public right-of-way. In addition, the travel lanes are physically separated a distance ran1
approximately 40 to over 250 feet in some locations. This wide public right-of-way and s results in excess areas of vacant right-of-way between and adjacent to the travel lane:
early 1980's the City of Carlsbad and the State Department of Parks and Recreation (
potential land use planning opportunities associated with the surplus vacant right-of-way.
this discussion and preliminary planning was based on a scenario in which Carlsbad E would be realigned to the eastern extent of the public right-of-way and "T" intersect with Airport Road. In 1982 the State adopted a Carlsbad State Beach General Plan L assumption that all the additional property west of the easterly realigned boulevard dedicated to various public recreational land uses such as open space, additional camp: beach parking. The State has made little or no progress in developing an implementa
however, subsequent staff review indicates a preliminary cost estimate of between appr
$13 - 14.5 million to construct an easterly realignment of Carlsbad Boulevard and "T ini
with Palomar Airport Road. Additional background information is contained in the
memorandum to the City Manager. I RECOMMENDATION:
If the City Council is interested in pursuing the realignment of Carlsbad Boulev;
recommends the following process:
1. Select a preferred conceptual roadway alignment based on one of the follo
alternatives:
Western Realianment Alternative:
A potential westerly realignment of Carlsbad Boulevard would shift both the I
southbound lanes west to the furthest extent feasible, placing the roadway clo:
coastal bluffs and the State campground. This alternative would create areas 1
right-of-way adjacent to privately owned property east of the roadway. Assumin'
public land use designations are made consistent with the privately owned land a(
this alternative has the potential to increase residential and commercial developrr the roadway. If the land is leased to adjoining property owners and then devell
fund the realignment of the roadway.
realignment alternative could have the greater potential to generate City revenL
This potential realignment alternative would require a revision of the City's cur space policies. The Open Space and Conservation Resource Management Zone 9 and 22, which covers the project area states: "The coastal beaches ar
Resource Areas for public recreational use, as identified in the City's Parks and F
Element. The City should continue cooperation with the State Parks and F
Department to enhance recreational opportunities within these areas".
Page 2 of Agenda Bill No. h e
In addition, any general plan or zoning designation land use changes along th
realignment would require an amendment to Carlsbad’s Local Coastal Progr,
California Coastal Commission retains authority over changes to the Local Coasta
and is mandated by the Coastal Act of 1976 to protect coastal open space and tc
opportunities for public recreation and access in the Coastal Zone. Section 300C
Coastal Act states that, “The State Legislature finds and declares that the basic gl
state coastal zone are to; (c) Maximize public access to and along the coast and
public recreational opportunities in the coastal zone consistent with sound
conservation principles and constitutionally protected rights of private property ov
(d) Assure priority for coastal-dependent and coastal-related development c
development on the coast“.
A significant constraint to the western realignment alternative is that it would e
roadway to damage from bluff erosion caused by storms which could require
protective measures.
Eastern Realiqnment Alternative (Includinq Bovle Alternative 3 for the “T” inter.
Palomar Airport Road and Carlsbad Boulevard):
The Engineering Department has prepared a preliminary eastern alignment
relocating the southbound lanes of Carlsbad Boulevard by up to 150 feet to
adjacent to the existing northbound lanes. In order to maximize usable land to the
median island width would be reduced from a standard 18 feet to 12 feet.
In the early 1990’s the City contracted with Boyle Engineering to study Carlsbad 1
and Palomar Airport Road intersection alignment issues and alternatives. Key iss
study were the irregular angle created where Palomar Airport Road joins
Boulevard, vertical alignments and the ability to salvage the existing railroad t
westerly of Avenida Encinas. The study concluded that it was not cost-effective 1
the existing bridge and that Alternative 3, which minimizes the skew of the in1
would be preferred.
The proposed easterly realignment shown on Exhibit 2, along with the Boyle I
3 “T” intersection have the potential to:
0 Maximize generation of beach front property for public uses such as beach p:
recreation, consistent with existing City and State policies. There may also
potential for development opportunities relating to tourist serving land uses;
0 Minimize construction costs. By relocating only the southbound lanes, co
costs will be one half the cost of a total reconstruction. Maintenance costs art
by moving the roadway away from the coastal bluffs;
Potentially accommodate plans for Carlsbad State Beach campground expansi
0 One potentially negative issue with an eastern realignment is that it may reql
noise mitigation for some private property owners east of the roadway, includir
mobile home parks.
Should the City Council choose to explore realignment further, staff recomr-r easterly roadway realignment and the Boyle Alternative 3 “T” intersection realignm option most consistent with current City and State plans and policies.
Page 3 of Agenda Bill No. *) as? *
2. Direct staff to prepare a “scope of work” and “request for proposal” to contr; consultant to prepare a three phase corridor land use study to evaluate the
realignment selected by the City Council. This type of study would facilitate i
affected and interested citizens and public agencies, help coordinate the
process, and answer some of the following important questions:
0 Phase I - environmental oDDortunities and constraints analvsis. Whal
environmental impacts and constraints associated with the realignment of
Boulevard?;
0 Phase II - land use omortunities and constraints analvsis. What are the viablc
alternatives for the surplus vacant land based on the environmental im[
existing physical constraints of the right-of-way area?; and,
0 Phase Ill - financial feasibilitv analvsis. Are there economically viable
alternatives that would provide sufficient revenue to help fund the constructio
the roadway realignment?
ENVIRONMENTAL REVIEW:
No environmental review has been completed on either of the two proposed realignme1 land use alternatives. Contracting for a consultant would also require no environmenta Prior to adoption of any plan or phase, detailed environmental analysis on the realignment program will be required along with coordination with the Coastal Commi!
other appropriate agencies
FISCAL IMPACT:
Staffs review indicates a preliminary cost estimate of between approximately $13 - 14.5
to construct an easterly realignment of Carlsbad Boulevard and “T” intersection with Pi
Airport Road.
The corridor study for the selected realignment alternative, including environmental, Ian and financial studies, would require outside consulting services. The cost of these servic
not be known until further exploratory work and scopes of services have been deve
However, staff believes that the cost to prepare the study will be in the range of $loo,(
$250,000. If so directed, staff will return to Council for appropriation and contracts whe
become known.
EXHIBITS:
1. Adopt Resolution No. 93-53L directing staff to initiate steps to proceed with 2
realign Carlsbad Boulevard south of Manzano Drive to Batiquitos Lagoon.
2. Conceptual Carlsbad Boulevard eastern realignment and surplus property.
3. South Carlsbad State Beach General Plan.
4. City Manager Memo, dated June 24, 1997.
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L ’ ll RESOLUTION NO. 97-532
2 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
REALIGNMENT ACTION PLAN AND APPROPRIATING TRANSNET LOCAL FUNDS FOR DESIGN AND PLANNING STUDIES.
3 CARLSBAD, CALIFORNIA, APPROVING CARLSBAD BOULEVARD
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and in the public interest to explore the realignment of Carlsbad Boulevard from Manzano 6
WHEREAS, the City Council of the City of Carlsbad has determined that it is de:
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to the South City Limits to increase public access and use of beach front properties; and
environmental and financial studies to evaluate and implement such a realignment program 9
WHEREAS, development of such a program requires further design, pia
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Cal 10
I’ California, as follows:
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1. Council authorizes staff to proceed with the following actions to stuc
realignment of Carlsbad Boulevard as generally depicted on Exhibit 2 (attacl
A. Prepare a “scope of work and “request for proposal’’ to contract consultant to prepare a three phase corridor land use study to evalu:
easterly roadway realignment. The study would include, at a minimu following: Phase I - environmental opportunities and constraints ar Phase I1 - land use opportunities and constraints analysis; and, Phar financial feasibility analysis.
B. Implement Boyle Alternative 3 for the intersection of Carlsbad BoulevE Palomar Airport Road as depicted in the Conceptual Design Reporl April 10, 1992
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19 PASSED, APPROVED AND ADOPTED at a regular meeting of the Carlsbad City 1
I 20 held on the 8th day of JUlY , 1997 by the following vote, to wit:
AYES: Council Members Lewis, Finnila, Nygaard, Kulchin, and Hall 21
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24 C &[hi DEA. L , Mayor
NOES: None
ABSENT: None
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25 ATTEST:
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27 &&A AL ALETHA L. RAUTENKWNZ, city cifehffi
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(SEAL)
11 Exhibit 1
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JUNE 24,1997
TO: CITY MANAGER
FROM: City Engineer
PROPOSED PROGRAM FOR THE REALIGNMENT OF CARLSBAD BOULEVARD FF
MANZANO DRIVE TO SAN MARCOS CREEK
This memo is intended to supplement the information provided in the agenda bill on the easter
alternative realignment of Carlsbad Boulevard from Manzano Drive to San Marcos Creek. T
shorten the length of the agenda bill and to keep it focused on the primary issues, some of tt
background information, quantitative detail, and preliminary staff investigation is provided here.
BACKGROUND INFORMATION:
Beginning in the early 19803, the City of Carlsbad and the State Department of Parks and Recre began to explore a program to relocate Carlsbad Boulevard to the east, from Manzano Drive tc
Marcos Creek. Initial planning for that program was incorporated into the South Carlsbad State E
General Plan adopted by the State of California in 1982.
The 1982 plan proposed that all additional property to the west of the realigned Carlsbad Boulc
would be dedicated to various recreational purposes including additional camp sites, parking, t
access, and State administration and maintenance facilities. A major feature of this plan was a
camp site and hostel on property owned by the State between Manzano Drive and Palomar f Road. This plan anticipated that Carlsbad Boulevard would be realigned to "T' into Palomar f
Road. Little progress has been made in implementing this plan and subsequent review indicate
additional planning, engineering, and economic analysis is required before implementing a prograi
POTENTIAL PROJECT PHASING ALTERNATIVE FOR AN EASTERN REALIGNMENT:
The easterly realignment project has been analyzed in four segments which could be dew
independently corresponding to logical land use planning areas. Development timing of any se would be coordinated with abutting development within the limits of available funding.
CARLSBAD BOULEVARD REALIGNMENT
PRELIMINARY COST ESTIMATES
Segment I
$2.5-3 million North Point Beach - Anacapa Court to Palomar Segment 2
$7.0 million Palomar Airport Road Intersection - Palomar Point
Airport Road
Segment 3
$1-1.5 million South Ponto Beach Area - Poinsettia Shores Segment 4
$2.5-3 million South Carlsbad State Beach
11 TOTAL I $13-14.5 million I[ ~~ ~ ~~ ~
SEGMENT 1: PALOMAR POINT INTERSECTION TO MANZANO DRIVE
In the late 199O's, the City of Carlsbad was in active negotiation with the property locatec
southeast corner of Carlsbad Boulevard and Palomar Airport Road involving the F
reconstruction of the intersection of these two streets into a conventional 'IT'' intersection. To cll
Exhit
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REALIGNMENT OF CARLSBAD BOULEVARD
JUNE 24,1997
define property development potential, the City contracted with Boyle Engineering to study align issues and alternatives.
Key issues in the study were the irregular angle created where Palomar Airport Road joins Carl
Boulevard, vertical alignments and the ability to salvage the existing railroad bridge just westel
Avenida Encinas. The study concluded that it was not cost-effective to Salvage the existing bridgf
that Alternative 3 which minimizes the skew of the intersection would be preferred.
This project would create 6 acres of surplus land adjacent to State lands north of Palomar Airport and a net 1 .I acres of surplus adjacent to Carlsbad Boulevard fronting the "Blonski" property nor of the Solamar Mobile Home Park.
SEGMENT 2: NORTH PONTO BEACH AREA - PALOMAR AIRPORT ROAD TO
ANACAPA COURT
Would relocate the southbound lanes to the east, paralleling the existing northbound lanes. This
produce approximately 17 acres of developable land straddling the Encinas Creek, the major
disposal site for the Batiquitos Lagoon project. Surplus property varies from 100 to 220 feet in
with the widest parcels being directly adjacent to Encinas Creek.
SEGMENT 3: STATE BEACH AREA - ANACAPA COURT TO PONTO ROAD
Would relocate the southbound lanes east 50 to 60 feet paralleling the northbound lanes, f
approximately 11.5 acres.
SEGMENT 4: SOUTH PONTO BEACH AREA - PONTO ROAD TO SAN MARCOS CREEK
Would relocate both the north and southbound lanes east, creating approximately 6.5 acres of pr
west of Carlsbad Boulevard from San Marcos Creek to Ponto Drive. Parcels of land are 775
feet in depth extending several hundred feet along the boulevard. Access to the extension of AI Encinas could be provided in this area.
OESCRfPTfON OF EXCESS LAND CREATED BY EASTERN REALIGNMENT ALTERNATlVl
STATE OWNED LAND:
The proposed easterly realignment of Carlsbad Boulevard would create approximately 46 ac
potentially usable City owned property. Excess land would fall into the following broad categorie!
1. Prooerties with lease or exchanae ootential with abuttina urooerties - These lands wc
east of realigned Carlsbad Boulevard adjacent to private lands with development pot
Opportunities exist for lease or sale of these properties to the abutting property c Approximately 5 acres fall into this category;
2. Properties located west of Carlsbad Boulevard frontina the ocean - Based on further these properties may be suitable for joint development opportunities focused on beach ;
parking, and tourist serving commercial uses. Approximately 30 acres are included category; and,
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REALIGNMENT OF CARLSBAD BOULEVARD
JUNE 24,1997
PAGF 3
3. ProDerties adiacent to the South Carlsbad State Park - These lands could be exchanged \n
the State to allow expansion of the campgrounds or be developed by the City as a regio
coastal trail system opportunities may exist to link this trail system to the proposed Coastal F Trail program.
Included in the property summary is a list of several properties owned by the State Department
Parks and Recreation which have the potential of being incorporated into an overall joint developm
program. These lands include over 17 acres of property. These lands could potentially be joil
pursued by the two agencies. The table below summarizes these properties in more detail: developed with the State or exchanges could be negotiated to allow independent programs to
PROPERTY SUMMARY
CITY PROPERTY:
East of Carlsbad Boulevard - Private ProDertv Lease/Exchanae
H Palomar Airport Road
1.6 acres H Ponto Drive
2.5 acres H Anacapa Court
1.6-0.5 acres net = 1.1 acres
West & East of Carlsbad Boulevard -
Potential Recreation ProDertv
H Encinas Beach 17 acres
H Ponto Beach 6.5 acres
Manzano/PAR Surplus 6.0 acres
South Garlsbad State Park Frontaqe 1 I .5 acres
TOTAL - CITY PROPERTY 46.2 acres
STATE PROPERTY:
H Manzano/PAR
2.0 acres H Ponto Area
0.35 acres H PAR Parking Lot
14.75 acres
II I II 11 TOTAL - STATE PROPERTY 17.1 acres 11
PRELIMINARY FINANCIAL ISSUES
The proposed program has significant construction and operational costs such as lifeguard semi1
maintenance of recreational and parking facilities which need to be carefully evaluated befc
proceeding with each element of the program. It is anticipated that some joint developmc
opportunities on the excess properties would generate some revenues. These revenues would accl
to support the realignment program, it is not clear that they would cover a major fraction of 1
approximately $14 million project cost. To the extent that General Fund obligations exce
$1,000,000, it would be subject to voter approval under the provision of Proposition H.
to the General Fund. While subject to further Council action, these revenues could be made availal
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REALIGNMENT OF CARLSBAD BOULEVARD
JUNE 24,1997
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Should joint development not prove viable, the City would be creating a recreational resource
significant cost implications and no revenue. If the proposed study is undertaken, more det;
red for Council review.
LH:JLG:vd
C: Community Development Director
Planning Director
Assistant Planning Director
Principal Planner Dennis Turner
Associate Planner Jeff Gibson
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