HomeMy WebLinkAbout2014-07-15; City Council; 21682; Presentation from Staff Open Space Policies Related to Growth Management, Draft General PlansCITY OF CARLSBAD - AGENDA BILL
AB# 21,682 RECEIVE A PRESENTATION FROM STAFF
REGARDING THE OPEN SPACE POLICIES RELATIVE
TO THE GROWTH MANAGEMENT PLAN AND
DRAFT GENERAL PLAN
DEPT. DIREaOR ^jP
MTG. 07/15/2014
RECEIVE A PRESENTATION FROM STAFF
REGARDING THE OPEN SPACE POLICIES RELATIVE
TO THE GROWTH MANAGEMENT PLAN AND
DRAFT GENERAL PLAN
CITY ATTORNEY jt(
DEPT. CED
RECEIVE A PRESENTATION FROM STAFF
REGARDING THE OPEN SPACE POLICIES RELATIVE
TO THE GROWTH MANAGEMENT PLAN AND
DRAFT GENERAL PLAN
CITY MANAGER
RECOMMENDED ACTION:
To receive a presentation from staff regarding the city's open space policies relative to the Growth
Management Plan and draft General Plan.
ITEM EXPLANATION:
Recently, a number of questions have been raised regarding the city's open space policies and Growth
Management Plan and how they relate to the city's draft General Plan. This workshop is intended to provide
the City Council with a brief overview of the following topics:
• The genesis of the Growth Management Plan (GMP) and how it is implemented. Emphasis will be
placed on the performance standards for parks and for open space.
• An overview of the city's open space including:
o Definitions of the open space subcategories in the General Plan
o The corresponding acreage in each subcategory
o What is the Open Space and Conservation Resource Management Plan (OSCRMP)
o Relationship of the open space performance standard to the amount of open space citywide
o A comparison of Carlsbad's open space with neighboring cities
o A comparison of current park acreage with that at the time of GMP adoption (1986)
o The effect of the General Plan update on the future of open space
• Acquiring/financing additional parks and open space above that required by Growth Management:
o Proposition C
o Identification of open space lands for acquisition
o Modifying performance standards for parks and/or open space
o Other financing mechanisms
FISCAL IMPACT:
None.
ENVIRONMENTAL IMPACT:
Pursuant to Public Resources Code section 21065, this action does not constitute a "project" within the
meaning of CEQA in that it has no potential to cause a either a direct physical change in the environment,
or a reasonably foreseeable indirect physical change in the environment, and therefore does not require
environmental review.
DEPARTMENT CONTACT: David de Cordova 760-602-4604 David.deCordova^carlsbadca.eov
FOR OTY CLERKS USE ONLY.
COUNCIL ACTION: APPROVED • CONTINUEDTO DATE SPECIFIC •
DENIED • CONTINUEDTO DATE UNKNOWN •
CONTINUED • RETURNED TO STAFF •
WITHDRAWN • OTHER-SEE MINUTES •
AMENDED • Report received.
1351 Pine Avenue
Carlsbad, CA 92008-1941
July 14, 2014
Dear Mayor Hall, Mayor Pro-Tern Packard, Council Members
Wood, Blackburn and Schumacher:
Firstly it is important for you to know that I value the quality of
life and Community Place and Spirit that the Council and Staff
have worked conscientiously to create and support. This goes
forthe planning, construction and maintenance of housing,
economic development, education, social events and
facilities, services, parks, arts, culture, safety, historical
preservation, tourism, transportation and all the other functions
that are required to keep our City connected and in good
health.
I do appreciate that you reach out your constituency to
develop a partnership with the citizens, and I trust that you
honestly take into account the educated opinions of the
residents. I personally wish to be supportive of this vibrant
community, and I will do my best to understand and cooperate
with recommendations of Council and Staff. The decisions vou
make for our Citv-Owned Lands in Olde Carlsbad will set the
destiny of the future of Carlsbad for generations.
Historically, Olde Carlsbad was settled by families surrounding
the historicdowntown commercial district. Here, too, were
established the Post Office and Community Services. In the
past half century this area has continued to be viewed as the
City Center, although I noticed on the June, 2014
Neighborhood Map that the Industrial Area along Palomar
Airport Rood is identified at "City Centre".
The Irving Group Report of August, 2012 states that the Cole
Agricultural Lands and the Carey Estate were purchased to
create a Civic Center. The City also owns land of the Buena
Vista Resen/oir and land adjacent to the Fire Station #1.
These lands have been labeled "Underutilized" and the Irving
Group evaluated the values for generating revenues for the
City. In the report, there is clear language that states the
Social Value was not studied or analvzed.
In the fields of Urban Development and Real Estate, there have
in the past three decades been discussions of the value of
Urban Areas. Many Americans who opted for life in
subdivisions in the past are now validating the desire to be
closer to areas that aenerate provocative thought, diversity,
services, culture, action and close to mass transportation
options. People want to have choices in interesting things to
do like museums, galleries, exhibits, and places that are
convenient to meeting and getting required goods.
Therefore I cgn understand the planners' ideas of providing
more space to accommodate the trends in people who want
work/ living space and multiple-use areas of commerce and
housing. Developers like Toll Brothers and Caruso know where
the greatest value for property is. I respect their attention to
the trends.
However, the City Council is expected to establish a Carlsbad
that is a "high tier" city that addresses the social and
environmental needs along with the fiscal responsibilitv.
We hove all seen the Council Resolutions that expressed
interest in selling the City Owned Lands in Olde Carlsbad.
In the Staff Information Session at the Cole Library on June 23,
Steve Didier stated that the Cole Library is scheduled to have
renovations like carpet and paint to extend its integrity for the
life of the building - which is ten more veors.
Stgff reported that there would then be an evaluation where
and if we needed a library at this location. I would think that
there is agreement, throughout Corlsbad, that there is a need.
At the Information Session, we learned that PROS will be doing
a kick-off for the next round of porks needs.
The Arts Office is working diligently with its resources to provide
as much culture, of diverse experience: visual and
performance throughout the City.
The facilities tiiat are located at tiie City hlaii, Parks and
Maintenance, hiousing. Community Services, Library, Arts
Office, Community Garden, Sculpture Garden, Buena Vista
Reservoir are essential to keeping ttie Small Town Feel, Beach
Community Character and Connectedness of Carlsbad.
Other developments that hove Master Plans hove created
shopping areas and parks to serve the needs of the homes and
residents in the specific gregs. They hgve gccomplished g
degree of wolkgbility gnd livgbility in their designs. They hgve
provided o mix of housing ond gesthetic medigns gnd borders.
However, there is still o need for a city thot has the derivation
coming from the concept of a civilization. Corlsbod needs
something unique about which to be known other than great
beaches, luxury hotels, convenient chain-shopping and strong
revenue.
Our City needs City-Owned Public Facilities around which we
con celebrate our humonness.
Our Growth Management Plan from 1986 created 25 zones. All
except Zone 1 has a Master Plan.
Mayor Matt Hall has wisely mentioned thot we hgve used our
plans for significant success, yet of times things need to be
reviewed. We concerned Olde Carlsbad taxpayers agree.
Hundreds of residents have made requests about City-Owned
Lands and presented these comments to Staff. We believe that
using the City-Owned lands for public use, not to private
development, will economically benefit the City as a whole.
Economic benefit should be refiected in revenues brought to
the Village/ Barrio through sales tax and increased property
taxes.
Staff needs direction from the Citv Council to studv the
Economic, Environmental and Social Benefit for Corlsbod. We
need to review the cumulative effects of the loss of these City
Owned lands to "homebuilders or developers".
Please work to create a Master Plan for Olde Carlsbad that
coordinates the Olde Corlsbod neighborhood and civic area
with the Village/ Barrio.
Once the City protects the lands as Open Space, we con study
the economic benefit for creation of an inspirational, functional
civic center space with facilities, sen/ices and green areas.
Community members can offer insight and develop a
"charette" for the highest and greatest social, economic and
environmental highest and best public use.
"What is Needed and Requested"
I. We are here requesting Corlsbod City Council
members to recommend designating the City Owned Lands
in Olde Corlsbod as Open Space- to safeguard and protect
these lands from sale or use for Commercial or Housing on
all:
A. General Plan draft
B. Environmental Impact Report Plan
C. Zoning Plan
II. School Grounds property that has dual purpose or joint
uses as school yard and parks must be removed from
the Park inventory, as they no longer are open to the
public. This will clearly display the need for parks in
Olde Carlsbad neighborhood.
III. There is a clear need to develop a Master Plan for Olde
Carlsbad or Zone 1. Out of 25 zones, it is the only area
that does not hove o plan for the future with a clear
concept of character, facilities and vision for how it
can be coordinated with the shopping area of the
Village.
IV. Can you recommend Staff to work on these three
points? They are talented professionals, but need your
direction to proceed. Or can there be a consultant
group, similar to Dover, Kohl and Partners to evaluate
the economic benefit of creating a civic area and park
for prosperity and distinct character of Carlsbad to be
maximized for the revenue and the social benefit of our
unique city?
Thank you for your consideration. I truly hope that we con
focus on the Community Place and Spirit of the Olde Corlsbad
and original town center to create a special city based on
individual contributions, not pre-mandoted by standard
corporations. You have the privilege and responsibility of using
our resources creatively and for the highest and best social,
fiscal and environmental use that will impact us oil with
economic gain by wise management.
Respectfully,
Janonn Geissinger Taylor
We concerned and committed taxpayers of Carlsbad would like our City Council
and Staff to revise the General Plan Draft so that the Carlsbad Reservoir, Cole
Library, Agricultural Lands, Community Garden, Arts Office and Sculpture
Garden, parking, and land on Carlsbad Village Drive adjacent to Fire Station #1
to be zoned for City Use purposes, not sold to developers for residential
and commercial purposes.
For decades the taxpayers of Olde Carlsbad neighborhoods have been patient
and supportive, while Carlsbad has developed facilities in other quadrants. It is
time for the City to put resources into the in-fill area of Olde Carlsbad and
connect these lands with a creative vision to support the Village and the Barrio
as an authentic and functional civic center.
We unite to petition Carlsbad City Council and Staff-
• to create useful, relaxing parklands and community garden where nature
is respected and concerns for sustainability, environmental impact and
carbon emissions are addressed. Each neighborhood must have a
functional space within walking distance for different age groups to enjoy.
Gardens grow the things we need to live and connect people. There can be
educational elements from which all age groups benefit. We can learn to
conserve better and share the resources.
• To create a civic center on the city-owned lands for cultural and sciences
functions: dance, technology, drama, art exhibits, music, sculpture, even
architecture for the small town feel and beach community character that
is found on the Carlsbad Community Vision
• To dedicate facilities and functions on the historic Olde Carlsbad city-
owned lands to educate residents and visitors of the past, present and
future while near public transport including Coaster and Amtrak.
• to provide transparency for how the residents of Olde Carlsbad will access
Community Services
• to protect and safeguard the city-owned lands so that Olde Carlsbad will
truly be a destination that supports the economy, business diversity
and tourism to the Village
• to revitalize our Olde Carlsbad neighborhood with civic-minded
projects- compatible and liveable that enhance the quality of life for
all who live and visit Carlsbad
Respectfully, you have the privilege and responsibility of being good
stewards of the people and resources of this city. We feel that the core values
proposed in the Community Vision are aligned with our requests. We are
committed to working to build on the city's culture of civic engagement,
volunteerism and philanthropy. City-Owned Lands in Olde Carlsbad should
be developed for the true highest and best use.
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7/14/2014
Parks and Open Space
July 15, 2014
7/14/2014
7/14/2014
NRPA now says
"There is no longer (and probably should never have
been) a national standard of "x" nunrtber of acres of
parkland or "x" number of fecilities per 1,000 persons.
The country is not made up of homogeneous
communities - there is no "anytown" USA. Communities
are unique and different and dynamic and
changing. They have different climates, different
geographies, different fiscal capacities, and most
importantly different demographics and different
people.'
Parks/Open Space Plan should
• Be Aspirational
• Reflect community values
- 40% open space
-Walkable, neighborhood parks
• Focus on level of service
C(LS<j-y<pr
Part( Access and Defnographtcs • Carlsbad
if GaaMiSiMlMBDCOinirtwit*
hiB> 9n Dago KW*)'*<*'w
This Parks/Open Space Plan must
• Be Aspirational
• Reflect community values
- 40% open space
-Walkable, neighborhood parks
7/14/2014
Focus on level of service
Carlsbad’s Growth Management Program
Open Space and Parks
City Council Workshop
June 15, 2014
Today’s Presentation
•General Plan overview
•Growth Management Plan history
•Open space and parks –how they are defined
and counted
•Community Questions and Answers
•How parks and open space are funded
•Considerations
2
Overview
•Carlsbad enjoys excellent quality of life
•Carlsbad has more than twice as much open
space as average of neighboring cities
•Policies ensure parks and open space standards
are met and include funding mechanisms and
regular monitoring
•City is meeting the standards for parks and open
space today and will under the new General Plan
3
General Plan and Growth Management
•General Plan is the city’s primary long-range
planning document
•Covers a range of topics such as land use,
housing, safety, open space and conservation
•Establishes goals and policies for open space
and parks
•Last adopted in 1994; is currently being updated
4
General Plan and Growth Management
•Concern about the pace of growth in 1980s
•Citizen committees appointed to study growth
•Recommendations to
–reduce residential densities
–develop public facilities plan
•City Council initiated actions on
recommendations (1985)
5
General Plan and Growth Management
•City amended General Plan to reduce densities
(Dec 1985)
•City issued six-month moratorium (Jan 1986)
•City adopted Growth Management Plan (July
1986)
•Proposition E ratified city’s Growth Management
Plan (Nov 1986)
6
Growth Management Plan
•Cap on residential units citywide and by
quadrant
•Citywide Facilities and Improvements Plan
•Local Facilities Management Plans
•Annual monitoring
7
Northeast
9,042
Northwest
15,370
Southwest
12,859 Southeast
17,328
•Citywide Cap = 54,599
•Cannot be increased
without voter approval
Residential Unit
Growth Caps
Citywide Facilities & Improvements
•Citywide Facilities and Improvements Plan
–Establishes standards for 11 public facilities
9
City Administration
Wastewater Treatment
Library
Parks
Drainage
Circulation
Fire
Open Space
Schools
Sewer Collection
Water Distribution
•Facilities/standards established by ordinance
City Administration
Wastewater Treatment
Library
Parks
Drainage
Circulation
Fire
Open Space
Schools
Sewer Collection
Water Distribution
Local Facilities Management Plans
•City is divided in 25 Local Facilities
Management Zones
•A Local Facilities Management Plan is required
for each zone
10
Local Facility Management Zones
Local Facilities Management Plan
•Each Local Facilities Management Plan must:
–Estimate build-out
–Identify phasing
–Demonstrate how needed facilities will be provided
–Include a financing plan to guarantee facilities are built
•City prepared Local Facilities Management Plans
for Zones 1-6
•Plans for all other zones prepared by
landowners/developers
12
Monitoring
•New development is continuously monitored
for compliance
•If a project doesn’t comply, it’s not approved
•Report is issued each year documenting how
facilities are keeping pace with new growth
•If facilities not keeping pace, development
stops until deficiency corrected
13
Facilities Standards
•Open space
–15 percent of the total land area in the Local
Facility Management Zone exclusive of
environmentally constrained non-developable land
must be set aside for permanent open space and
must be available concurrent with development
–Origin of the “40 percent” estimate
14
Growth Management Standards
•Parks
–3 acres of Community Park or Special Use Area per
1,000 population within the park district [quadrant]
must be scheduled for construction within a five-year
period, or prior to construction of 1,562 dwelling
units within the park district beginning at the time
the need is first identified
–No standard for proximity of parks to neighborhoods
–General Plan encourages the city’s community parks
15
Growth Management
Open Space
16
What Is open space in Carlsbad?
•Natural lands
•City parks
•Golf courses
•Beaches
•Lagoons
General Plan Open Space & Conservation
Element defines “open space” as:
1.Preservation of natural resources
2.Managed production of resources
3.Outdoor recreation (active and passive)
4.Aesthetic, cultural, or educational
5.Public health and safety
Open Space Categories
1 -Preservation of Natural Resources
Lagoons, beaches, Lake Calavera
Existing habitat preserves
Other natural areas
2 -Managed Production of Resources
Agriculture
Maerkle Reservoir
Hubbs-Sea World Research Institute
3 -Outdoor Recreation
Existing City Parks*
Future Parks*
Golf Courses
Other Recreation
* Excluding Category 1 areas
4 -Aesthetic Purposes
Aesthetic
Cultural
Educational
Managed production of resources 326.2 1.3%
Outdoor recreation 1,169.4 4.7%
Aesthetic purposes 543.2 2.1%
Total 9,435.8 37.7%
Category Acres % City
Preservation of natural resources 7,398.0 29.6%
Public health & safety 0.0 0.0%
What’s not included as open space?
•Vacant land designated for other use
•Coastal Rail Trail
•Landscaped medians
•Land adjacent to city border for habitat
preservation -“gnatcatcher core area”
24
Offsite CAGN
Core Area:
308 acres
Carlsbad Offsite Mitigation
Habitat Management Plan
•Only north county city with a Habitat
Management Plan
•Plan protects sensitive species
•50 year plan
•Met 90 percent of plan’s goals in first 10 years
26
Questions & Answers
27
Myths and misunderstandings
about open space in Carlsbad
•General Plan estimated constrained, undevelopable
lands totaling about 25 percent of city.
•1986 Growth Management Program required 15
percent of “remaining developable land” to be set
aside as open space.
Where did the 40 percent
open space estimate come from?
Local Facility Management Zones
Does the city double count HMP & parks
acres in the open space inventory?
•No. For those parks that contain Habitat
Management Plan hardline designation areas:
–Include HMP acres in Category 1 Open Space
–Include Parks acres in Category 3 Open Space
30
Does the General Plan update reduce
the amount of open space conserved?
•No. The city will have more open space in the
future than today
•General Plan update includes policies for
habitat preservation
31
Growth Management -Parks
32
Growth Management Plan
33
Community Parks & Special Use Areas Parks Acreage
Projected
Parks
Need*
Existing Future Total Est. Pop.
Acres
needed Surplus
Northwest 95.4 39.4 134.8 37,844 113.5 21.3
Northeast 42.6 35.5 78.1 22,666 68 10.1
Southwest 70.2 22.5 92.7 28,857 86.6 6.1
Southeast 114.9 22.5 137.4 41,785 125.4 12.0
Total City 323.1 119.9 443.0 131,152 393.5 49.5
*Growth Management Parks Requirement: 3 acres/1,000 population of community parks and special use
areas in each quadrant
Will the city be short of
city park land at build out?
•No. Projected to
exceed required city
park land by 50 acres
34
City Parks existing in 1986
City Parks constructed since 1986
City Parks for future construction
Private Recreation
City Parks & Private Recreation
* With ¼ mile + ½ mile buffers
•Beaches
•Lake Calavera Preserve and many city trails
•Private parks in master planned communities
•Recreational areas in Agua Hedionda
•The Crossings golf course
•Hub Park lease area
36
What’s not included in city parks acreage?
Does the city count school grounds
as parks acreage?
Yes. Joint use agreements with all 3 school districts
37
•Aviara Oaks •La Costa Meadows
•Buena Vista Elementary •Levante Elementary
•Carlsbad High School •Magnolia Elementary
•Jefferson Elementary •Valley Junior High
•No. Only count fields/courts under agreements
•Total about 10 percent of total current park acres
•Working with Carlsbad Unified School District on
an updated agreement
38
Does the city count school grounds as parks acreage?
Does the city count preserve acreage as
part of the total acreage of certain parks?
•Yes. The following city parks contain city preserves.
–Poinsettia, Leo Carrillo, La Costa Cyn & Hidden Cyn Parks
–Veterans Memorial Park (future)
•The total acreage for the boundary of the combined
parcels is counted toward parks growth management
–This is a common practice in calculating a park’s total acreage
39
Does city apportion future Veterans
Memorial Park to all 4 quadrants?
•Yes. It is a Special Resource Area which will have
citywide & regional significance
•Considered a centrally located park accessible to the
entire community
•90 acres of community park apportioned to all 4 park
quadrants (22.5 acres each)
•Methodology adopted with the 1986 Citywide Facilities
and Improvements Plan
40
How does Carlsbad compare?
•More than twice as much designated open
space as the average of our neighboring cities
•Only north county city with an approved habitat
management plan (HMP)
•More than double conserved acres per 1,000
population than any of our neighboring cities
41
How does Carlsbad compare with
neighboring cities in % of open space?
0 5 10 15 20 25 30 35 40
Vista
San Marcos
Oceanside
Encinitas
Carlsbad
% of city Open Space
42
Conserved Lands
43
Jurisdiction Conserved Acres Population Conserved
acres/1,000 pop.
Carlsbad 5,782 108,246 53.42
Encinitas 1,389 60,482 22.97
Escondido 1,095 145,908 7.50
Oceanside 1,885 169,360 11.13
San Marcos 972 87,040 11.16
Vista 613 95,264 6.43
Estimated Conserved Acres Data Source: SANDAG Conserved Land Database (CLDB) Apr 2014;
Population data source: Ca. DOF, Jan. 2013
Summary
•Protection of open space is a high priority
•City has much more open space than other cities
•Only city in north county implementing a Habitat
Management Plan
•Funding mechanisms are already in place
44
Financing Parks and Open Space
•Financing methods used to date:
–Community facilities district no. 1
–Park-in-lieu fees
–Public facilities fee
–General fund/General capital construction fund
–Developer contributions
–Debt
Financing Future Parks
and Open Space
•Ballot measure (similar to Prop C)
•Impact fees
•Financing district
•Other considerations:
–Pay-go
–Debt
46
Have Policies Worked?
•Meet all standards and will in the future
•Public approves
96 percent satisfied with quality of life
95 percent agree that Carlsbad promotes access to
active lifestyle, parks and open space
81 percent agree that Carlsbad protects and
enhances open space and the natural environment
92 percent satisfied with efforts to provide trails
•New growth ‘pays its way’
47
Considerations
•Are standards meeting quality of life goals?
•Is a change in approach warranted?
•If additional parks and open space are
desired, how will they be funded and what
are the trade-offs?
48
Questions?
City Council Workshop
June 15, 2014
Samples of over‐counting of Carlsbad parklandsJuly 15, 2014P. DeCino
Poinsettia Park –12.5 acres double counted
Leo Carrillo Park – 16.9 acres double counted
Hidden Canyon (NE quadrant) 13.0La Costa Canyon (SE quadrant) 8.9Leo Carrillo (SE quadrant) 16.9 Poinsettia (SW quadrant) 12.5Current Total 51.3 Future Veteran’s Park54.1 acresSummary
Parks and Open Space July 15, 2014
NRPA now says :“There is no longer (and probably should never have been) a national standard of "x" number of acres of parkland or "x" number of facilities per 1,000 persons. The country is not made up of homogeneous communities ‐there is no "anytown" USA. Communities are unique and different and dynamic and changing. They have different climates, different geographies, different fiscal capacities, and most importantly different demographics and different people.”
Parks/Open Space Plan should :•Be Aspirational•Reflect community values–40% open space–Walkable, neighborhood parks•Focus on level of service
This Parks/Open Space Plan must :•Be Aspirational•Reflect community values–40% open space–Walkable, neighborhood parks•Focus on level of service