HomeMy WebLinkAbout2015-02-24; City Council; 21861; Pursue Agreement California Parks & Recreation South Carlsbad State BeachCITY OF CARLSBAD-AGENDA BILL
AB#
MTG.
DEPT.
21861
2/24/2015
P&R
RECOMMENDED ACTION:
ADOPT A RESOLUTION DIRECTING STAFF TO
PURSUE A LONG TERM MAINTENANCE AND
OPERATIONS AGREEMENT WITH THE CALIFORNIA
DEPARTMENT OF PARKS & RECREATION FOR
STATE-OWNED BEACHES WITHIN THE CITY OF
CARLSBAD, EXCLUSIVE OF THE CAMPGROUND AT
SOUTH CARLSBAD STATE BEACH
DEPT. DIRECJOR
CITY AITY.
CITY MGR.
Adopt Resolution # 2015-041 directing staff to pursue a long term maintenance and
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operations agreement with the California Department of Parks & Recreation for state-owned beaches
within the City of Carlsbad, exclusive of the campground at South Carlsbad State Beach.
ITEM EXPLANATION:
The California Department of Parks & Recreation (State) operates under significant budget constraints
that have resulted in a corresponding decline in the quantity and quality of services it provides to the
public. The State owns approximately 5 miles of beaches within the City of Carlsbad (City). The City has
become increasingly concerned about the effects of the State's declining service levels on the general
public-including residents, business owners, and tourists. The State's inability to provide improvement
and basic maintenance services-especially on high profile properties like beaches -bears a negative
reflection on the City's image. For these reasons, several members of the public have recently indicated
a desire for the City to assume the maintenance and operations of the State's beaches within the City's
bounds.
On October 15, 2013, the City Council directed staff to pursue exploration of expanded partnership
opportunities with the State, in a goal of enhancing beach facilities and services along the full extent of
the City's coastline. In consideration ofthese concerns and direction, staff initiated discussions with the
State on the potential for the City to assume improvement and maintenance services from the State at
the Tamarack State Beach Upper Picnic Facilities (Picnic Facilities) and at the Tamarack/Frazee State
Beach Coastal Bluff (Coastal Bluff).
DEPARTMENT CONTACT: Kyle Lancaster 760-434-2941, Kyle.Lancaster@carlsbadca.gov
FOR CLERK USE.
COUNCIL ACTION: APPROVED ~ CONTINUED TO DATE SPECIFIC D
DENIED D CONTINUED TO DATE UNKNOWN
CONTINUED D RETURNED TO STAFF D
WITHDRAWN D OTHER-SEE MINUTES D
AMENDED D REPORT RECEIVED D
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Right of Entry Permit
On May 20, 2014, the City Council executed a Right of Entry Permit (Permit) with the State for the Picnic
Facilities and the Coastal Bluff. Per the Terms and Conditions, Section 1-Project Description, of the
Permit, the State granted the City permission to: 1) enter onto the Picnic Facilities solely for the purpose
of " ... maintaining landscaping, irrigation systems, hardscapes, and daily facility housekeeping tasks for
the comfort station (i.e. blockhouse restroom) ... ", and 2) enter onto the Coastal Bluff solely for the
purpose of " ... revegetating native coastal bluff habitat, retrofitting/expanding existing irrigation system,
and maintaining said vegetation and irrigation system .... "
Per the Terms and Conditions, Section 2-Term of the Permit, the Permit " ... shall only be for the period
beginning on 5/20/2014, and ending on 5/19/2015, or as may be reasonably extended by written
mutual agreement of the Parties." The intent of the Permit was to allow the City a short term means of
entering the Picnic Facilities and Coastal Bluffto commence improvement and maintenance services.
Presuming successful results were achieved within the initial term of the Permit, the goal ofthe City and
the State is to execute a long term maintenance and operations agreement (M&O Agreement) for the
continuation of the described services on these areas.
The City and the State have one such long term agreement already in place. It is for the Ocean Street
Sculpture Park and parking lot (Sculpture Park), located northwest of the intersection of Pine Avenue
and Carlsbad Boulevard. The services provided by the City at Sculpture Park are consistent with the
services now provided by the City at the Picnic Facilities and Coastal Bluff. In 1990, the City and the
State entered into a 20-year agreement for Sculpture Park. In 2011, based on the successful results
achieved, the City and the State entered into a successor 20-year agreement. Due to the extensive
nature and duration of an M&O Agreement, additional levels of State review and approval are needed.
The process of fully executing an agreement with the State typically requires at least 12 months.
The following initial improvements were performed on the Picnic Facilities:
./ Pruned or removed trees/shrubs and renovated turf areas
./ Retrofitted irrigation systems and re-landscaped planters
./ Replaced corroded steel handrails with aluminum standard
./ Replaced dilapidated benches/tables and trash receptacles
./ Installed drinking fountain and two outside showers
./ Refurbished restroom building-inside and outside
The following improvements were performed on the Coastal Bluff:
./ Removed invasive and non-native plants
./ Installed on-grade irrigation system
./ Planted over 5,000 native plants on bluff
./ Installed protective cages around selective plants
./ Installed protective fencing at both ends of bluff
./ Sprayed south end of bluff with native hydroseed mix
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Today, less than 9 months after execution of the Permit, the subject areas are dramatically transformed,
and are under regularly scheduled maintenance programs. By virtually all accounts, successful results
for these areas were in fact achieved within the initial term of the Permit.
Maintenance and Operations Agreement
Based on the success achieved thus far, staff is recommending the City Council provide direction to
pursue an M&O Agreement with the State for the continuation of these services. In addition, staff is
recommending the M&O Agreement be expanded in terms of the scope of services to be provided, and
the areas to be serviced. Specifically, the services to be provided would include not only capital
improvements and basic maintenance, but also recreation programming and public safety. The areas to
be serviced would include all State beaches along the City's coastline-exclusive of the beach area that
is part of the South Carlsbad State Beach Campground. The State has previously expressed an interest
in entertaining discussions on such an M&O Agreement with the City.
A prime local example of a like collaboration is the agreement the City of Encinitas executed with the
State in 1989. In particular, the City of Encinitas provides all of the aforementioned services on
Moonlight Beach-which is an extremely robust and popular destination for residents and tourists alike.
Under an M&O Agreement, staff envisions the potential to extend the identity of the City into the
State's beaches. At the same time, the amenities within the State's beaches could be upgraded to the
City's standards. A partial list ofthose amenities includes benches, tables, trash receptacles, fire rings,
umbrellas/shade structures, playgrounds/exercise stations, interpretive panels, mobile concessions,
drinking fountains, showers, and restrooms, and lifeguard towers.
Similarly, staff sees an opportunity to incorporate the City's high caliber of recreation programming into
the State's beaches. A partial list ofthose programs includes special events, summer camps, surf
camps, fitness classes, sports competitions, and junior lifeguarding. Lastly, staff recognizes the ability to
integrate the City's premier public safety forces into such functions as year-round lifeguarding and
proactive law enforcement patrols.
It is also important to note some of the other benefits that could be derived from the City executing an
M&O Agreement on the described State beaches, including:
~ The protection and enhancement of our greatest natural/tourism asset
~ The sustainability of a key destination for over 3 million visitors each year
~ The quality of life enrichment and economic booster of a top notch attraction
Lastly, the overarching expected results of an Agreement would be consistent with multiple aspects of
the City's Mission, Vision, and Values (Exhibit 2).
FISCAL IMPACT:
There is no fiscal impact associated with the recommended action.
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ENVIRONMENTAL IMPACT:
Improvements to and maintenance of the Picnic Facilities are exempt from the California Environmental
Quality Act (CEQA) per State CEQA Guidelines Section 15301. In addition, improvements to and
maintenance of the Coastal Bluff are exempt from CEQA per State CEQA Guidelines Section 15304.
Furthermore, the recommended action to pursue an M&O Agreement with the State for the described
State beaches does not commit the City to approve any funding, project, or course of action. Therefore,
pursuant to Public Resources Code Section 21065, the recommended action does not constitute a
"project" within the meaning of CEQA in that it has no potential to cause either a direct physical change
in the environment, or a reasonably foreseeable indirect physical change in the environment, and thus
does not require environmental review.
EXHIBITS:
1. Resolution # 2015-041 directing staff to pursue a long term maintenance and
operations agreement with the California Department of Parks & Recreation for the state-owned
beaches within the City of Carlsbad, exclusive of the campground at South Carlsbad State Beach
2. City of Carlsbad's Mission, Vision, and Values
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RESOLUTION NO. 2015-041
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD,
CALIFORNIA, DIRECTING STAFF TO PURSUE A LONG TERM
MAINTENANCE AND OPERATIONS AGREEMENT WITH THE
CALIFORNIA DEPARTMENT OF PARKS & RECREATION FOR STATE-
OWNED BEACHES WITHIN THE CITY OF CARLSBAD, EXCLUSIVE OF
THE CAMPGROUND AT SOUTH CARLSBAD STATE BEACH
WHEREAS, the California Department of Parks & Recreation (State) operates under
significant budget constraints that have resulted in a corresponding decline in the quantity and
quality of services it provides to the public; and
WHERAS, the State owns approximately 5 miles of beaches within the City of Carlsbad
(City), and the City has become increasingly concerned about the effects of the State's declining
service levels on the general public-including residents, business owners, and tourists; and
WHEREAS, the State's inability to provide improvement and basic maintenance services
-especially on properties like beaches-bears a negative reflection on the City's image; and
WHEREAS, several members of the public have recently indicated a desire for the City to
assume the maintenance and operations of the State's beaches within the City's bounds; and
WHEREAS, on October 15, 2013, the City Council directed staff to pursue exploration of
expanded partnership opportunities with the State, in a goal of enhancing beach facilities and
services along the full extent of the City's coastline; and
WHEREAS, staff initiated discussions with the State on the potential for the City to
assume improvement and maintenance services from the State at the Tamarack State Beach
Upper Picnic Facilities (Picnic Facilities) and at the Tamarack/Frazee State Beach Coastal Bluff
(Coastal Bluff); and
WHEREAS, on May 20, 2014, the City Council executed a Right of Entry Permit (Permit)
with the State for the Picnic Facilities and the Coastal Bluff; and
WHEREAS, per the Terms and Conditions, Section 1-Project Description, of the Permit,
the State granted permission to: 1) enter onto the Picnic Facilities solely for the purpose of
" ... maintaining landscaping, irrigation systems, hardscapes, and daily facility housekeeping tasks
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for the comfort station (i.e. blockhouse restroom) ... ", and 2) enter onto the Coastal Bluff solely
for the purpose of " ... revegetating native coastal bluff habitat, retrofitting/expanding existing
irrigation system, and maintaining said vegetation and irrigation system .... "; and
WHEREAS, per the Terms and Conditions, Section 2 -Term of the Permit, the Permit
" ... shall only be for the period beginning on 5/20/2014, and ending on 5/19/2015, or as may be
reasonably extended by written mutual agreement ofthe Parties"; and
WHEREAS, the intent of the Permit was to allow the City a short term means of entering
Picnic Facilities and Coastal Bluffto commence improvement and maintenance services; and
WHEREAS, presuming successful results were achieved within the initial term of the
Permit, the goal of the City and the State was to execute a long term maintenance and
operations agreement (M&O Agreement) for the continuation of the described services; and
WHEREAS, due to the extensive nature and duration of an M&O Agreement, additional
levels of State review and approval are needed, and the process of fully executing an M&O
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Agreement with the State typically requires at least 12 months; and
WHEREAS, the Picnic Facilities and Coastal Bluff areas have been dramatically
transformed, and are under regularly scheduled maintenance programs; and
WHEREAS, by virtually all accounts, successful results for these areas were in fact
achieved within the initial term of the Permit, and staff is recommending the City Council
provide direction to pursue an M&O Agreement with the State for continuation of these
services; and
WHEREAS, staff is recommending the M&O Agreement be expanded in terms of the
scope of services to be provided, and the areas to be serviced. Specifically, the services to be
provided would include not only capital improvements and basic maintenance, but also
recreation programming and public safety. The areas to be serviced would include all State
beaches along the City's coastline -exclusive of the beach area that is part of the South
Carlsbad State Beach Campground; and
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WHEREAS, the State has previously expressed an interest in entertaining discussions on
such an M&O Agreement with the City; and
WHEREAS, under an M&O Agreement, staff envisions the potential to extend the
identity of the City into the State's beaches. At the same time, the amenities within the State's
beaches could be upgraded to the City's standards; and
WHEREAS, staff sees an opportunity to incorporate the City's high caliber of recreation
programming into the State's beaches, and recognizes the ability to integrate the City's premier
public safety forces into such functions as year-round lifeguarding and frequent law
enforcement patrols; and
WHEREAS, some of the benefits that could be derived from the City executing an M&O
Agreement on the described State beaches include: protection and enhancement of our
greatest natural/tourism asset, sustainability of a key destination for over 3 million visitors each
year, and quality of life enrichment and economic booster of a top notch attraction; and
WHEREAS, the overarching expected results of an M&O Agreement would be consistent
with multiple aspects ofthe City's Mission, Vision, and Values.
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbad,
California, that:
1. The above recitations are true and correct.
2. There is no direct fiscal impact associated with the recommended action.
3. Staff is directed to pursue a long term maintenance and operations agreement
with the California Department of Parks & Recreation for state-owned beaches
within the City of Carlsbad, exclusive of the campground at South Carlsbad State
22 Beach.
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1 PASSED, APPROVED AND ADOPTED at a Regular Meeting ofthe City Council of the City
2 of Carlsbad on the 24th day of February, 2015, by the following vote to wit:
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AYES: Council Members Hall, Blackburn, Schumacher, Wood, Packard.
NOES: None.
ABSENT: None.
MATT HA l:Mayor
ATTEST:
Mission
The City of Carlsbad enhances the lives of all who live, work
and play in our city by setting the standard for providing top
quality, efficient local government services.
Vision
A world class city.
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Organizationat Values
resourceful
Stewardship We respons ibly manage the public resources
entrusted to us.
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City Council Meeting –Feb. 24, 2015
Chris Hazeltine, Parks & Recreation Director
City Maintenance and Operations of CA State Beaches
Our Coastline
•5 miles of state-owned beach within the City of Carlsbad
–Exclusive of the campground at South Carlsbad State Beach
Our Coastline
•5 miles of state-owned beach within the City of Carlsbad
–Frazee State Beach
Our Coastline
•5 miles of state-owned beach within the City of Carlsbad
–Tamarack State Beach
Our Coastline
•5 miles of state-owned beach within the City of Carlsbad
–North Ponto State Beach
Our Coastline
•5 miles of state-owned beach within the City of Carlsbad
–South Ponto State Beach
Our Coastline
•5 miles of state-owned beach within the City of Carlsbad
–California State Parks operates under significant budget restrictions
–The result is a lack of ability to provide basic maintenance services
Yesterday’s Actions
•October 15, 2013
–City Council directed staff to pursue exploration of expanded
partnership opportunities with California State Parks, with the goal
of enhancing beach facilities and services along the full extent of
Carlsbad’s coastline
Yesterday’s Actions
•May 20, 2014
–Staff submitted, and City Council executed, a Right of Entry Permit
with California State Parks to improve and maintain the upper picnic
facilities at Tamarack State Beach and the coastal bluff at
Tamarack/Frazee State Beach
Yesterday’ s Actions
•Right of Entry Permit executed with California State Parks
-Term of permit is one year: May 20, 2014 –May 19, 2015
-Permit may be extended by mutual agreement
-Permit allows for a short term means of entering sites for
improvement and basic maintenance services
-Goal was to execute a long term maintenance and operations
agreement for continuation/expansion of services
Picnic Facilities
•Tamarack State Beach
–Limit of improvements
•Tamarack State Beach upper picnic facilities improvements
⁻Pruned or removed trees/shrubs and renovated turf areas
⁻Retrofitted irrigation systems and re-landscaped planters
⁻Replaced the corroded steel handrails with the aluminum standard
⁻Replaced the dilapidated benches, tables and trash receptacles
⁻Installed a drinking fountain and two outside showers
⁻Refurbished the restroom building -inside and outside
Today’s Results
Picnic Facilities
Yesterday Today
Picnic Facilities
Yesterday Today
Picnic Facilities
Yesterday Today
Picnic Facilities
Yesterday Today
Picnic Facilities
Yesterday Today
Picnic Facilities
Yesterday Today
Picnic Facilities
Yesterday Today
Picnic Facilities
Yesterday Today
Picnic Facilities
Today
Coastal Bluff
•Tamarack/Frazee State Beach
–Limit of bluff improvements
•Tamarack/Frazee State Beach coastal bluff restoration
⁻Removed invasive and non-native plants
⁻Installed on-grade irrigation systems
⁻Planted over 5,000 native plants
⁻Installed protective cages around selective plants
⁻Installed protective fencing at north and south ends
⁻Sprayed south end with native hydroseed mix
Today’s Results
Coastal Bluff
Yesterday Today
Coastal Bluff
Yesterday Today
Coastal Bluff
Yesterday Today
Coastal Bluff
Yesterday Today
Coastal Bluff
Yesterday Today
Coastal Bluff
Yesterday Today
Coastal Bluff
Today
Tomorrow’s Potential
•Long term maintenance and operations agreement
–Expanded partnership opportunity with California State Parks
–Basic maintenance
–Capital improvement projects
–Recreation programming
–Public safety
Tomorrow’s Potential
•Example of a successful City/State collaboration
–City of Encinitas: long term agreement commenced in 1989
Tomorrow’s Potential
•Moonlight Beach
Tomorrow’s Potential
•Moonlight Beach
Tomorrow’s Potential
•Moonlight Beach
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Benches
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Picnic tables
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Trash receptacles
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Designated fire rings
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Umbrellas and shade structures
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Interpretive panels
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Mobile concessions
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Refurbished and additional restrooms
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Drinking fountains and showers
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Playgrounds and exercise stations
Today & Tomorrow
•Amenities upgraded to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻Lifeguard towers
Tomorrow’s Potential
•Recreation programming
–Special events
–Summer camps
–Surf camps
–Fitness classes
–Sport competitions
–Junior lifeguarding
•Beaches with lifeguard services by California State Parks
-Frazee State Beach
-Tamarack State Beach
-North Ponto State Beach
-South Ponto State Beach
Yesterday & Today
•Beach & water safety for residents, visitors, & events
–Public education
–Learn-to-swim
–Junior lifeguard program
–Off-site public education
–Staffing info at hotels, businesses, etc.
–Public service announcements
–On-site public education
–City of Carlsbad “Ambassadors”
–Flags, signage, face-to-face education
Lifeguard Services
•Beach & water safety for residents, visitors, & events
–Separation of incompatible activities
-Stand ups, jet skis, swim, surf
–Career and growth development
–For the youth, public service introduction, health
–Enforcement on beaches and in the waters
–Permits, alcohol, disorderly conduct, parking
Lifeguard Services
Tomorrow’s Potential
•Local control of the State-owned beaches & waters
–Treated as part of the City of Carlsbad
Our Coastline
•Benefits of a long term agreement with California State Parks
–Protection and enhancement of our greatest natural/tourism asset
–Quality of life enrichment of a top notch attraction
–Key destination for over 3 million visitors each year
–Economic booster
Our Coastline
•City’s mission, vision, and values
–The overarching expected results of a long term agreement
would be consistent with multiple aspects of the City’s
mission, vision, and values
Our Coastline
•Recommended action
–Adopt resolution # 2015-041, directing staff to pursue a long term
maintenance and operations agreement with the California Department
of Parks and Recreation for state-owned beaches within the City of
Carlsbad, exclusive of the campground at South Carlsbad State Beach
City Council Meeting –Feb. 24, 2015
Comments and Questions
City Maintenance and Operations of CA State Beaches
Picnic Facilities
•Landscape/hardscape services cost estimates:
–Initial improvements: $200,000
–Onging maintenance: $50,000/yr.
•Restroom/pump station services cost estimates:
–Initial improvements: $200,000
–Ongoing maintenance: $25,000/yr.
Yesterday’s Actions
•Tamarack/Frazee state beach coastal bluff restoration
-Agricultural Conversion Mitigation Fee Grant awarded to State in 2009 to
perform the coastal bluff restoration project
-State notified City it had been unable to complete the project
-State expressed interest in partnering with City to complete the project,
with City added as a co-grantee to the Agricultural Conversion Mitigation
Fee Grant
•Bluff services cost estimates:
–Initial restoration: $499,830
-$234,830 –reallocation of Agricultural Conversion Mitigation Fee Grant
to general fund
-$265,000 –new allocation from general fund
–Ongoing maintenance: $40,000/yr
Coastal Bluff
Tomorrow’s Potential
•Amenities brought up to City of Carlsbad standards
•City of Carlsbad identity extended to the beach
⁻ADA compliant access
Tomorrow’s Potential
•Estimated annual maintenance and operations costs
–Basic maintenance:$500,000
–Recreation programming:$200,000
–Public safety:$1,800,000
Lifeguard Services
•Lifeguarding costs in other cities
–Newport Beach: $2,500,000 -with own admin support
–Oceanside: $1,700,000 -plus fire department admin support
–Encinitas: $1,500,000 -plus fire department admin support