HomeMy WebLinkAbout2017-06-20; City Council; ; Revised Draft of the Carlsbad Trails Master PlanPage 8
From 2008 to 2010 the city engaged the community in Envision Carlsbad, resulting in a
community vision based upon a set of nine core values. Three of these core values relate directly
to trails:
o Access to Recreation and Active, Healthy Lifestyles
o Walking, Biking, Public Transportation, and Connectivity
o Neighborhood Revitalization, Community Design, and Livability
Recent Years' Solicitation of Public Input
In 2013, the draft Open Space, Conservation and Recreation Element of the Carlsbad General
Plan identified a need to provide a comprehensive Carlsbad Trails Master Plan to address diverse
user groups and trails connectivity. Later that year, the trails master planning process began by
hiring a consultant, KTU+A, and developing a public outreach program.
Public input was a major component of the trails planning process, and it aided significantly in
drafting the master plan. Input was collected through an engagement process that included an
online survey and a public workshop. The online survey was conducted from November 27, 2013
to February 28, 2014, and included an interactive map that was posted on the city's website. In
all, 332 surveys were submitted, and 272 comments on the interactive maps were provided.
On February 26, 2014, a public workshop on the master plan was held at the Faraday
Administration Building. There were 34 members of the community in attendance at the
workshop, which was an open house format-with an integrated presentation. The workshop
included display boards, maps, fact sheets, and other trails/transportation information. Several
city staff and consultants were also available to answer questions throughout the workshop. The
public provided a total of 101 written comments that evening, including many on the master plan
vision, mapping components, and a variety of other topics. City staff and consultants then set
out to create a comprehensive Carlsbad Trails Master Plan.
Initial Draft of the Carlsbad Trails Master Plan and Receipt of Public Input
During March 2015, the initial draft Trails Master Plan was available for public review. Over the
course of that review period, an additional 95 written comments were provided. Many of those
comments fell into the following general categories (with responsive action listed directly below):
• Ensure consistency with Carlsbad Habitat Management Plan for development of trails
o After reviewing the initial draft master plan with the Carlsbad Habitat
Management Plan {HMP} preserve steward, and the applicable resource agencies'
representatives, it was determined that a program level environmental review of
the master plan should be conducted. That review was conducted pursuant to the
Guidelines for Implementation of the California Environmental Quality Act and
Title 19 -Environmental Protection Procedures of the City of Carlsbad. In June
2015, Helix Environmental was hired to' develop the constraints analysis, and
subsequently the 15/MND and MMRP on the revised draft Trails Master Plan.
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• Increase protection of habitat and minimize habitat degradation
o Efforts that were increased to minimize habitat degradation include the
installation of trail regulation signage, fencing, and adherence to the HMP
Guidelines for Recreation and Public Access on page F-11 through F-14.
• Improve monitoring and enforcement of regulations on existing and proposed trails
o Additional regulatory signs were posted and observance of violations were to be
reported to the Carlsbad Police Department. A General Enforcement Authorization
Agreement allowed the Carlsbad Police Department and other law enforcement
agencies to enforce any federal, state or local laws on private properties that are
part of the open space HMP Preserve.
o Additional monitoring/enforcement resources deployed on trails and open space:
• Private security firm's contract for city trails and open space increased in
monitoring from ~420 to ~1,250 hours per year, effective October 2015.
• Preserve manager's contract for city-owned preserves increased in
monitoring from ~sao to ~1,500 hours per year, effective January 2017.
• Police Department received approval of a pilot program for monitoring
trails, open space and lagoons by two full-time rangers, effective July 2017.
o The Safety and Enforcement section of the revised draft Trails Master Plan was
revised for proposed trails to include the following provisions:
• Review of trail design to ensure there are adequate emergency access
points along the entire corridor.
• Review of construction plans to include identification, regulatory and
warning signs in accordance with city accepted standards and guidelines.
• Remove proposed trails within the Buena Vista Creek Ecological Reserve and Highlands
Reserve, owned by the California Department of Fish and Wildlife (CDFW), from the plan
o This request was partially accommodated by depicting the segments as 'potential
trails', not 'existing trails' or Juture trails', on the citywide map within the revised
draft Trails Master Plan. These trail segments were not included in the 15/MND,
nor in the updated citywide trails mileage. These segments would require separate
environmental review, if determined to be feasible by the CDFW at a later date.
Notes were also placed on the map adjacent to each of the trail segments,
indicating the reserves are currently closed or extremely limited to recreational
use. The notes further reflect the city still supports completing the trails, in
accordance with the Carlsbad General Plan Mobility Element. The city will
continue discussions with the CDFW to allow controlled and monitored trails
passage through these reserves in the future.
• Include trail program goals and implementation timeframe
o The revised draft Trails Master Plan includes a program vision and supporting
goals that are intended to provide guidance for decisions related to trails
development, as well as an estimated implementation schedule.
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• Chapter 2-Planning Efforts and Considerations, Section 2.2-Trails Master
Plan Goals and Objectives, describes the four major goals that were
assembled as a result of the public input surveys and workshop:
./ Create a connected and complete trails system
./ Accommodate a variety of trail users in a safe and environmentally
sensitive manner .
./ Identify existing and future trail development
./ Integrate transportation related facilities as part of the trails system
objectives.
• Chapter 2 -Planning Efforts and Considerations, Section 2.3 -Citywide
Trails Network Collaboration, indicates that trails planning and
construction is a complex process that most typically involves a
collaboration between city departments, other public agencies, industry
experts and stakeholder groups. Trails projects can often be part of a
larger, public or private development. In many cases, proposed trail
corridors lead through lands or easements owned by other entities,
necessitating close cooperation.
• Chapter 5-Trail Development Implementation, Section 5.1-Future Trails,
identifies the estimated project costs and estimated implementation years
of future trail segments. As noted above, the prioritization of developing
these trail segments will be based on several criteria, including the
conditions of approval for private development; transportation initiatives
of government, and funding for public projects (both locally and
regionally), such as: the Coastal Rail Trail Extension Projects and the 1-5
Freeway Widening Project. The development of trails is an opportunistic
and flexible process. Some of the smaller/shorter trails segments, such as
Type 1 trails, may be constructed by city staff and volunteers-depending
upon available resources from year to year. The majority of future trails,
however, will likely be constructed as a part of larger projects. The initial
step in considering development of most trail segments is the completion
of an environmental analysis, which determines the necessary measures to
avoid or minimize impacts to environmental resources.
The process of revising the draft Trails Master Plan included further collaboration with resource
agency representatives and other stakeholders over the subsequent year and a half. On March
3, 2016, staff held a meeting with the resource agency representatives to review the anticipated
revisions to the draft Trails Master Plan. The meeting was attended by representatives from the
California Department of Fish and Wildlife, the United States Fish and Wildlife Service, the
California Coastal Commission, the Regional Water Quality Control Board, the Army Corps of
Engineers, the Center for Natural Lands Management, Helix Environmental, and staff from the
Parks & Recreation, and Community & Economic Development Departments. The comments
received during this meeting were considered in making the revisions to the draft master plan.
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Additionally, staff kept the trails volunteer community informed on the progress of the draft
master plan via periodic email blasts, and during the Quarterly Trails Volunteers Meetings that
were held in March, June and September 2016.
Revised Draft of the Carlsbad Trails Master Plan
Trails connect people to natural and cultural amenities, as well as to important destinations, such
as parks, schools, libraries, community centers, businesses and transit stops. Carlsbad's trails
system enhances community and regional connectivity, sustainable transportation, and access
to open space. In so doing, the city is encouraging community connectedness, healthy lifestyles,
social interaction, economic vitality, and appreciation of natural resources. The revised draft
Trails Master Plan includes a program vision to guide decisions related to trails development, and
provides opportunities for both recreational and alternative transportation.
The revised draft Trails Master Plan consists of the following chapters:
• Chapter 1: Introduction & Project Background
• Chapter 2: Planning Efforts & Consideration
• Chapter 3: Analysis of Existing Conditions
• Chapter 4: Trails Network Subarea Recommendations
• Chapter 5: Trail Development Implementation
• Chapter 6: Trail Standards and Design Guidelines
• Chapter 7: Trails Operations and Maintenance
• Chapter 8: Funding Opportunities
The revised draft Trails Master Plan also supports the following Carlsbad Community Core Values:
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Small town feel, beach community character and connectedness
Open space and natural environment
Access to recreation and active, healthy lifestyles
The local economy, business diversity, and tourism
Walking, biking, public transportation and connectivity
Sustainability
Neighborhood revitalization, community design and livability
General Plan Consistency
The revised draft Trails Master Plan includes a proposed General Plan Amendment that would:
1) incorporate the Trails Master Plan by reference; 2} delete redundant and obsolete tables and
figures; and 3) update policy language to call for implementation of recommended trails projects
and to update the Trails Master Plan as necessary over time. In this manner, the proposed
amendment ensures consistency is maintained with the General Plan.
In compliance with the Carlsbad General Plan, the Parks & Recreation Department intends to use
the adopted Carlsbad Trails Master Plan as the principal guiding document for managing the
ongoing sustainability of the citywide trails system.
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Solicitation of Additional Public Input
Helix Environmental was hired to develop the constraints analysis, and subsequently the IS/MND
and MMRP for the revised draft Trails Master Plan. The IS/MND and MMRP were completed in
late March 2017, and circulated for public review and comment from April 3, 2017 to May 5,
2017. The revised draft Trails Master Plan was also posted to the Parks & Recreation web page
and distributed to city facilities in early April 2017.
Fiscal Analysis
There is no direct fiscal impact associated with receiving this report on the revised draft of the
Carlsbad Trails Master Plan.
Next Steps
Staff will collect input from the public, the City Council, and the Parks & Recreation Commission,
and then further revise the draft Trails Master Plan and the IS/MND and MMRP as necessary. It
is anticipated staff will bring the Trails Master Plan and related documents to the Parks &
Recreation Commission, the Planning Commission and the City Council for action, as follows:
SCHEDULE FOR CARLSBAD TRAILS MASTER PLAN & RELATED DOCUMENTS
Board Action for Consideration Meeting
Parks & Rec. Commission Recommend adoption of Carlsbad Trails Master Plan Mid-Fall
Planning Commission Recommend adoption of Carlsbad Trails Master Mid-Fall
Plan, IS/MND & MMRP, and approval of Carlsbad
General Plan Amendment
City Council Adopt Carlsbad Trails Master Plan, IS/MND & MMRP, Late Fall
and approve Carlsbad General Plan Amendment
Environmental Evaluation (CEQA)
An IS/MND and MMRP were prepared for the revised draft of the Carlsbad Trails Master Plan,
and circulated for public review and comment from April 3, 2017 to May 5, 2017, in compliance
with California Environmental Quality Act (CEQA) Guidelines Section 15073. At future public
hearings, the final IS/MND and MMRP will be presented to the Planning Commission for its
review and recommendation to the City Council, and to the City Council for its consideration of
adoption, prior to taking action on the Carlsbad Trails Master Plan and General Plan Amendment.
Public Notification
This staff report is made available to the public at least 72 hours prior to the posting of the City
Council meeting agenda.
Exhibits
1. Quick Facts Sheet on the revised draft of the Carlsbad Trails Master Plan
2. Revised draft of the Carlsbad Trails Master Plan, IS/MND and MMRP, and proposed General
Plan Amendment, on file at the City Clerk's Office
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property adjacent to 1-5, on the south shore of the Agua Hedionda Lagoon. This parcel, which is
next to the strawberry fields, is currently zoned for development, and a potential developer
would be required to create trails as a condition of the development's approval.
How much will implementing the Trails Master Plan cost?
The master plan doesn't include an overall budget. The estimated cost of each trail segment
listed is based on historic data gathered on trails developed in conjunction with the Parks &
Recreation Department between 2010 and 2015. The estimated project cost is for general
construction and does not include permitting, environmental review or auxiliary trail items such
as culverts, special stream crossings, or bridges, which may significantly increase the cost of the
trail segment. It also does not include maintenance of the trails.
How does the city decide when to develop new trails and how many?
There are a few ways the city adds trails to its system. One way is-through private development.
When developers want to build, the city often requires them to develop public trails as a
condition of approval. The advantage of constructing these trails is that the city doesn't need to
use taxpayer money. The city also develops new trails on its own. Recently efforts have focused
on connecting existing trails rather than creating new, stand alone trails. Finally, homeowners
associations, nonprofit organizations and other government agencies develop trails and
grant the city "easements," allowing the public to use them.
How to provide input?
The first draft of the Trails Master Plan was released for public review in 2015. City staff
incorporated public input and then studied the potential environmental impacts of the plan
according to the requirements of the California Environmental Quality Act. This study resulted
in a report called a "Mitigated Negative Declaration," which summarizes the potential
environmental effects of implementing the plan and how they will be mitigated. Certain
projects within the plan will undergo additional environmental study prior to construction.
Once public review of the environmental report is complete, city staff will respond to the
comments received. The plan and the report will then go before the City of Carlsbad Parks &
Recreation Commission for review, and Planning Commission to make a recommendation to
approve the General Plan Amendment, and subsequently onto the City Council for final
approval.
The Trails Master Plan update and environmental report are available online at
www.carlsbadca.gov/trails. The public review period for the report is from April 3 -May 5,
2017, at 5 p.m. Comments may be submitted by mail or email:
Pam Drew, Associate Planner
1635 Faraday Ave
Carlsbad CA 92008
pam.drew@carlsbadca .gov
Revised Draft of the
Carlsbad Trails Master Plan
June 20, 2017
Kyle Lancaster, Parks Services Manager
Kasia Trojanowska, Parks Planning Manager
•Receive a report on the revised draft of the Carlsbad
Trails Master Plan, and provide staff with comments on
the revised draft master plan and the proposed General
Plan Amendment
Recommended Action
•1990 -Trails Feasibility Study
•1992 -Open Space and Conservation Resource Mgmt Plan
•2001 -Trails Program Report
•2002 -Trails Implementation Plan/Trails Maintenance Plan
Prior Planning Documents
•2008 to 2010 -Core Values through Envision Carlsbad
•2013 -Open Space, Conservation and Recreation Element
of the Carlsbad General Plan
Prior Planning Documents
•Nov. 2013 to Feb. 2014 –Online survey conducted
o 14 question survey, with an interactive map
o Received 332 responses to the survey
o Received 272 comments via the map
Public Input
•Feb. 26, 2014 –Public workshop held
o Open house format and presentation
o Included display boards, maps and fact sheets
o Received 101 comments from 34 attendees
Public Input
•Mar. 2015 –Initial draft Trails Master Plan -Public Review
o Posted on city website, Parks & Rec. Dept. pages
o Sent e:mail to stakeholders, inviting participation
o Received 95 written comments
Initial Draft Master Plan
•Consistency with Carlsbad Habitat Management Plan
o Determined that a program level environmental
review of the master plan should be conducted
Comments by Category
•Consistency with Carlsbad Habitat Management Plan
o June 2015, Helix Environmental was hired to develop
constraints analysis, and subsequently the Initial
Study/Mitigated Negative Declaration and
Mitigation Monitoring and Reporting Program on the
revised draft Trails Master Plan
Comments by Category
•Increase protection of habitat to minimize degradation
o Staff’s increased efforts included:
Installation of trail regulation signage
Fencing
Adherence to the HMP Guidelines
Comments by Categories
•Improve monitoring and enforcement of regulations
o Additional regulatory signs were posted and
observance of violations were to be reported to the
Carlsbad Police Department
Comments by Category
•Improve monitoring and enforcement of regulations
o Additional monitoring/enforcement resources have
been deployed on trails and open space as follows:
Private security firm’s contract for city trails and
open space increased, effective October 2015
Comments by Category
•Improve monitoring and enforcement of regulations
o Additional monitoring/enforcement resources have
been deployed on trails and open space as follows:
Preserve manager’s contract for city preserves
increased in monitoring, effective January 2017
Comments by Category
•Improve monitoring and enforcement of regulations
o Additional monitoring/enforcement resources have
been deployed on trails and open space as follows:
Police Department received approval of a pilot
program for 2 rangers, effective July 2017
Comments by Category
•Improve monitoring and enforcement of regulations
o The Safety and Enforcement section of the draft
Trails Master Plan was revised for proposed trails:
Review of trail designs are to ensure adequate
emergency access points along entire corridor
Comments by Category
•Improve monitoring and enforcement of regulations
o The Safety and Enforcement section of the draft
Trails Master Plan was revised for proposed trails:
Review of construction plans are to include
identification, regulatory and warning signs
Comments by Category
•Remove proposed trails within the Buena Vista Creek
Ecological Reserve and Highlands Reserve, owned by
the California Department of Fish and Wildlife (CDFW)
o Segments depicted as ‘potential trails’ -not included
in the IS/MND, nor in updated citywide trails mileage
Comments by Category
•Remove proposed trails within the Buena Vista Creek
Ecological Reserve and Highlands Reserve, owned by
the California Department of Fish and Wildlife (CDFW)
o Segments would require separate environmental
review, if determined to be feasible by the CDFW
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 2, Section 2.2 -Plan Goals and Objectives:
Create a connected and complete trails system
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 2, Section 2.2 -Plan Goals and Objectives:
Accommodate a variety of trail users in a safe and
environmentally sensitive manner
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 2, Section 2.2 -Plan Goals and Objectives:
Identify existing and future trail development
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 2, Section 2.2 -Plan Goals and Objectives:
Integrate transportation related facilities as part of
the trails system objectives
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 2, Section 2.3 -Trails Network Collaboration:
Trails planning and construction involves a
collaboration between city departments, other public
agencies, industry experts and stakeholder groups
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 2, Section 2.3 -Trails Network Collaboration:
Trails projects can often be part of a larger, public or
private development
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 2, Section 2.3 -Trails Network Collaboration:
•In many cases, proposed trail corridors lead through
lands or easements owned by other entities,
necessitating close cooperation
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 5, Section 5.1 –Future Trails:
The development of trails is an opportunistic and
flexible process
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 5, Section 5.1 –Future Trails:
The initial step in considering development of most
trail segments is the completion of an environmental
analysis, which determines necessary measures
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 5, Section 5.1 –Future Trails
Identified estimated project costs and estimated
implementation years of future trail segments
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 5, Section 5.1 –Future Trails
The majority of future trails, will be constructed as a
part of larger projects
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 5, Section 5.1 –Future Trails
Prioritization of developing trail segments will be
based on several criteria, including:
–Conditions of approval for private development
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 5, Section 5.1 –Future Trails
Prioritization of developing trail segments will be
based on several criteria, including:
–Transportation initiatives of government
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 5, Section 5.1 –Future Trails
Prioritization of developing trail segments will be
based on several criteria, including:
–Funding for public projects (both local & regional)
Comments by Category
•Include trail program goals & implementation timeframe
o Chapter 5, Section 5.1 –Future Trails
Prioritization of developing trail segments will be
based on several criteria, including:
–Construction by city staff and volunteers
Comments by Category
•Mar. 3, 2016 –Resource Agencies Coordination Meeting
o Attended by multiple local, state and federal agencies
o Also attended by the Center for Natural Lands
Management, Helix Environmental, and City Parks &
Recreation, and Community & Economic Development
Stakeholders Collaboration
•Mar., June, Sept. 2016 –Quarterly Trail Volunteer Meetings
o Attended by multiple trail volunteers, the Center for
Natural Lands Management and City Parks & Recreation
Stakeholders Collaboration
•The revised draft Trails Master Plan consists of:
o Chapter 1: Introduction & Project Background
o Chapter 2: Planning Efforts & Consideration
o Chapter 3: Analysis of Existing Conditions
o Chapter 4: Trails Network Subarea Recommendations
Revised Draft Master Plan
•The revised draft Trails Master Plan consists of:
o Chapter 5: Trail Development Implementation
o Chapter 6: Trail Standards and Design Guidelines
o Chapter 7: Trails Operations and Maintenance
o Chapter 8: Funding Opportunities
Revised Draft Master Plan
Sec. 1.3 –Trails Program Mission
The citywide trails program strives to meet the leisure and
recreational needs of Carlsbad residents while protecting
and preserving open spaces and coastal resources in
accordance with the City of Carlsbad General Plan.
Sec. 2.1 –Trails Master Plan Vision
…Trails should provide options for walking, hiking, running,
& biking that support community connectivity, sustainable
transportation & access to open space all while encouraging
healthy lifestyles, social interaction, appreciation of natural
processes, support for economic vitality & connections to
neighborhoods, businesses, & popular destinations.
Sec. 3.14 -Trails Mileage
Mileage of trails in previous reports
Mileage of trails not included in previous reports
Sec. 3.14 -Trails Mileage
Sec. 3.14 -Trails Mileage
Mileage of projected trails with Trails Master Plan
Sec. 4.1 –Subarea: Agua Hedionda Lagoon
Sec. 5.1 –Trail Segment 7C
Circulation/Mobility Trails
(Paved):
Sec. 7.5 –Trail Maintenance Standards
•Slough and Berm removal
•Vegetation Clearance
•Trail Tread Maintenance
•Drainage Maintenance
•Special Structures
•Emergency Access
Sec. 8.1 –Funding Framework
•Urban Forestry
•Building Healthier Communities
•Nature Education
•Habitat Protection
•Water Quality
•Active Transportation
•The revised draft Trails Master Plan supports:
•Small town feel, beach comm. character & connectedness
•Open space & natural environment
•Access to recreation & active, healthy lifestyles
•The local economy, business diversity, & tourism
Community Values
•The revised draft Trails Master Plan supports:
•Walking, biking, public transportation & connectivity
•Sustainability
•Neighborhood revitalization, community design & livability
Community Values
•Revised draft includes proposed General Plan Amendment:
o Incorporates the Trails Master Plan by reference
o Deletes redundant and obsolete tables and figures
o Updates policy language to call for implementation of
recommended trails projects and to update the TMP
General Plan Consistency
•June 2015 -Helix Environmental hired to develop the
constraints analysis, and subsequently IS/MND &MMRP
•March 2017 -The IS/MND & MMRP were completed
•April 3 –May 5, 2017 –IS/MND & MMRP Public Review
Additional Public Input
•Early April 2017 -The revised draft Trails Master Plan was
posted to the Parks & Recreation web page and
distributed to city facilities
Additional Public Input
•Staff will collect input from the public, the City Council,
and the Parks & Recreation Commission, and then
further revise the draft Trails Master Plan and the
IS/MND and MMRP as necessary
Next Steps
•Staff anticipates bringing back the Trails Master Plan and
related documents to the following boards for action:
o Parks & Rec. Commission: Mid-Fall, 2017
o Planning Commission: Mid-Fall, 2017
o City Council: Late Fall, 2017
Next Steps
•Receive a report on the revised draft of the Carlsbad
Trails Master Plan, and provide staff with comments on
the revised draft master plan and the proposed General
Plan Amendment
Recommended Action
Questions & Answers