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HomeMy WebLinkAbout1997-09-15; Parks & Recreation Commission; 997-7; Carlsbad Blvd. re-alighnmentPARKS & RECREATION COMMISSION - AGENDA BILL AB# 997-7 MTG 9-15-97 1EPT CSD TITLE: CARLSBAD BOULEVARD RE-ALIGNMENT AND LAND USE STUDY (INFO) RECOMMENDED ACTION: Accept and file. ITEM EXPLANATION: During the August meeting, the Commission requested information relative to City Councils action to review a proposed program for the re-alignment of Carlsbad Boulevard from Manzano Drive to Batiquitos lagoon. As part of Council's review, staff was directed to initiate steps to further study the eastern alignment of Carlsbad Boulevard in an effort to identify opportunities and constraints which may exist as part of such an undertaking. Accordingly, the Planning Department staff is in the initial steps of preparing a "Land Use and Feasibility Study". Among other issues, the Land Use Study will evaluate a range of potential land uses for any surplus land which may be created as a result of the suggested realignment. Such uses may include possible park uses and/or provide for a variety of recreational opportunities. The attached exhibits will provide more detailed information on this issue which is currently in its preliminary stages. Staff will continue to update the Commission regarding the status of this study as it progresses through what will no doubt be a very lengthy process. iXHIBITS: 1. Memo - "Carlsbad Boulevard Re-alignment and Land Use Study", - August 25,1997. 2. City Council Agenda Bill #14,259 34 August 25, 1997 TO: ACTING COMMUNITY SERVICES DIRECTOR FINANCE DIRECTOR FROM: Planning Director and City Engineer CARLSBAD BOULEVARD RE-ALIGNMENT AND LAND USE STUDY The City Council has recently directed staff to prepare a "land use and feasibility study" to evaluate the realignment of Carlsbad Boulevard from Manzano Drive to the mouth of Batiquitos Lagoon. In response to this request, the Planning Department is beginning the processing of hiring a consultant to prepare a land use study for the City and State owned land adjacent to Carlsbad Boulevard. The proposed project is further described in more detail in the attached City Council agenda bill, dated July 8, 1997. The first step in this process is too prepare a detailed scope of work and a "consultant request for proposal" (RFP). The land use study will evaluate a range of potential land uses for the surplus land, such as potential park uses, and also include a financial feasibility analysis. We are now in the process of forming a team of staff members to scope the project, prepare the RFP, select the consultant, and eventually review the draft land use study. The land use study is a City Council priority and they will eventually review the final product. The Planning and Engineering Department feel that input and participation on the study from the Finance and Community Service (Parks & Recreation) departments is critical to the success and validity of the study, therefore, at this point in the process we are requesting staff assistance from your departments. The first team meeting is tentatively scheduled for 2:00 PM, September 16, 1997 at the Community Development Department, and will include a representative from State Parks and Recreation, Jeff Gibson from the Planning Department, and Steve Jantz from the Engineering Department. We look forward to working with you on this matter in the future, and if you have any questions, please feel free to contact one MICHAEL HOLZMILLER MJH:JG:kr Attachment c: Assistant City Manager Community Development Director Dennis Turner Steve Jantz 35 EXHIBIT 1 CITY OF CARLSBAD - AGENDA BILL AB# 1 MTG. DEPT. ^,2J5<? 7/8/97 ENG TITLE: REVIEW PROPOSED PROGRAM FOR THE REALIGNMENT OF CARLSBAD BOULEVARD FROM MANZANO DRIVE TO BATIQUITOS LAGOON DEPT. HorVKr " CITY ATTYU^L- ' CITYMGR. <^^\T RECOMMENDED ACTION: Adopt Resolution No.directing staff to initiate steps to further study the eastern n <! o Hu o realignment of Carlsbad Boulevard between Manzano Drive and Batiquitos Lagoon. ITEM EXPLANATION: The northbound and southbound lanes of Carlsbad Boulevard between Manzano Drive and the mouth of Batiquitos Lagoon are currently located in a 200 to 300 hundred foot wide City owned public right-of-way. In addition, the travel lanes are physically separated a distance ranging from approximately 40 to over 250 feet in some locations. This wide public right-of-way and separation results in excess areas of vacant right-of-way between and adjacent to the travel lanes. In the early 1980's the City of Carlsbad and the State Department of Parks and Recreation discussed potential land use planning opportunities associated with the surplus vacant right-of-way. Much of this discussion and preliminary planning was based on a scenario in which Carlsbad Boulevard would be realigned to the eastern extent of the public right-of-way and "T intersect with Palomar Airport Road. In 1982 the State adopted a Carlsbad State Beach General Plan under the assumption that all the additional property west of the easterly realigned boulevard would be dedicated to various public recreational land uses such as open space, additional campsites, and beach parking. The State has made little or no progress in developing an implementation plan, however, subsequent staff review indicates a preliminary cost estimate of between approximately $13 - 14.5 million to construct an easterly realignment of Carlsbad Boulevard and U"T intersection with Palomar Airport Road. Additional background information is contained in the attached memorandum to the City Manager. RECOMMENDATION: If the City Council is interested in pursuing the realignment of Carlsbad Boulevard, staff recommends the following process: 1. Select a preferred conceptual roadway alignment based on one of the following two alternatives: Western Realignment Alternative: A potential westerly realignment of Carlsbad Boulevard would shift both the north and southbound lanes west to the furthest extent feasible, placing the roadway closer to the coastal bluffs and the State campground. This alternative would create areas of excess right-of-way adjacent to privately owned property east of the roadway. Assuming that the public land use designations are made consistent with the privately owned land adjoining it this alternative has the potential to increase residential and commercial development alone the roadway. If the land is leased to adjoining property owners and then developed, this realignment alternative could have the greater potential to generate City revenue to helf fund the realignment of the roadway. This potential realignment alternative would require a revision of the City's current oper space policies. The Open Space and Conservation Resource Management Plan fo Zone 9 and 22, which covers the project area states: The coastal beaches are Specia Resource Areas for public recreational use, as identified in the City's Parks and Recreatior Element. The City should continue cooperation with the State Parks and Recreatioi Department to enhance recreational opportunities within these areas". 36 EXHIBIT 2 Page 2 of Agenda Bill No. ' In addition, any general plan or zoning designation land use changes along the wester realignment would require an amendment to Carlsbad's Local Coastal Program. Th California Coastal Commission retains authority over changes to the Local Coastal grar and is mandated by the Coastal Act of 1976 to protect coastal open space and to enhanc opportunities for public recreation and access in the Coastal Zone. Section 30001.5 of th Coastal Act states that, The State Legislature finds and declares that the basic goals of th state coastal zone are to; (c) Maximize public access to and along the coast and maximiz public recreational opportunities in the coastal zone consistent with sound resouro conservation principles and constitutionally protected rights of private property owners, am (d) Assure priority for coastal-dependent and coastal-related development over othe development on the coast". A significant constraint to the western realignment alternative is that it would expose thi roadway to damage from bluff erosion caused by storms which could require expensivi protective measures. Eastern Realignment Alternative (Including Bovle Alternative 3 for the "T" intersection o Palomar Airport Road and Carlsbad Boulevard): The Engineering Department has prepared a preliminary eastern alignment proposa relocating the southbound lanes of Carlsbad Boulevard by up to 150 feet to the eas adjacent to the existing northbound lanes. In order to maximize usable land to the west, th< 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 Boulevarc and Palomar Airport Road intersection alignment issues and alternatives. Key issues in the study were the irregular angle created where Palomar Airport Road joins Carlsbac Boulevard, vertical alignments and the ability to salvage the existing railroad bric^ jus westerly of Avenida Encinas. The study concluded that it was not cost-effective to . vage the existing bridge and that Alternative 3, which minimizes the skew of the intersection would be preferred. The proposed easterly realignment shown on Exhibit 2, along with the Boyle Alternative 3 "T intersection have the potential to: • Maximize generation of beach front property for public uses such as beach parking anc recreation, consistent with existing City and State policies. There may also be some potential for development opportunities relating to tourist serving land uses; • Minimize construction costs. By relocating only the southbound lanes, constructior costs will be one half the cost of a total reconstruction. Maintenance costs are reducec by moving the roadway away from the coastal bluffs; • Potentially accommodate plans for Carlsbad State Beach campground expansion; • One potentially negative issue with an eastern realignment is that it may require traffic noise mitigation for some private property owners east of the roadway, including the twc mobile home parks. Should the City Council choose to explore realignment further, staff recommends the easterly roadway realignment and the Boyle Alternative 3 "T" intersection realignment as the option most consistent with current City and State plans and policies. Page 3 of Agenda Bill No. 2. Direct staff to prepare a "scope of work" and "request for proposal" to contract with _ consultant to prepare a three phase corridor land use study to evaluate the roadwa realignment selected by the City Council. This type of study would facilitate input fror affected and interested citizens and public agencies, help coordinate the evaluatio process, and answer some of the following important questions: • Phase I - environmental opportunities and constraints analysis. What are th environmental impacts and constraints associated with the realignment of Carisba Boulevard?; • Phase II - land use opportunities and constraints analysis. What are the viable land us alternatives for the surplus vacant land based on the environmental impacts an existing physical constraints of the right-of-way area?; and, • Phase III - financial feasibility analysis. Are there economically viable land us alternatives that would provide sufficient revenue to help fund the construction costs c the roadway realignment? ENVIRONMENTAL REVIEW: No environmental review has been completed on either of the two proposed realignments or th land use alternatives. Contracting for a consultant would also require no environmental review. Prior to adoption of any plan or phase, detailed environmental analysis on the complet realignment program will be required along with coordination with the Coastal Commission an other appropriate agencies FISCAL IMPACT:r Staffs review indicates a preliminary cost estimate of between approximately $13 -14.5 million to construct an easterly realignment of Carlsbad Boulevard and "T intersection with Palomar Airport Road. The corridor study for the selected realignment alternative, including environmental, land use, and financial studies, would require outside consulting services. The cost of these services will not be known until further exploratory work and scopes of services have been developed. However, staff believes that the cost to prepare the study will be in the range of $100,000 to $250,000. If so directed, staff will return to Council for appropriation and contracts when they become known. EXHIBITS: 1. Adopt Resolution No. * '' 3 ^directing staff to initiate steps to proceed with a study 1 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. 38 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 RESOLUTION NO. 97-532 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD, CALIFORNIA, APPROVING CARLSBAD BOULEVARD REALIGNMENT ACTION PLAN AND APPROPRIATING TRANSNET LOCAL FUNDS FOR DESIGN AND PLANNING STUDIES. WHEREAS, the City Council of the City of Carlsbad has determined that it is desirab and in the public interest to explore the realignment of Carlsbad Boulevard from Manzano Driv to the South City Limits to increase public access and use of beach front properties; and WHEREAS, development of such a program requires further design, planning environmental and financial studies to evaluate and implement such a realignment program. NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbac California, as follows: 1. Council authorizes staff to proceed with the following actions to study th realignment of Carlsbad Boulevard as generally depicted on Exhibit 2 (attached). A. Prepare a "scope of work" and "request for proposal" to contract with consultant to prepare a three phase corridor land use study to evaluate th< easterly roadway realignment. The study would include, at a minimum, th< following: Phase I - environmental opportunities and constraints i ysis Phase II - land use opportunities and constraints analysis; and, Phase III financial feasibility analysis. B. Implement Boyle Alternative 3 for the intersection of Carlsbad Boulevard an< Palomar Airport Road as depicted in the Conceptual Design Report date* April 10, 1992 PASSED, APPROVED AND ADOPTED at a regular meeting of the Carlsbad City Counc held on the 8th day of July , 1997 by the following vote, to wit: AYES: Council Members Lewis, Finnila, Nygaard, Kulchin, and Hall NOES: None ABSENT: None JDE A. l/EWTS; Mayor ATTEST: . *~-~— ALETHAL/RAUTENKRANZ, City Clerk /(SEAL) 39 r LLJ OUJCO UJ2 O UJcc LU,J O03 CD 05 g UJ Oen 9CDUl QIDinOa.Occ0. 40 UJ O 0. <M H- CD r Oc UJ OCD O CD 2 UJ O UJC/3 UJ g_i< UJ Q QC UJ—I Om men_itr<O M UJ OUJ J= O.o < oX »- OCUJ en a. I 42 J 1 ta: 8 I TINT • IITiK) NT-Id 1VM3N3S iSVOO 09310 NTS M3TM llfit OVK1H*3 M100S m • •• It? ill i ! ii iB0• — { 9i »r * •-r 5• _ r t iO • i« i I t i!ill ;a • !it.••: h: *!• J«*;;? h'if; ^V i»?ill• -siili "OCL 44 nl — oco—. CM TINT • THT110 -ITOUJ3N03 NVU 1VU3N39 1SV03 09310 NTS H3»Jt liTil OVflfum HAWS MOUvaOB CHO ftVt iO 1MWUV4M JUNE 24, 1997 TO: CITY MANAGER FROM: City Engineer PROPOSED PROGRAM FOR THE REAUGNMENT OF CARLSBAD BOULEVARD FROM MANZANO DRIVE TO SAN MARCOS CREEK This memo is intended to supplement the information provided in the agenda bill oh the eastern alternative realignment of Carlsbad Boulevard from Manzano Drive to San Marcos Creek. To shorten the length of the agenda bill and to keep it focused on the primary issues, some of the background information, quantitative detail, and preliminary staff investigation is provided here. BACKGROUND INFORMATION: Beginning in the early 1980's, the City of Carlsbad and the State Department of Parks and Recreation began to explore a program to relocate Carlsbad Boulevard to the east, from Manzano Drive to San Marcos Creek. Initial planning for that program was incorporated into the South Carlsbad State Beach 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 Boulevard would be dedicated to various recreational purposes including additional camp sites, parking, beach access, and State administration and maintenance facilities. A major feature of this plan was a group camp site and hostel on property owned by the State between Manzano Drive and Palomar Airport Road. This plan anticipated that Carlsbad Boulevard would be realigned to T" into Palomar Airpr ~ Road. Little progress has been made in implementing this plan and subsequent review indicates thai additional planning, engineering, and economic analysis is required before implementing a program. POTENTIAL PROJECT PHASING ALTERNATIVE FOR AN EASTERN REALIGNMENT: The easterly realignment project has been analyzed in four segments which could be developed independently corresponding'to logical land use planning areas. Development timing of any segment would be coordinated with abutting development within the limits of available funding. CARLSBAD BOULEVARD REALIGNMENT PRELIMINARY COST ESTIMATES Segment 1 Segment 2 Segment 3 Segment 4 Palomar Airport Road Intersection - Palomar Point North Point Beach - Anacapa Court to Palomar Airport Road South Carlsbad State Beach South Ponto Beach Area - Poinsettia Shores TOTAL $7.0 million $2.5-3 million $2.5-3 million $1-1 .5 million $13-14.5 million SEGMENT 1: PALOMAR POINT INTERSECTION TO MANZANQ DRIVE In the late 1990's, the City of Carlsbad was in active negotiation with the property located at the southeast corner of Carlsbad Boulevard and Palomar Airport Road involving the potential in—._.._,. of thp jntersectjon of these two streets into a conventional T" intersection. To clearly REALIGNMENT OF CARLSBAD BOULEVARD JUNE 24, 1997 define property development potential, the City contracted with Boyle Engineering to study alignment issues and alternatives. Key issues in the study were the irregular angle created where Palomar Airport Road joins Carlsbad Boulevard, vertical alignments and the ability to salvage the existing railroad bndge just westerly of Avenida Encinas. The study concluded that it was not cost-effective to salvage the existing bndge and 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 Road and a net 1.1 acres of surplus adjacent to Carlsbad Boulevard fronting the "Blonski" property northerly 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 would produce approximately 17 acres of developable land straddling the Encinas Creek, the major sand disposal site for the Batiquitos Lagoon project Surplus property varies from 100 to 220 feet in width 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, freeing 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 property west of Carlsbad Boulevard from San Marcos Creek to Ponto Drive. Parcels of land are 175 to 200 feet in depth extending several hundred feet along the boulevard. Access to the extension of Avenida Encinas could be provided in this area. DESCRIPTION OF EXCESS LAND CREATED BY EASTERN REALIGNMENT ALTERNATIVE AND STATE OWNED LAND: The proposed easterly realignment of Carlsbad Boulevard would create approximately 46 acres of potentially usable City owned property. Excess land would fall into the following broad categories: 1 . Properties with lease or exchange potential with abutting properties - These lands would lay east of realigned Carlsbad Boulevard adjacent to private lands with development potential. Opportunities exist for lease or sale of these properties to the abutting property owner. Approximately 5 acres fall into this category; 2. Properties located west of Carlsbad Boulevard fronting the ocean - Based on further study, these properties may be suitable for joint development opportunities focused on beach access, parking, and tourist serving commercial uses. Approximately 30 acres are included in this category; and, REALIGNMENT OF CARLSBAD BOULEVARD JUNE 24, 1997 PARF T 3. Properties adjacent to the South Carlsbad State Park - These lands could be exchanged wi the State to allow expansion of the campgrounds or be developed by the City as a region coastal trail system opportunities may exist to link this trail system to the proposed Coastal Rz Trail program. Included in the property summary is a list of several properties owned by the State Department c Parks and Recreation which have the potential of being incorporated into an overall joint developmer program. These lands include over 17 acres of property. These lands could potentially be jointl developed with the State or exchanges could be negotiated to allow independent programs to b pursued by the two agencies. The table below summarizes these properties in more detail: PROPERTY SUMMARY CITY PROPERTY: East of Carlsbad Boulevard - Private Property Lease/Exchanae • Palomar Airport Road • Anacapa Court • Ponto Drive West & East of Carlsbad Boulevard - Potential Recreation Property • Encinas Beach • Ponto Beach • Manzano/PAR Surplus South Carlsbad State Park Frontaqe TOTAL - CITY PROPERTY STATE PROPERTY: •• Manzano/PAR • PAR Parking Lot • Ponto Area TOTAL - STATE PROPERTY 1.6-0.5 acres net = 1.1 acres 2.5 acres . 1 .6 acres 17 acres 6.5 acres 6.0 acres 11. 5 acres 46.2 acres 14.75 acres 0.35 acres 2.0 acres 17.1 acres PRELIMINARY FINANCIAL ISSUES The proposed program has significant construction and operational costs such as lifeguard service, maintenance of recreational and parking facilities which need to be carefully evaluated before proceeding with each element of the program. It is anticipated that some joint development opportunities on the excess properties would generate some revenues. These revenues would accrue to the General Fund. While subject to further Council action, these revenues could be made available to support the realignment program, it is not clear that they would cover a major fraction c'"**ie approximately $14 million project cost. To the extent that General Fund obligations ex^-ed $1,000,000, it would be subject to voter approval under the provision of Proposition H. 3