HomeMy WebLinkAbout2017-07-17; Parks & Recreation Commission; ; 0717-3 REVISED DRAFT OF THE CARLSBAD TRAILS MASTER PLANPARKS & RECREATION COMMISSION – STAFF REPORT
SR# 0717-3 INFO
MTG. DATE: 7/17/17 REVISED DRAFT OF THE
CARLSBAD TRAILS MASTER PLAN ACTION
STAFF: LANCASTER
TROJANOWSKA
RECOMMENDED ACTION:
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.
ITEM EXPLANATION:
Executive Summary
The revised draft of the Carlsbad Trails Master Plan builds on previous efforts related to trails and
provides a reference document for developing and maintaining the citywide trails system. It sets the
framework for a robust trails system for use by residents and visitors of the City of Carlsbad. The
‘Discussion’ section of this report summarizes staff’s previous efforts related to trails; recent years’
solicitation of public input and creation of a draft Carlsbad Trails Master Plan; the initial draft master plan,
receipt of public input and the responses provided; the revision of the draft master plan; the consistency
of the revised draft master plan with the General Plan; and the solicitation of additional public input. The
‘Next Steps’ section of this report provides a tentative schedule for staff’s responsive action to the
additional public input, and the ultimate return to the City Council for consideration of adoption of the
Carlsbad Trails Master Plan, Initial Study/Mitigated Negative Declaration (IS/MND) and Mitigation
Monitoring and Reporting Program (MMRP), and approval of the Carlsbad General Plan Amendment.
Discussion
Previous Efforts
In 1990, an Open Space Ad Hoc Committee appointed by the City Council provided advice on the
alignment of an open space trails system. Based on that advice, staff completed a Trails Feasibility Study.
In 1992, the Open Space and Conservation Resource Management Plan (OSCRMP) expanded upon that
study, and provided the framework for the city’s trails development and maintenance.
In 2001, the City Council approved the Citywide Trails Program Report, which outlined the future vision
and immediate steps to implement the citywide trails plan. In 2002, the Citywide Trails Implementation
Plan was created. It identified which existing segments of private trails would be accepted by the city as
public trails. It also identified which segments of public trails would be built over the next 5 years, either
by private development or by the city. Also in 2002, the Citywide Trails Maintenance Plan was created
and implemented.
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
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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 IS/MND and MMRP on the revised draft Trails
Master Plan.
• 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
~800 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 ‘future trails’, on the citywide map within the revised draft Trails
Master Plan. These trail segments were not included in the IS/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.
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 I-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.
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:
• 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.
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.
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
Plan, IS/MND & MMRP, and approval of Carlsbad
General Plan Amendment
Mid-Fall
City Council Adopt Carlsbad Trails Master Plan, IS/MND &
MMRP,
and approve Carlsbad General Plan Amendment
Late Fall
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.
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