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HomeMy WebLinkAbout2019-06-17; Parks & Recreation Commission; ; 0619-2 CARLSBAD TRAILS MASTER PLAN Meeting Date: June 17, 2019 To: Chairperson and Parks & Recreation Commission From: Kyle Lancaster, Interim Parks & Recreation Director Staff Contact: Kasia Trojanowska, Parks Planning Manager Subject: Carlsbad Trails Master Plan Recommended Action Receive report on the Carlsbad Trails Master Plan and recommend City Council adopt the plan. Executive Summary In January 2010, the City Council adopted the Carlsbad Community Vision, which identifies nine core community values. Trails are related to several of those core community values, including: o Access to Recreation and Active, Healthy Lifestyles o Walking, Biking, Public Transportation, and Connectivity o Neighborhood Revitalization, Community Design, and Livability The Open Space, Conservation and Recreation Element of the Carlsbad General Plan (GP) includes policy 4-P.40, which states the city shall prepare a comprehensive Trails Master Plan (TMP) that expands the existing and planned trails system. Objectives of the Carlsbad TMP were to include designing trails for diverse user groups and improved trails connectivity. The TMP builds on previous efforts related to trails and provides a comprehensive planning reference document for developing and maintaining the citywide trails system. It sets the framework for a trails system for use by residents and visitors of the City of Carlsbad. It supports both recreation and alternative transportation, and includes a program vision to provide guidance for future decisions related to trails development. Discussion General Background Public input was a major component of the trails planning process, and it aided in drafting the TMP. 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 TMP was held at the Faraday Administration Building, and 34 members of the community attended. 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 a TMP vision, mapping components, and a variety of other topics. 5 of 18 City staff and consultants then set out to create the TMP. During March 2015, the initial draft of the TMP was available for public review. An additional 95 written comments were received, which informed the revising of the draft TMP. The process of revising the draft TMP included further consultation with resources agencies’ representatives and other stakeholders. On March 3, 2016, staff held a meeting with these parties to present the proposed edits to the draft master plan. The meeting was attended by the California Department of Fish and Wildlife (CDFW), the United States Fish and Wildlife Services (USF&WS), the California Coastal Commission (CCC), the Regional Water Quality Control Board (RWQCB), the United States Army Corps of Engineers (USACE), the Center for Natural Lands Management (CNLM), Helix Environmental, and staff from the Parks & Recreation and Community & Economic Development Divisions. Multiple comments from these parties were received, and were considered in making further revisions to the TMP. In March 2017, several public meetings were held on the revised draft TMP, including: general invite, Carlsbad Trails Volunteers, Parks & Recreation Commission, Traffic Safety Commission, Beach Preservation Committee, and Agua Hedionda Lagoon Foundation. Information provided at these meetings included the TMP’s history, its mission and goals, the trails network’s mileage and classifications. During the course of revisions, staff was advised that a program level environmental review – i.e., an Initial Study/Mitigated Negative Declaration (IS/MND) and the Mitigation Monitoring and Reporting Program (MMRP) would be required for the TMP. In April 2017, the revised draft TMP was posted to the city’s website and distributed to city facilities. The Notice of Intent to adopt the IS/MND was published in the newspaper and sent to the State Clearinghouse for a 30-day public review period, from April 3, 2017 to May 2, 2017. Twenty-five comment letters were received during the 30-day public review period. The letters contained either comments about the revised draft TMP and/or the associated environmental document. The comment letters, and staff responses, are included in the final IS/MND and posted on the city’s website. In June 2017 and July 2017, the revised draft TMP was presented to the City Council and the Parks & Recreation Commission, respectively. At these meetings, additional input from the public, as well as the Council and the Commission, was received. Contents of Plan The TMP is a comprehensive planning document intended to guide the future development and maintenance of the city’s trail system. The TMP is consistent with the: Land Use and Community Design; Mobility; Open Space, Conservation, and Recreation; and Arts, History, Culture, and Education Elements of the city’s GP. The TMP furthers the community’s vision to have a fully connected trail system to provide more opportunities for active living, and to create new, non-vehicular connections to destinations through appropriate standards and design guidelines. The TMP includes 46 new trail segments to be developed by the city, private applicant, or other public agency that would expand the existing trails network by an additional 41 miles. The purpose of the GP Amendment is to modify portions of the Open Space, Conservation and Recreation Element in order to incorporate the TMP by reference into the GP. 6 of 18 The vision of the TMP is that “trails should provide options for walking, hiking, running, and biking that support community connectivity, sustainable transportation and access to open space all while encouraging healthy lifestyles, social interaction, appreciation of natural processes, support for economic vitality and connections to neighborhoods, businesses, and popular destinations.” The mission of the trails program is that it “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.” Trails and greenways offer community benefits as places for exercise and solitude, and also play a key role in physically connecting the community and creating a network of open spaces. Currently there are approximately 67 miles of citywide trails. The Open Space, Conservation, and Recreation Element of the GP includes Policy 4-P.40, which states the city shall prepare of a comprehensive TMP that expands the existing and planned trail system, with the following objectives: • Connectivity between off-road trails and major on-road pedestrian and bicycle routes, such that future improvements in the trail system also contribute to linkages between important sites (beaches, lagoons, schools, commercial centers, master planned communities, and others). • Design and designate trails as multi-use to be accessible for all user groups, including walkers, bicyclists, and equestrians (as land use policy allows). Ensure that the network provides an appropriate amount of resources for each trail type or user group. • Greenway and trail linkages from major recreational/open space areas to other land use areas or activities, including, but not limited to, residential neighborhoods, places of employment, parks, schools, libraries, and viewpoints. • Linkages/multi-use trails connecting businesses and residential neighborhoods to the coastline and beaches. The proposed TMP meets these stated objectives. Segments with Follow-up Since the dates of the above opportunities for input, city staff has participated in several meetings – some with advocates, and others with opponents, of making a part of the southern section of the Village H property into an off-leash dog amenity. Subsequently, the southeastern end of the conceptual alignment of Trail Segment 5B was adjusted to reduce possible impacts to the property’s habitat, but the segment remains within the TMP. Presuming adoption of the draft master plan as presented, Trail Segment 5B would be subject to the existing municipal code regulation for dogs to be leashed while on trails. Since the dates of the above opportunities for input, city staff has also participated in several meetings with CDFW staff – who preliminarily supported a limited use west to east connector trail through the Carlsbad Highlands Ecological Reserve, and a pedestrian only west to east connector trail through the Buena Vista Creek Ecological Reserve. However, the CDFW staff’s preliminary support for these trails was subsequently withdrawn. These two trails are designated as proposed trail segments (6A and 2C, respectively), in accordance with the 7 of 18 Carlsbad GP Mobility Element, but are noted as not being supported by CDFW staff at this time. Presuming adoption of the TMP, the city’s construction of these two trail segments would be subject to negotiation with, and ultimate approval by, the property owner - CDFW. Next Steps In compliance with the GP, the Parks & Recreation Department intends to use the adopted TMP as the principal guiding document for managing the ongoing sustainability of the citywide trails system. Presuming the Parks & Recreation Commission accepts the recommended action, the Planning Commission is next scheduled to receive a presentation on the IS/MND and MMRP, and the GP Amendment on July 17, 2019. The City Council is then scheduled to receive a presentation on the TMP, IS/MND and MMRP, and the GP Amendment, on August 27, 2019. The proposed GP Amendment will ensure ongoing consistency with the TMP currently, and in the future. The proposed GP Amendment would: 1) incorporate the TMP by reference; 2) delete redundant and obsolete tables and figures; and 3) update policy language to call for implementation of recommended trails projects and updating of the TMP as necessary over time. Below is a milestones schedule for adoption of the TMP, and its related documents. Exhibits None MILESTONE DATE Parks & Recreation Commission action presentation – to recommend the City Council adopt the TMP June 17, 2019 Planning Commission action presentation – to recommend the City Council adopt the IS/MND, MMRP, and approve the GP Amendment July 17, 2019 City Council action presentation – to adopt the TMP and the IS/MND, MMRP, and approve the GP Amendment. Aug. 27, 2019 8 of 18