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HomeMy WebLinkAbout1999-12-15; Planning Commission; ; CUP 99-22 - LEO CARRILLO RANCH PARK4'he City of Carlsbad Planning Departm.ef ~ A REPORT TO THE PLANNING COMMISSION P.C. AGENDA OF: December 15, 1999 Item No.@ Application complete date: October 5, 1999 Project Planner: Jason Martin Project Engineer: Mike Shirey SUBJECT: CUP 99-22 -LEO CARRILLO RANCH PARK -Request for approval of a Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program, and for Conditional Use Permit to allow establishment and operation of a public park on the historic Leo Carrillo Ranch site located just south of the intersection of Poinsettia Lane and Melrose Drive in Local Facilities Management Zone 18. I. RECOMMENDATION That the Planning Commission ADOPT Planning Commission Resolution No. 4693 APPROVING the Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program, and ADOPT Planning Commission Resolution No. 4694, APPROVING Conditional Use Permit 99-22 based upon the findings and subject to the conditions contained therein. II. INTRODUCTION The City of Carlsbad Parks and Recreation Department is requesting a Conditional Use Permit (CUP) for the Leo Carrillo Ranch Park. In 1997 the City Council approved the Leo Carrillo Ranch Park Master Plan and directed staff to proceed with processing the necessary environmental review and CUP. Potential impacts to the surrounding community and environment which have been identified can be mitigated to a level of insignificance. The City General Plan and City Zoning Ordinance supports approval of the CUP. III. PROJECT BACKGROUND AND DESCRIPTION The Leo Carrillo Ranch is located within the Rancho Carrillo Master Plan. In 1972, the City Council approved the Carrillo Ranch Master Plan/project and its associated Environmental Impact Report (EIR). Subsequent approved amendments to the Plan and EIR have altered the project boundaries and land uses, shifted residential densities, modified housing types, and reconfigured open space areas within the project area. Today the project is a 690 acre, developing residential community which generally consists of 1,800 homes, 250 acres of open space, a community park centered around the original Leo Carrillo Ranch site, and an elementary school. The project is located in the City's southeast quadrant, at the easterly City limit along Palomar Airport Road. Included in the 1997 amendment, the Plan/project name was changed to Rancho Carrillo. The name change distinguishes the Rancho Carrillo community from the project's namesake -Leo Carrillo Ranch. CUP 99-22 -LEO CARRI~O RANCH PARK December 15, 1999 Page2 The Leo Carrillo Ranch site is located at the geographic center of the Rancho Carrillo community, just south of the intersection of Poinsettia Lane and Melrose Drive. It is the location of an original homesite associated with the pre-1900, 13,000 acre, Rancho Agua Hedionda property which was owned by the pioneering Kelly family. In 1937 Leo Carrillo (a former Hollywood actor, State of California Parks and Recreation Commissioner, and dedicated environmentalist, conservationist and historic preservationist) purchased the homesite and surrounding acreage. He rehabilitated and transformed the site into a working rancho, modeled in an authentic Old California style. Because of the its importance in the history of early California settlement, unique character, and concentration of significant structures, the Carrillo Ranch was placed on the National Register of Historical Places in March 1992. In the early and mid 1990s the City Council assembled various ad hoc committees comprised of local historians, preservationists, Planning and Parks Commissioners, design professionals, and other interested parties to guide the design process for the site. After multiple committee meetings, public workshops, and presentations before a number of groups and City commissions, a draft plan was finalized. The draft plan was brought before, and approved by, the City Council in January 1997. With its approval the City Council directed staff to proceed with processing the necessary conditional use permit (CUP) and environmental review. The approved Leo Carrillo Ranch Park Master Plan document was recently circulated to the Planning Commission in advance of this report for reference in consideration of the CUP. The Leo Carrillo Ranch Park Master Plan provides for the establishment of a passive, community park focused around historic buildings in a heavily landscaped, rustic setting. (A large scale, conceptual site plan is included with this report). The original park site was 10.5 acres. Nearly 17 acres of open space, which was dedicated to the City by the Rancho Carrillo master developer, has been added to the park. The northwesterly portion of that open space is in an undisturbed, natural state and is considered to possess high habitat value. Carrillo Creek, an intermittent stream, transects the area. This natural resource area was identified as a preserve area in the City's recently adopted Habitat Management Plan. Existing community trails are situated in this area, and in the open space area on the south side of the site. Developing residential uses abut the site in the south and southeast. The site abuts open space in the west, the Leo Carrillo Middle School in the northwest, and an undeveloped day care site in the east. In addition to being a highly valued Rancho Carrillo community and City amenity, the park is expected to have regional and statewide appeal as well. The physical implementation of Leo Carrillo Ranch Park is divided into three phases. Phase 1 involves the installation of perimeter walls, other fencing, landscaping, and some minor building stabilization measures. Phase 1 was started in advance of processing this CUP in order to provide site security and is nearing completion. Phases 2 and 3 involve the more substantial components of the project. A listing of the major components follows: • Restoration and rehabilitation of the buildings and other structures on-site, including the Hacienda, the swimming pool, fish pond and the pedestrian and vehicular bridges. The rehabilitation includes seismic structural retrofitting and fire protection measures. No demolition of significant structures will occur. • New construction of a caretakers residence, a pedestrian bridge, two (2) bathroom structures, and a small outdoor amphitheater. CUP 99-22 -LEO CARRIio RANCH PARK December 15, 1999 Page3 • New construction of a park main entrance off Carrillo Way, an access road, and a two-tiered parking area with 82 parking spaces (including 4 ADA spaces, 10 employee spaces, and oversized vehicle spaces). • Installation of water, sewer, and drainage infrastructure improvements. • Installation of paved pathways, stairs, and expanded patio areas, including ADA pathways and ramps. • Installation of miscellaneous site furniture such as lighting, benches, picnic tables, drinking fountains, trash receptacles/enclosures, water troughs, and hitching posts. • Installation of on-and off-site signage. • Creation of trail linkages to the community trail network. • Rehabilitation of landscaped areas which includes retaining healthy landscape, removal of dead/dying landscape, and the installation of new in-fill landscape materials. • Installation of a landscape irrigation system, designed to be converted to recycled water use. • Installation of public art displays. Phases 2 and 3 design and construction costs are identified in the adopted FY 99/00 Capital Improvement Program. Final and detailed design work will begin once the CUP and environmental review process is complete. When complete, final plans will be submitted to the Fire, Engineering, and Building Departments for development review and approval prior to the issuance of any permits. According to the Parks and Recreation Department, construction is expected to begin in November 2000 and last until May 2002. According to the plan, the facility would be City-operated for the first few years, with the possibility of management responsibility being ultimately given to a non-profit organization. Beyond its physical components, the project possesses a "use" aspect which is being considered under the conditional use permitting procedure. Anticipated and potential uses and/or activities associated with the project are identified throughout the text of the plan. The following is a summary: • Docent and self-guided tours of the grounds, buildings, and exhibits. • Primarily day-time activities ( day/hours of operation is indicated on page 4-80 of the plan). It is expected, however, that special events would extend beyond normal park hours. • Group functions such as community or special-interest events, weddings, and corporate parties which could be catered. • Live entertainment and theater, movies, and story telling. • Visitors center, gift shop, snack sales, and picnicing. • Business/administrative offices and caretaker residence. • Artifact, memorabilia, and art display; ranch life demonstrations (i.e. horse shoeing, blacksmithing, throwing pottery, basket weaving etc), art and crafts instruction. • Animal showing and keeping including horses, chickens, peafowl. • Recreation such as biking, hiking, horse back riding, and throwing horse shoes. (Although the swimming pool will be rehabilitated, it will be as a reflection pool as opposed to a swimming pool). To promote a more historical experience and maintain the unique character of Carrillo Ranch, the plan envisions relatively small group tours of no more than 20 and no more than 2 bus loads of children at one time. The plan identifies an initial program that would include 2 or 3 days a CUP 99-22 -LEO CARRI~O RANCH PARK December 15, 1999 Page4 • month reserved for school children tours, 1 or 2 major community events per year, 12-15 weddings events per year, and 4 corporate retreats/parties per year. This scenario is envisioned for the first year of operation and it is expected that future years activity and demand will mcrease. IV. ANALYSIS The proposed project is subject to the following plans and ordinances. Evaluation of the project within these contexts follows. A. The City of Carlsbad General Plan Parks and Recreation Element; and B. The Carlsbad Zoning Ordinance -Conditional Uses, Chapter 21.42. General Plan The Parks and Recreation Element of the City General Plan addresses the Leo Carrillo Ranch site and calls for its use as a community park. Stated goals in the plan call for a diversified, comprehensive City park system that includes passive as well as active parks, and parks in special resource or historical areas to promote public education. The Carrillo Ranch Park would serve as a passive park and a forum for educating the public in local and state history. The City General Plan supports approval of the Leo Carrillo Ranch Park CUP. Conditional Uses The conditional use permitting procedure provides the means to evaluate the appropriateness of certain types of uses which possess, because of their nature, the potential to adversely impact surrounding land uses, and to apply conditions of approval to minimize any identified potential impacts. The Carlsbad Zoning Ordinance identifies four "findings" or facts that must be found to exist, in granting approval of a CUP. Staff believes that, with conditions of approval, all the required findings can be made and that the CUP for Leo Carrillo Ranch Park can be approved. The findings and supporting evidence, and the conditions of approval are contained in the attached Planning Commission resolution for approval of the CUP. Conditions of approval have been developed and are recommended to address potential issues that have been identified. The issues relate to parking, noise and lighting. The park plan was approved by City Council with an on-site parking lot which accommodates a total of 82 vehicles. The parking lot layout and the amount of spaces provided was approved with special consideration to anticipated and normal parking demands, topographical site constraints, and maintenance of the historic character of Carrillo Ranch. It was acknowledged in the plan that there may be a need for overflow parking facilities. At this time, however, it is difficult to predict the need, if any. The opportunities for overflow parking which could be provided by the adjacent school site and the City Safety Center are highlighted in the plan. Given the Park site's close and convenient proximity to residential areas, however, a potential does exist that overflow parking might impact those areas. Conditions of approval are recommended for the project to minimize the potential overflow parking impact. They include 1) a prohibition of park parking in the adjacent residential areas, which would not include the segment along Carrillo Way near the park entrance which does not have residences fronting on it; 2) a requirement for a parking management plan; 3) a requirement for proof of authorization CUP 99-22 -LEO CARRI~O RANCH PARK December 15, 1999 Page 5 from the San Marcos School District for use of Leo Carrillo Middle School parking spaces; and 4) a requirement that the park staff actively police the residential areas during high parking demand events. Normal park hours of operation are similar to normal business hours. It is expected, however, that some community and private events, which are subject to the City's Special Events permitting procedure, may on occasion extend into nighttime hours. Since these events could involve live entertainment and/or the use of amplified sound, they possess the potential to impact surrounding residential uses with regard to noise. To minimize this potential, staff is recommending that a condition of approval be applied to the CUP which limits live entertainment and/or amplified sound to between the hours of 10 AM to 8 PM Sunday through Thursday, and 10 AM to 10 PM Fridays and Saturdays. At the request of the Parks and Recreation Department, a provision has been added which would allow, no more than once a month, live entertainment and/or amplified sound to be conducted at the site as late as 10 PM Sunday through Thursday. Site lighting is necessary, will be installed as part of the project, and does possess the potential to impact nearby uses unless mitigated. The plan requires that lighting be designed to not impact the historic character of the site. There is an additional need, however, to ensure that site lighting, permanent and temporary, not impact surrounding sensitive residential uses and wildlife areas. Staff is recommending a condition of approval for the CUP which requires that lighting be designed to address this issue and that a detailed lighting plan be submitted for review and approval by the Planning Department. The approved plan highlights the anticipated type and frequency of uses, at least in the first years of operation. It is reasonable to expect, however, that park activity will evolve over the years. It is important to ensure that, over the life of the park, impacts to surrounding uses will be minimal. Therefore, staff believes that periodic review of the CUP should be built into the CUP approval and is recommending the standard condition of approval which empowers the Planning Director to initiate at his or her discretion, reconsideration of the CUP at a public hearing before the Planning Commission. V. ENVIRONMENTAL REVIEW An Environmental Impact Report for the overall Rancho Carrillo project, which generally addresses the Leo Carrillo Ranch site, has been previously certified by the City Council. Staff believes, however, that more detailed focus on the site and use was necessary, and conducted an Environmental Impact Assessment (EIA) for the project in accordance with the California Environmental Quality Act (CEQA). Potential impacts were identified and can be mitigated to a level of insignificance. Staff is recommending the adoption of a Mitigated Negative Declaration (MND) and a Mitigation Monitoring and Reporting Program (MMP). The impact areas and mitigation measures are discussed in full in the EIA and recommended MMP, which are included as an attachment to the Planning Commission Resolution for approval of the MND. The impact areas relate to parking, light/glare, noise, biotic resources, and cultural resources. Issues and mitigation measures relating to parking, light, and noise have been outlined in the preceding section. Issues and mitigation measures relating to cultural and biotic resources are outlined as follows. -CUP 99-22 -LEO CARRILLO RANCH PARK December 15, 1999 Page 6 There are two areas of potential impact to cultural resources. One relates to maintenance of the historic/cultural integrity of the Ranch site. The Carrillo Ranch site is on the National Register of Historic Places and has state recognition as well. That status and the importance of maintaining the site's integrity was considered in both the approval of the overall Rancho Carrillo Master Plan, and in greater detail in the Leo Carrillo Ranch Park Master Plan development and approval process. The Rancho Carrillo Master Plan created a special design district concerning properties around the Leo Carrillo Ranch site, which has been implemented through the development review process for those recently constructed projects. The adopted Plan for the Park itself contains a number of design guidelines pertaining to building rehabilitation, new construction, hardscape, and landscape intended to maintain the integrity of the site. No removal of significant structures is proposed. New installations (i.e. buildings, site furniture, signs, and landscaping) need to be compatible with existing historic structures. A mitigation measure has been developed accordingly and has been incorporated into the proposed MND for the CUP. The mitigation measures requires that the Park and Recreation Department be responsible for ensuring this aspect of the project's compliance with the plan. The other potential impact to cultural resources relates to an identified on-site archeological resource area. Technical surveys indicate the existence of a pre-historic "camp-site" containing artifacts such as stone tools and pottery (#SDI 12,740B). The park plan does not propose to disturb the site. The park would, however, promote a greater level of human traffic in the area and therefore a greater potential for vandalism of the archeological site. The Rancho Carrillo EIR did address the site and issue, and did identify a mitigation measure that the site be capped with fabric, soil and vegetation and that the work be supervised by a qualified archeologist. That mitigation measure has been incorporated in the proposed MND for the CUP. Through the EIA, the potential for impact to biotic resources has been identified. As highlighted in the project description section of this report, the westerly/northwesterly portion of the site contains valuable natural habitat area which has been identified as a preserve area in the City's HMP. A portion of that area is woodland/riparian area, the other is grassland. The woodland is not proposed to be disturbed by development activity, however, the higher levels of activity in the area associated with the park will result in a greater probability of human intrusion into this sensitive area. Mitigation measures are recommended that require the installation of buffer landscaping and signage to discourage human intrusion. Another potential impact relates to the native grassland area, which is called out on the plan as "open space area". In order to maintain its habitat value, the area will need to be retained in its natural state or planted with landscape materials which are compatible with native species. Mitigation measures have been developed and are incorporated into the proposed MND. The applicant, the Parks and Recreation Department, has agreed to implement all the identified mitigation measures. ATTACHMENTS: 1. Planning Commission Resolution No. 4693 (Mitigated Neg Dec) 2. Planning Commission Resolution No. 4694 (CUP) 3. Location Map 4. Background Data Sheet 5. Approved Leo Carrillo Park Master Plan (previously distributed) 6. Exhibit "A" Leo Carrillo Ranch Park conceptual site plan JM:cs:rnh LEO CARRILLO RANCH PARK CUP 99-22