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HomeMy WebLinkAbout2019-07-17; Planning Commission; ; GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN Item No. Application complete date: N/A P.C. AGENDA OF: July 17, 2019 Project Planner: Pam Drew Project Engineer: N/A SUBJECT: GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN – Request for a recommendation to adopt a Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program and a recommendation to approve a General Plan Amendment revising sections of the General Plan Open Space, Conservation, and Recreation Element to reference the City of Carlsbad Trails Master Plan. A Mitigated Negative Declaration (MND) and Mitigation Monitoring and Reporting Program have been prepared by the City Planner. The Notice of Intent (NOI) to adopt a Mitigated Negative Declaration was published in the newspaper April 6, 2017, and sent to the State Clearinghouse (SCH#2017041006) for a 30-day public review April 3, 2017 – May 2, 2017. I. RECOMMENDATIONS That the Planning Commission ADOPT Planning Commission Resolution No. 7279 RECOMMENDING ADOPTION of a Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program, and ADOPT Planning Commission Resolution No. 7280 RECOMMENDING APPROVAL of a General Plan Amendment (GPA 2017-0001) based on the findings and subject to the conditions contained therein. Although the Planning Commission does make a recommendation to the City Council on the Initial Study/Mitigated Negative Declaration (IS/MND) documents and the proposed General Plan Amendment, the Trails Master Plan itself is not subject to Planning Commission recommendation; instead, the plan requires only the approval by the City Council. However, the Planning Commission does need to make a finding that the Trails Master Plan is consistent with the General Plan as proposed to be amended. Staff has previously distributed a copy of the draft Trails Master Plan to the Planning Commission for their review. II. BACKGROUND AND PUBLIC PARTICIPATION In 2010, Envision Carlsbad was conducted and Core Values for the City of Carlsbad were established through the public engagement process. Three of the nine Core Values had a direct relation to trails: • Access to Recreation and Active, Healthy Lifestyles • Walking, Biking, Public Transportation, and Connectivity • Neighborhood Revitalization, Community Design, and Livability In 2013, the draft Open Space, Conservation and Recreation Element of the Carlsbad General Plan identified a need to provide a comprehensive Trails Master Plan to address diverse user groups and trails connectivity. Later that year, the trails master planning process began. 3 PLANNING COMMISSION Staff Report . 0 GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 2 Public input was a major component of the trails planning process, and it aided 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, 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 master plan vision, mapping components, and a variety of other topics. City staff and consultants then set out to create the Trails Master Plan. During March 2015, the initial draft of the master plan was available for public review. During that review period, an additional 95 written comments were provided, which informed refinement of the draft plan. The process of refining the draft trails master plan 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 (CDF&W), 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 Departments. Multiple comments from these parties were received, and staff considered them in making further refinements to the plan. In March 2017, several public meetings were held to provide an update of the draft Trails Master Plan and a schedule for its posting, as well as a schedule for the review period for the environmental documents. Information provided at these meetings included the master plan’s history, its mission and goals, the trails network’s mileage and classifications, and the Agua Hedionda Lagoon Subarea (as a representative example of present/future connectivity). In early April 2017, the draft Trails Master Plan was posted to the city’s website and distributed to various city facilities. The Notice of Intent (NOI) to adopt a Mitigated Negative Declaration was published in the newspaper April 6, 2017, and sent to the State Clearinghouse (SCH#2017041006) for a 30-day public review April 3, 2017 – May 2, 2017. Twenty-five comment letters were received during the 30-day public review period. The letters were either comments about the draft Trails Master Plan and/or the associated environmental document. The comment letters, and detailed responses to them, are included in the final Mitigated Negative Declaration (Attachment 1). In June 2017 and July 2017, the revised draft of the Trails Master Plan was presented to the City Council and the Parks & Recreation Commission, respectively. These public meetings offered additional opportunities for input on the master plan. The two primary comments provided were to: (a) remove segment 5B from the Trails Master Plan, located on Village H property, and instead consider making the subject portion of the Village H property into an off-leash dog amenity: and (b) change the designation of the west to east trail segments through the CDF&W owned Carlsbad Highlands Reserve (segment 6A) and Buena Vista Creek Ecological Reserve (segment 2C) from ‘potential’ to ‘proposed’, to further reflect the city’s support for full connectivity from Carlsbad to Oceanside via these trails. GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 3 Since the date of the above opportunities for input, city staff has participated in several meetings – some with advocates, and others with opponents, of making the subject portion of the Village H property into an off-leash dog amenity. As a result, the southeasterly end of the conceptual alignment of Trail Segment 5B has been adjusted to reduce possible impacts to the property’s habitat, but the segment remains within the Trails Master Plan. 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 date of the above opportunities for input, city staff has participated in several meetings with CDF&W staff – who preliminarily supported in principle a limited use west to east connector trail through the Carlsbad Highlands Reserve, and a pedestrian only west to east connector trail through the Buena Vista Creek Ecological Reserve. However, the CDF&W’s preliminary support for these trails was subsequently withdrawn. As a result, these two trails have been designated as ‘proposed’ trail segments (6A and 2C, respectively), in accordance with the Carlsbad General Plan Mobility Element. Presuming adoption of the draft master plan as presented, the city’s intent for construction of these two trail segments would be subject to negotiation with, and ultimate approval by, the property owner - CDF&W. III. PROJECT DESCRIPTION The Trails Master Plan is a comprehensive planning document intended to guide the future development and maintenance of the city’s trail system. The Trails Master Plan 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 General Plan, and 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 Trails Master Plan 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 General Plan Amendment (GPA) is to modify portions of the Open Space, Conservation and Recreation Element in order to incorporate the Trails Master Plan by reference into the 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 trails in the City of Carlsbad. The Open Space, Conservation, and Recreation Element of the City of Carlsbad’s General Plan (2015) includes a specific policy (4-P.40) that calls for the preparation of a comprehensive Trails Master Plan update 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 Trails Master Plan meets these stated objectives. GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 4 IV. ANALYSIS The Trails Master Plan is subject to consistency with the following policies and requirements: A. General Plan; B. Title 21 of the Carlsbad Municipal Code (CMC); C. Conformance with the Coastal Development policies and regulations of the Local Coastal Program (LCP) for development within the coastal zone, including: the Mello I & II, West Batiquitos Lagoon/Sammis Properties and East Batiquitos Lagoon/Hunt Properties LCP Land Use Plans; the Coastal Resource Protection Overlay Zone; Coastal Shoreline Development Overlay Zone, and the Coastal Resource Overlay Zone Mello I Segment of the LCP (Chapters 21.201, 21.203, 21.204 and 21.205 of the Zoning Ordinance); D. Habitat Management Plan; and E. Growth Management. The recommendation for approval of the General Plan Amendment was developed by analyzing the plan’s consistency with the applicable city regulations and policies, and is discussed in detail in the following sections. A. General Plan Land Use Designation The Trails Master Plan 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 General Plan, as outlined in Table A below: TABLE A – GENERAL PLAN COMPLIANCE GENERAL PLAN ELEMENTS GOALS & POLICIES CONSISTENCY COMPLIANCE Land Use & Community Design Element Community Character, Design, and Connectedness Goal 2-G.20: Develop an active ocean waterfront, with new growth accommodated west of Interstate 5, to enable residents and visitors to enjoy more opportunities for dining, shopping, and recreating along the coastline. Develop public gathering places and recreational opportunities along the coastal corridor. Beach Access and Waterfront Activity Policy – 2-P.53j: Plan and design Carlsbad Boulevard and adjacent public land (Carlsbad Boulevard coastal corridor) according to the following guiding principles [relevant sub bullet included]: • Reimagining of Carlsbad Boulevard shall be visionary. The reimagined Trail 8A, Coastal Corridor (from Cannon Road to Palomar Airport Road) is a Type 6 paved multi-use trail that provides improved amenities along Carlsbad Boulevard. Trail 10A, Coastal Corridor (from Palomar Airport Road to Poinsettia Lane), is a paved multi-use trail that provides improved amenities along Carlsbad Boulevard. Trail 12A, Coastal Corridor (from Poinsettia Lane to Batiquitos Lagoon), is a Type 6 paved multi-use trail that provides Yes GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 5 Carlsbad Boulevard corridor will incorporate core community values articulated in the Carlsbad Community Vision by providing: (a) physical connectivity through multi-modal mobility improvements including bikeways, pedestrian trails, and a traffic-calmed street; (b) social connectivity through creation of memorable public spaces; and (c) economic vitality through a combination of visitor and local- serving commercial, civic, and recreational uses and services. improved amenities along Carlsbad Boulevard. Cannon Road Open Space, Farming and Public Use Corridor Goal 2-G.28: Increase public access and use to the area primarily through the incorporation of public trails and active and passive recreation. Trail 7C, South Agua Hedionda Lagoon trail (south shore of the lagoon), is a Type 2 & 4 recreational and roadside trail that provides public recreational access. Yes Cannon Road Open Space, Farming and Public Use Corridor Policy 2-P.64: Enhance public access and public use in the area by allowing compatible public trails, community gathering spaces and public and private, active and passive park and recreation uses. Trail 7C, South Shore Agua Hedionda Lagoon trails (I-5 to Agua Hedionda Lagoon Discovery Center) are Types 2 & 4 recreational and roadside trails that provide public recreational access. Yes Community Character and Design Policy 2-P.45e. & f.: Evaluate each discretionary application for development of property with regard to the following specific criteria: • Provision of public and/or private usable open space and/or pathways designated in the Open Space, Conservation, and Recreation Element. • Contributions to and extensions of existing systems of streets, foot or bicycle paths, trails and the greenbelts provided for in the Mobility, and Open Space, Conservation, and Recreation Elements of the General Plan. Numerous trails (including trails 7B, 7C, 7H, 9A, 9C, and 9E) include Types 1, 2, and 4 facilities that are consistent with the Mobility, and Open Space, Conservation, and Recreation Elements of the General Plan. Yes Carlsbad Boulevard/Agua Hedionda Center Policy 2-P.83: West of the railroad tracks • Redevelop the Encina Power Station site with new community-accessible Trail 7A (west of I-5), Coastal Corridor and trail 7G Coastal Rail Trail Reach 3 is a Type 6 paved multi- use trail that provides Yes GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 6 open spaces along the Agua Hedionda Lagoon and the waterfront (Carlsbad Boulevard). community access along the Agua Hedionda Lagoon and Carlsbad Boulevard. Murphy Policy 2-P.91: Allow the property’s overall residential development capacity to be clustered toward the northern portion of the site to create an open space buffer and recreational trail on the southerly third of the site. Trail 12D, Batiquitos Lagoon extension is a Type 2 recreational trail that is designed to create a recreational trail on the southerly third of the site. Yes Mobility Element Goal 3-G.1: Keep Carlsbad moving with livable streets that provide a safe, balanced, cost-effective, multi-modal transportation system (vehicles, pedestrians, bikes, transit), accommodating the mobility needs of all community members, including children, the elderly and the disabled. The Trails Master Plan includes non-automotive enhancements throughout the city. Yes Street Typology and Multimodal Levels of Service Policy 3-P.8: Utilize transportation demand management strategies, non- automotive enhancements (bicycle, pedestrian, transit, train, trails, and connectivity), and traffic signal management techniques as long-term transportation solutions and traffic mitigation measures to carry out the Carlsbad Community Vision. The Trails Master Plan includes non-automotive enhancements throughout the city. Yes Street Design and Connectivity Policy 3- P.20: Engage Caltrans, the Public Utilities Commission, transit agencies, the Coastal Commission, and railroad agency(s) regarding opportunities for improved connections within the city, including: • Improved connections across the railroad tracks at Chestnut Avenue and other locations. • Completion and enhancements to the Coastal Rail Trail and/or equivalent trail along the coastline. • Improved connectivity along Carlsbad Boulevard for pedestrians and bicyclists, such as a trail. • Improved access to the beach and coastal recreational opportunities. Trails 7A (west of I-5), 7B, and 7E would involve coordination with other agencies such as Caltrans and the NCTD. Trails 7G, 8B, 10B, and 12H would provide enhancements along the Coastal Rail Trail. Trails 8A, 10A and 12A would provide enhancements along Carlsbad Boulevard. Yes GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 7 • Improved crossings for pedestrians across and along Carlsbad Boulevard. Pedestrian and Bicycle Movement Policy 3-P.24: Update the pedestrian, trails and bicycle master plans, as necessary, to reflect changes in needs, opportunities and priorities. Implementation of these policies would be on-going as individual trail segments are proposed for construction. Yes Pedestrian and Bicycle Movement Policy 3-P.25: Implement the plans recommended in the pedestrian, trails and bicycle master plans through the city’s capital improvement program, private development conditions and other appropriate mechanisms. Implementation of these policies would be on-going as individual trail segments are proposed for construction. Yes Pedestrian and Bicycle Movement Policy 3-P.32: Require developers to improve pedestrian and bicycle connectivity consistent with the city’s bicycle and pedestrian master plans and trails master planning efforts. In addition, new residential developments should demonstrate that a safe route to school and transit is provided to nearby schools and transit stations within a half mile walking distance. Trail segments 7B, 7C, 7H, 9A, and 9C are within privately-owned property. Consistency with this policy would require private developers to implement these trail segment improvements. Yes Open Space, Conservation, and Recreation Element Policies Open Space Framework Goal 4-G.1: Develop a balanced and integrated open space system reflecting a variety of considerations-resource conservation, production of resources, recreation, and aesthetic and community identity-and ensuring synergies between various open space components and compatibility with land use planning. Implementation of the Trails Master Plan would assist in implementation of this goal. Yes Beaches; Parks and Recreation Goal 4- G.8: Coordinate the planning of park facilities and trails with other recreation-oriented land uses such as open space. Trail 7C, South Shore Agua Hedionda Lagoon trail is a Type 1 nature trail that provides access to this public use corridor. Yes Beaches; Parks and Recreation Goal 4- G.10: Increase public access to and use of the Cannon Road Open Space, Farming and Public Use Corridor primarily through the incorporation of public trails and active and passive recreation. Trail 7C, South Shore Agua Hedionda Lagoon trail is a Type 1 nature trail that provides access to this public use corridor. Yes GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 8 Trails and Greenways Goal 4-G.11: Utilize greenways and trails to connect the city’s open space network. Implementation of the Trails Master Plan would utilize greenways and trails to connect the city’s open space network. Yes Habitat and Open Space Conservation Policy 4-P.9: Maintain and implement the city’s HMP, including the requirement that all development plans comply with the HMP and related documents. Require assessments of biological resources prior to approval of any development on sites with sensitive habitat, as depicted in Figure 4-3 in Chapter 4 of the General Plan. Individual trail segments would conform to this policy to ensure consistency. Yes Trails and Greenways Policy 4-P.40: Prepare a comprehensive Trails Master Plan update that expands the existing and planned 61-mile trail system. The Trails Master Plan update would expand the existing and planned trail system. Yes Trails and Greenways Policy 4-P.41: Participate with other north county communities to establish an intercommunity open space linkage program and regional trail network. At the time when trail segments that terminate or are in close proximity to city boundaries are proposed (such as trails 1B, 6A, 9D, 9E, 9F, 12A), the city should coordinate with other jurisdictions, such as the cities of Oceanside, Encinitas, and Vista to establish potential linkages with other community trails. Yes Trails and Greenways Policy 4-P.42: Locate multi-use trails and associated amenities and passive recreational features to minimize impacts to sensitive habitats and other sensitive surrounding land uses, such as residences. Individual trail segments would conform to this policy to ensure consistency. Trails 1D, 2C, 5B, 6A, 7A (west of I-5), 7B, 7C, 7H, 8B, 9A, 9D, 12D, and 12E have been identified as having a moderate to high potential for biological constraints. Yes Trails and Greenways Policy 4-P.43: Obtain an irrevocable offer to dedicate or a permanent easement for multi-use trails on privately owned property where feasible, and where trails are This policy would apply to trails 7B, 7C, 7H, 9A, 9C, and 9E that are within private property. Yes GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 9 proposed as part of the City of Carlsbad trail system. Arts, History, Culture, and Education Element Policies Archaeological and Paleontological Resources Policy 7-P.8: During construction of specific development plans, require monitoring of grading, ground-disturbing, and other major earthmoving activities in previously undisturbed areas or in areas with known archaeological or paleontological resources by a qualified professional, as well as a tribal monitor during activities in areas with cultural resources of interest to local Native American tribes. Both the qualified professional and tribal monitor shall observe grading, ground-disturbing, and other earth-moving activities. Individual trail segments would conform to this policy to ensure consistency. Trails 1D, 2C, 5B, 6A, 7A (west of I-5), 7B, 7C, 7D, 7E, 7H, 9A, 9C, 9D, 12A, 12D, 12E, and 12F have been identified as having a moderate to high potential for cultural resource constraints. Yes Archaeological and Paleontological Resources Policy 7-P.9: Ensure that treatment of any cultural resources discovered during site grading complies with the City of Carlsbad Cultural Resource Guidelines. Determination of the significance of the cultural resource(s) and development and implementation of any data recovery program shall be conducted in consultation with interested Native American tribes. All Native American human remains and associated grave goods shall be returned to their most likely descendent and repatriated. The final disposition of artifacts not directly associated with Native American graves shall be negotiated during consultation with interested tribes; if the artifact is not accepted by Native American tribes, it shall be offered to an institution staffed by qualified professionals, as may be determined by the City Planner. Artifacts include material recovered from all phases of work, including the initial survey, testing, indexing, data recovery, and monitoring. Individual trail segments would conform to this policy to ensure consistency. Yes Archaeological and Paleontological Resources Policy 7-P.10: Require consultation with the appropriate organizations and Individual trail segments would conform to this policy to ensure consistency. Yes GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 10 B. Title 21 of the Carlsbad Municipal Code (CMC) The proposed trails would be located on property that have various zoning designations; however, most of the proposed trails would be located on property with a zoning designation of Open Space (O-S) or within the public rights-of-way, zones in which recreational trail use is generally compatible. Furthermore, the zoning requirements for the various zones, such as building height, yard setbacks, lot coverage, etc. are not relevant to trails. C. Conformance with the Coastal Development policies and regulations for development within the coastal zone for the Mello I & II, West Batiquitos Lagoon/Sammis Properties and East Batiquitos Lagoon/Hunt Properties Segments of the Local Coastal Program (LCP); the Coastal Resource Protection Overlay Zone, the Coastal Shoreline Development Overlay Zone and the Coastal Resource Overlay Zone Mello I Segment of the LCP (Chapters 21.201, 21.203, 21.204 and 21.205 of the Zoning Ordinance). Proposed trails located in the coastal zone are within one of the following LCP Segments: Agua Hedionda, Mello I & II, West Batiquitos Lagoon/Sammis Properties and East Batiquitos Lagoon/Hunt Properties and are located within and subject to the Coastal Resource Protection Overlay Zone. Other trails are subject to the Coastal Shoreline Development Overlay Zone or the Coastal Resource Overlay Zone Mello I Segment of the LCP. Trail development in the coastal zone must comply with the coastal development permitting regulations and the LCP policies. Each trail segment would be reviewed for consistency with the LCP and Coastal Act prior to issuance of a CDP. Furthermore, the Trails Master Plan is consistent with applicable LCP policies in that the plan proposes: 1) lagoon and bluff top public access ways; 2) implementation of soil erosion and drainage control measures; and 3) trails and public pathways located within the first 15 feet of a buffer or fuel modification zones. Table 6, of the Final IS/MND for the Trails Master Plan, discusses in more detail how the Trails Master Plan is consistent with the applicable policies of the LCP. D. Habitat Management Plan (HMP) The Trails Master Plan is consistent with the City of Carlsbad Habitat Management Plan (HMP) in that for trail segments that may have sensitive habitat constraints: 1) a biological survey will be conducted to verify potential direct and indirect impacts to sensitive biological resources; 2) trail segments will be designed to avoid and minimize impacts to wildlife habitat and species of concern to the maximum extent practicable; 3) unavoidable impacts to sensitive natural communities will be mitigated in accordance with the mitigation ratios and requirements specified in Table 11 (page D-113) of the city’s HMP; and 4) trails located within the coastal zone will comply with coastal zone Standards listed on pages D-114 through D-121 of the city’s HMP. individuals (e.g., Information Centers of the California Historical Resources Information Systems [CHRIS], the Native American Heritage Commission [NAHC], and Native American groups and individuals) to minimize potential impacts to cultural resources that may occur as a result of a proposed plan. GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 11 E. Growth Management Ordinance (Chapter 21.90 of the Zoning Ordinance), Local Facilities Management Plans The Trails Master Plan is consistent with the city’s Growth Management Program in that it does not conflict with public facilities relationships, especially the relationship to the city’s planned major circulation network; and is consistent with the purpose and intent of the Growth Management Program, which is to provide a balanced community with adequate commercial, industrial, recreational and open space areas to support the residential areas of the city. V. ENVIRONMENTAL REVIEW The Trails Master Plan has been reviewed pursuant to the California Environmental Quality Act (CEQA). Staff has analyzed the plan and concluded that for some trail segments, potentially significant impacts to biological and cultural resources were identified, but will be mitigated to a level of less than significant by the implementation of the mitigation measures listed in the Mitigation Monitoring and Reporting Program (MMRP). A Mitigated Negative Declaration (MND) has been prepared by the City Planner. The Notice of Intent (NOI) to adopt a Mitigated Negative Declaration was published in the newspaper April 6, 2017, and sent to the State Clearinghouse (SCH#2017041006) for a 30-day public review April 3, 2017 – May 2, 2017. Furthermore, the appropriate level of environmental review will be completed when each trail segment is proposed to be developed. During the public review period staff received 25 comment letters on the draft IS/MND. Sections of the draft IS/MND were revised based upon the comments received (attached to the IS/MND Resolution No 7279. However, no new information has been presented in the Final IS/MND that would require recirculation of the draft IS/MND pursuant to CEQA Guidelines Section 15073.5(c). Specifically, no new significant environmental impacts would result from the new information in the Final IS/MND. The proposed trail segments added to the IS/MND (1D, 2C, 6A, 12I, and 12J) would result in potentially significant biological and/or cultural resources impacts; however, these impacts are similar to impacts for other trail segments and would be covered under the draft IS/MND mitigation measures. Mitigation measures BIO-1 and CUL-1 have been revised to apply them to the added trail segments. In addition, mitigation measure BIO-7 has been refined based on comments received during public review to clarify how potential impacts would be reduced. With this new information, these mitigation measures are not considerably different from those analyzed in the draft IS/MND, and these mitigation measures would reduce the potentially significant impacts to less than significant. Other revisions to the Final IS/MND are new information to clarify, amplify, or to make insignificant modifications to the draft IS/MND. Finally, the draft IS/MND included adequate information for a meaningful public review and comment. The Final IS/MND has not been changed in such a way that deprives the public of a meaningful opportunity to comment upon a substantial adverse environmental effect of the Trails Master Plan or a feasible way to mitigate or avoid a substantial environmental effect. ATTACHMENTS: 1. Planning Commission Resolution No. 7279 1A. Final IS/MND, MMRP and Memorandum to the Final IS/MND and Trails Master Plan 1B. Comment and Response to Comment Letters 2. Planning Commission Resolution No. 7280 2A. Strikeout and Underline of the draft General Plan Amendment GPA 2017-0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN July 17, 2019 Page 12 3. City of Carlsbad Trails Master Plan (Because of the volume of material, supporting information is not provided as part of the printed staff report and instead were previously distributed, are provided at the city’s Faraday Center (Planning Division), Parks and Recreation Administration offices, and Office of the City Clerk, and are available on the city’s website at http://www.carlsbadca.gov/services/depts/parks/open/trails/environmental.asp). 4. Public Comments ATTACHMENT 4 March 15, 2019 TO: All Carlsbad Planning Commission Members FROM: Village H Trail Users REGARDING: Pending 2019 Trails Master Plan (TMP) Review and Approval Dear Commissioners, Page I Soon, most likely in April of 2019, you will be asked to review and approve the latest version of the Carlsbad Trails Master Plan (TMP). We, the hundreds of Northeast Carlsbad citizens who use the Historic Village H Trail daily, and have done so for over 30 years, ask that you insist on a simple, yet vital, change to the TMP when it comes before you. Insist that the proposed 5B Trial Segment (see Exhibit 1, Page 2 of this letter) be removed from this version of the TMP. On February 8, 2019 the Carlsbad City Council voted unanimously to require a public outreach program concerning the futw-e plan and uses for the Historic Village H Trail. Accepting proposed Trail Segment 5B of the TMP will have the effect of declaring an "official use" of the Village H Trail prior to that public outreach program even beginning. That would be highly prejudicial to the program, create afait accompli and be unwarranted in terms of actual City needs. As noted in the the Implementation Plan of the TMP (Exhibit 2, Page 3), Trail Segment 5B is not scheduled for implementation until 2025. Additionally, a careful reading of the legend swrnunding Figme 4.6 on Page 4-13 of the TMP (online here) will show a fully operational connector trail segment, serving the same functional pw-pose as the proposed 5B segment, already exists using City sidewalks along Carlsbad Village Drive and Tamarack Avenue. Therefore, there is no compelling reason, or immediate requirement, that the 5B Trail Segment be included in the TMP at this time. Fwther, there has been a IO year effort by citizens in Northeast Carlsbad to get recognition by the City of the diverse, successful, customary, 30+ years, uses of the Village H Trail, including off-leash dog walking. Designating all, or any part, of the Village H Trail a regular City Trail would immediately put citizen-users into conflict with City Trail Rules and Regulations, subjecting them to possible citations and fines. With the City reaching out to those same citizens for public input on the uses of the trail, does it make any sense to impose unwanted restrictions, citations, and fines on them at the same time? Of comse, it does not. It would be counter productive and offensive. The Historic Village H Trail is an important recreational and cultural feature of Northeast Carlsbad. The City is required to keep it available to the public by a legal settlement. It serves many social functions in addition to its recreational uses. It serves a very diverse user community from children to the elderly. It is a vehicle for old-timers and newcomers in the Northeast neighborhoods to meet and interact in a friendly, welcoming environment. It has been so for multiple generations. Those ofus who cherish it and use it daily are totally dedicated to preserving it as is for futw·e generation's enjoyment. Accordingly we created a su1morting w ebsite (see Exhibit 3, Page 4 of this letter), a Facebook page (see Exhibit 4, Page 5) of this letter) and an online petition (Exhibit 5, Page 6) of this letter) to the City Council signed by over 700 people. We respectfully ask that you not unintentionally short circuit ow· many years effmt to establish the accepted uses of the Village H Trail and request removal of the SB Co1111ector Trail Segment from the pending Trails Master Plan prior to approving it and sending it on to the City Council for their approval. Thanking you in advance, and on behalf of the hundreds of Village H Trail Users, I am; Lonnie Smith 2636 Sausalito Avenue Carlsbad, CA 920 I 0 villageh,trail.users@gmail,com ' I I I • Page 2 Figure 4.6: Trail Subarea 5 Map Exhibit 1 -Proposed SB Trail segment in 2019 Trails Master Plan When submitted to the Planning Commission, the route of the SB trail may change slightly from what is shown above. However, that will not reduce the fundamental conflict between historic uses of the Village H Trail and the SB Segment implemented as a regular City Trail. Every configmation of the SB Segment presented so far overlaps the original Village H Trail. Any overlap at all creates a conflict. c;ifs:gment SB: =) Village H South (Carlsbad Village Drive to Tamarack Avenue) Pmled OemfotiOn v.nace H South TraU l.s a ,eoeatfonal tra11 up to a.foot wide closlnc the klop con• necttnc Calav-etil Hills Community Park, Hope Elemooti ry and ,~Ktentfa! neigh- borhoods of V1iage H.lmprovenient cost inciudes decomposed granite surface, trai1 edaio& and b.1.3lc tro1i1-head amenlUes, .such•~ trail 10 illld trail recul;i.tion si1:ns, doc: natlan and traYl reteptlcle. Cmt of fence shall be added if re.quired.. TI-ail specific emironmentat review shall be p;art of ltail dl!si_gn and development. Environmental rf!View, .aceocy permltm.e, and mill&atfon I.I not intludf'd In the eitimited prc)jttl COlL E>Um:ated Prolect Cow $60,000 -Cost will double if proJecl is contracted out.. irut.ud of beil'\I built by voluntee11. O.apl~ 5• Trail Development lmplt.mentation Pliain Page 3 C) Exhibit 2 -Proposed Implementation Date/Plan for the 5B Trail Segment This is a snapshot of page 5-13 from the 2019 Trails Master Plan. Note that the planned implementation date is 2025, that is 6 years from now. Immediate implementation of the segment is not a planned, so there is no harm done by leaving it out of the TMP now. The results of the City Council mandated public outreach (not yet started) may change the location or even the need for the 5B trail segment. ~ ➔ C O © Not secure I runrunrun.dog * l~b:-d N'om Flrclcx @ Amazon.com: Ontinc ,., Run Run Run.dog Promoting off-leash opportunities for man's best friend HOMt NCWS IIELP SAVE THETRJIIL IMPORTANT DATES RtfERENCES GALLERY CONTACT Home NORTHEAST CARLSBAD: WHERE WILL YOU GO WHEN THIS IS Losn The City of Carlsbad's current plan Is to remove & replace our ANNOUNCEMENTS 01/15/2019 The City of Carlsbad now owns VIiiage H South. Read our News Section for the latest Information. SIGN THE ONLINE PETITION! Exhibit 3 -Screenshot of the Village H Trail Users website. Page4 This website was created by, and is run by, citizens in Northeast Carlsbad. It is part of their 10-year effort to preserve the historic trail and it traditional uses for the hundreds of Northeast Carlsbad Citizens who love it. The user community for the historic trail is very diverse. It supports mixed uses and all age groups from children on bicycles up to senior citizens getting their daily exercise and social interaction. The Village H Trail is an important recreational and cultw-al resow-ce for Northeast Carlsbad. 11 Calaveta Village H OfH~s.h l'fcll 5 X + f-➔ C O i hltps://1•,ww.fac•book.com/CalaveraGrov,,OffleashSupport•rs/ Calavera Village H Off-Leash Trail Supporters @CalaveroGroveOlfLoash Supporters Homo Events J Recommendations and Reviews * 0. Search for posts on this Page See more of Calavera Village H Off-Leash Trall Supporters on Facebook Login or Create New Account Exhibit 4-Screenshot of Village H Trail Users Facebook Page Page 5 Village H Trail users find friendship and fellowship on the trail. They maintain an active Facebook page and stay in close communication with each other. There is also a text messaging group and an e-mail list of over 125 people. These reflect the social value of the trail to its users. Have you ever heard of another trail in town with such a devoted user community? It is unique in all of Carlsbad. It could be lost to bw-eaucratic arrogance or indifference, with something like it never to appear again in town. Page 6 I! PeUUon · Oty Council of carlsbad C X + ~ ➔ C O i https://www.change.org/p/city-council-of-carlsba... * @) · Paused ,-t~ m Apps A Getting Started Imported From Firefox @ Amazon.com: Online ... other bookmarks change.erg Protect Historic Uses of Village H (The Grove) Trail 706 supporters Petition details v Protect Historic Uses of Village H (The Grove) Trail Lonnie Smith started this petition to City Council of Carlsbad California -City Council of · Carlsbad ... 11 Share on Facebook n Send a Facebook Exhibit 5 -Village H Trail Users Online Petition to Carlsbad City Council I Note that over 700 people had signed it at the time this screenshot was taken. There may well me more signatures as you are reading this. We got 13 7 signatmes in the first 24 homs it was up. We had over 500 signatures after I 0 days. We have over 700 signatures now. Preservation of the Village H Trail and its historic uses is an important and emotional issue for citizens in Northeast Carlsbad. From:Diane Nygaard To:Planning Cc:Pam Drew; Kasia Trojanowska Subject:Comments on Trails Master Plan Date:Tuesday, July 09, 2019 11:22:31 PM Attachments:img170.pdf Chair and Planning Commissioners We are very pleased that the city is updating the Trails Master Plan(TMP). This update will result in both an increase in the number of trails, and improved trails management. Trails will be much better integrated with planned circulation, helping improve transportation options, reducing greenhouse gasses, and supporting the healthy outdoor lifestyle that is so valued by residents. While there are manyimprovements to the current trails system, there remain a few issues that need further work in order to address potential adverse impacts to natural resources from increasing levels of public use. A primary concern is the need for better management of mountain bike use. This sport has greatly expanded in the last few years, The adopted HMP from 2004 did not anticipate the volume and nature of this use. While it includes basic provisions to protect the natural resources, it does not provide the resources to make sure allprovisions are fully enforced. This is a particular problem in the state of California ecological reserves. It is a high priority concern to make sure there is enforcement that protects the natural resources, and that there is also adequate provisions for places for this sport that do not cause damage to those resources. The following are our specific recommendation to help address these potential conflicts between increasing public use and protecting our priceless natural resources: -Link 7 C on the south shore of Agua Hedionda Lagoon This would be a major enhancement of the current trail system- with connections tothe Crossings and Veteran’s Park. There is high community support to provide access to this area with lagoon views. It would add miles of interconnected trails for mountain bikers- reducing pressure on sensitive habitat areas. Last month the City Council directed that this would be a high priority project this next year. We fullysupport this new trail.   - Eliminate two proposed trails through state Ecological Reserves (for now)   The city is proposing trails through 2 state reserves where the State DFW does not allow them. (CHER and BVCER). It does not make sense for the city to propose trails that are in violation of state law. Showing them as potential future trails only increases the potential for illegal use- and damage to these sensitive areas. We would like these 2 segments to be removed from maps. Instead include a statement about the city’s desire for such future trails, and that if they are authorized by the state, would propose them.   - Eliminate Village H connection to Tamarack   There are several other places where a trail connection uses existing sidewalks and this is one such place where that makes sense. Putting it through habitat is not necessary, compromises the wildlife corridor- and is not supported by the nearby residents and those who want an off-leash dog area. Requiring this connection will make it more difficult to plan for future uses of this area. Please revise 5B to eliminate only this connection. The details of any changed uses on this site will be addressed through a public input process that started on June 28th.   - Add potential for restrictions on nighttime use.   Currently the guidelines have no language that specifically allows restrictions on hours of use. Such restrictions are in place for other preserves within the city (and elsewhere)- but there are no such restrictions on the city owned trails within preserves. Parks and beaches are restricted at night- but not trails. Night time use can be very disruptive to wildlife and can be a safety issue. This, like all of the other potential use restrictions, would depend upon site specific conditions. This is a common restriction for preserves and is particularly important on trails that cutthrough hard line preserve lands. (Many of the nature trails). Please add language that allows for potential restrictions on night time use, where conditions warrant this.   - Add further clarification about conditions that warrant temporary trail closures   Section 7.4 describes conditions for temporary trail closures for inclement weather and emergencies. Some changes were made to this section. But it still does not include key provisions from the HMP that are designed to protect sensitive resources. Additional language is needed to indicate there are a range of circumstances that might warrant temporary closures. This could be things like sensitive species nesting,safety considerations like erosion damage, construction work on the trail, restoration of nearby habitat, surface pools that need time to dry out, etc. - Provide adequate resources for enforcement Last year the city made the Ranger program that had been started as a pilot project, part of the regular on-going budget. This remains only 2 positions that cover all of the open space and parks. The HMP envisioned 5 full-time positions just for the openspace areas. New challenges like impacts from homelessness impact the entire city. and increase the workload for these staff. Trails volunteers help provide some additional eyes and ears. DFW provides some warden enforcement on their reserves. Additional effort is needed to coordinate all of these activities and ensure that there is consistency, sufficient staff, and clear rules that work to protect public safety and the natural resources. - Continue restrictions on off-leash dogs Current city ordinances prohibit dogs off leash on city trails. That long standing policy is not changed with this Trails Master Plan. We support that long standing policy, especially for trails within hardline preserve areas. Dogs potentially have significant adverse impacts on natural resources- see att. discussion on this issue from a recent Sierra Club publication. Recently the City initiated a planning process to consider off- leash dogs as an allowed use of Village H. We do not think that decision should impact the overall policy about dogs off-leash on trails. Village H can be consideredas a special circumstance without setting a precedent that would change this existing provision. Thank you for considering our input. Diane Nygaard On behalf of Preserve Calavera How Do Dogs Affect the Environment? Mr. Green digs around for the answer ILLUSTRATION BY LITTLE FRIENDS OF PRINTMAICTNG BY BOB SCHILDGEN ({SIERRA/AUTHORS/BOB-SCHILDGEN). / NOV 6 2018 Q: Has any individual or institution investigated the potentially disruptive impacts of the United States' close to 90 million registered dogs on our environment and wildlife? -Wolf in Tahoe City, California A: Surprisingly little research has been done on canine environmental impacts, maybe because of a certain bias toward "man's best friend." However, a recent study indicates that dogs and cats combined are responsible for around 1.5 percent of U.S. emissions of methane and nitrous oxide. Their diet alone accounts for up to 30 percent of the environmental impact from all animal production, in terms of the use of land, water, fossil fuel, phosphates, and biocides. Several researchers contend that dogs rank third in their ability to disturb other species, outdone only by cats and rodents. (One study revealed that even dogs piously walked on a leash scared away 40 percent of the birds as they went through an area.) Dogs have driven 11 species into extinction, and they threaten another 188, according to a 2017 study published in Biological Conservation. The good news for dogs and cats is that there are now fewer being euthanized at U.S. shelters, down from 2.6 million in 2011 to 1.5 million annually, according to the American Society for the Prevention of Cruelty to Animals. This big reduction has been made possible by an increase in the number of aqopted animals and stray animals returned to their owners. We still need better control of pet dogs and stronger efforts to contain feral populations. However, given our longtime affection for the critters-one estimate puts our relationship with dogs back an astounding 30,000 years-it's understandable that we are a bit reluctant to take action. From:Scanlan, Katelin To:Planning Cc:Craig, Eric D; Pam Drew Subject:SDG&E Comments - Planning Commission Agenda Item #3 for 7/17 Meeting Date:Wednesday, July 17, 2019 1:33:50 PM Dear Planning Commission Secretary, Please submit the SDG&E comments below re Planning Commission agenda item #3 (GPA 2017- 0001 (PUB17Y-0008) – CITY OF CARLSBAD TRAILS MASTER PLAN) to the public record of tonight’s meeting. San Diego Gas & Electric continues to support Carlsbad’s Community Vision Core Values and values our partnership with the City. SDG&E has been working with City Staff on the proposed Trails Master Plan, and would like to update the Planning Commission on our current position and involvement in this important effort. The Trails Master Plan currently proposes seven sections of existing SDG&E maintenance roads as new trail segments, all within existing transmission corridors. Determining whether a proposed encroachment on SDG&E-owned or easement property can be allowed is a very fact specific analysis based on the use being proposed and existing land rights. Various SDG&E teams including land, environmental, transmission engineering and other operational groups that service Carlsbad are evaluating the proposed Trails Master Plan to determine feasibility with our daily operations and access needs. We are committed to continuing our partnership and coordination with City Staff on this important initiative, and will work to address any concerns that may arise from those detailed evaluations. Additionally, this proposed use of SDG&E owned land OR easements must be approved by our regulator, the California Public Utilities Commission (CPUC) through the 851 Application Process. This process can be lengthy and is known to take anywhere from 6 to 24 months. SDG&E and the City will need to work through the steps listed above prior to any of our maintenance roads being approved for alternate use. These processes will ensure SDG&E can continue providing safe and reliable service to the community Carlsbad. Regards, Katie Scanlan Public Affairs Manager San Diego Gas & Electric 8330 Century Park Ct, CP31D, San Diego, CA 92123 O: 619-676-9087 | C: 858-668-6766 Community & Economic Development Planning Division 1635 Faraday Avenue  Carlsbad, CA 92008  760-602-4600  760-602-8560 fax ERRATA SHEET FOR AGENDA ITEM #3 Memorandum July 17, 2019 To: Planning Commission From: Pam Drew, Associate Planner Via Don Neu, City Planner Re: Errata Sheet for Agenda Item #3 – GPA 2017-0001 (PUB17Y-0018) – CITY OF CARLSBAD TRAILS MASTER PLAN Staff is recommending that the Planning Commission include the following bolded revision to attachment 2A for Planning Commission Resolution No. 7280: General Plan Amendment, Section 4.6 – Trails and Greenway System, second paragraph. In 2019 the City Council approved the City of Carlsbad Trails Master Plan.