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HomeMy WebLinkAbout2019-12-10; City Council; ; Village and Barrio Master Plan amendment package~ CITY COUNCIL ~ Staff Report Meeting Date: To: From: Staff Contact: Subject: Dec. 10, 2019 Mayor and City Council Scott Chadwick, City Manager Scott Donnell, Senior Planner Scott.donnell@carlsbadca.gov or 760-602-4618 Village and Barrio Master Plan amendment package Recommended Action CA Review A That the City Council (1) direct staff on the scope and timing of the amendment package items described in the Aug. 20, 2019, City Council action on the Village and Barrio Master Plan and, based on that discussion, (2) direct staff to return to City Council for confirmation of the project scope, work plan and timeline, and resource strategy, as necessary. Executive Summary At its Aug. 20, 2019, meeting, the City Council took two actions regarding the Village and Barrio Master Plan: 1. Introduced an Ordinance acknowledging receipt of the California Coastal Commission's Resolution of Certification including suggested modifications for LCPA 2014-01 and approving the associated suggested modifications to the Village and Barrio Master Plan (Master Plan) and Local Coastal Program. 2. Directed staff to bring back for City Council consideration in two months a Work Plan that includes a timeline to address an amendment package for the Master Plan. In response to the first City Council action, the Coastal Commission confirmed City Council's approval of the suggested modifications on Oct. 16, 2019. Regarding the City Council's second action, the Aug. 20, 2019, City Council meeting minutes identify the "amendment package" as consisting of the following eight items: 1. Decision-making authority for the entire Master Plan area to City Council 2. Permitted uses vital to a live, work, play community 3. Parking In-Lieu fees to be directed to a specific area for parking and the potential for public/private partnerships for a specific zoned parking structure 4. Traffic impact analysis and mitigation fees specific to the Master Plan area and roadway conditions outside of the Coastal Zone 5. Objective architectural; historical and design standards within the Master Plan area 6. Solutions and options to avoid Housing In-Lieu fee payments in the Master Plan area 7. A specific inclusionary policy for the Master Plan area 8. Allow for general conversation regarding additional components of the Master Plan Dec. 10, 2019 Item #16 Page 1 of 20 Due to concentrated effort on the Housing Element update, staff could not return to City Council with a Work Plan to address the amendment package in the requested two months. Further, initial efforts to develop the requested information have revealed that first having a clearer picture of the City Council's expectations for the amendment package will be helpful and will better inform the drafting of the Work Plan; including a timeline. To facilitate that discussion, each of the eight items in the amendment package is presented below. For each item, staff has provided background information on present policies and standards, along with potential amendment options, recommendations and, where possible, potential processing times. For some items, a comment section is also provided. Discussion 1. Decision-making authority for the entire Master Plan area to City Council Background: At the Aug. 20, 2019, meeting, the City Council discussed the review authority in the Village and the Barrio. Public comments at the meeting recommended the City Council approve projects in the Barrio. In response, the following is a simplified description of the Village and Barrio and the permitting thresholds for each. For full details, please refer to Master Plan chapters 2 and 6 at www.carlsbadca.gov/villagebarrio. Furthermore, whether a project is in the "Barrio" or the "Village" is based on Master Plan districts. Attached Exhibit 1 shows the Master Plan area and the different land use districts that make up each of the two neighborhoods. As per the figure: Neighborhood Master Plan District Barrio : Barrio Perimeter (BP) and Barrio Center .{BC) __ ·-········-·· -· .................. ·-· ·---·- Village I Village Center (VC}, Village General {VG}, 1 Freeway Commercial {FC}, Hospitality --------i .JHQ?.~1. ~r,_~ ~.~n..e .Iyler !Y1ixed-Use (PT) Notes: 1. The Village districts cover the same area as districts 1 through 9 of the Village Master Plan and Design Manual, which the Master Plan replaced. 2. The VBO District is excluded from this discussion as it applies only to public and quasi-public properties su_ch as._ t~e.ra!lr<Jad cor~icl_or: '!_'!_d ~i!Y..P'!!~ {n b.oth the Barrio and Vi/lag~ ... 2 Dec. 10, 2019 Item #16 Page 2 of 20 • Barrio decision-making authority: The Barrio is primarily residential; the Master Plan permits only limited commercial (e.g., a bed and breakfast inn or child daycare center). o City planner approval is required for two to four residential units (one single-family home requires only a building permit). o Planning Commission approval is required for more than four residential units. o City Council approval is required only if a Planning Commission action is appealed or the project requires a legislative change, such as an amendment to the Master Plan . • · Village decision-making authority: The Village permits a full mix of residential and commercial uses. o City planner approval is required for two to four residential units (one single-family home requires only a building permit). o City planner approval also is required for a building up to 5,000 square feet. o Planning Commission recommendation and City Council approval are required for a project with more than four residential units or 5,000 square feet. Comment: Before the City Council approved the Master Plan in July 2018, Planning Commission approval was only required for Barrio residential projects with more than four units, similar to the rest of Carlsbad. In the Village, City Council approval was required for projects with a building permit valuation of at least $150,000; this low threshold, a provision of the now-superseded Village Master Plan and Design Manual, meant many Village projects required review and recommendation by Planning Commission and approval by City Council. A staff objective in preparing the Master Plan was to streamline and standardize requirements. As proposed, staff recommended a change in the Village decision-making authority for major projects so that only Planning Commission approval would be necessary. This would reduce processing times and make the Village review process similar to that of the Barrio and the rest of Carlsbad. However, when the City Council approved the Master Plan in July 2018, it voted to retain City Councilapproval of major Village projects. Recent state housing legislation, such as the 2017 and 2019 amendments to the Housing Accountability Act, are largely intended to remove local government barriers to housing production by eliminating procedures and requirements that are subjective, cause uncertainty, and that slow housing production. An increase in processing times for Barrio or Village projects could be counter to .this objective, particularly considering the Barrio's residential zoning and importance in helping the city meet its General Plan Housing Element goals. Staff will need to closely evaluate the issue of approval authority and consistency with state housing laws. 3 Dec. 10, 2019 Item #16 Page 3 of 20 Potential amendment options: • If the concern is to ensure equivalent review throughout the Master Plan area, deci~ion-making authority in the Village could be revised to be like that in the Barrio and most of Carlsbad. This would mean the Planning Commission and not the City Council would review and approve projects in the Village, subject to City Council appeal. • In lieu qf revising the decision-making authority, the city could also consider changes to the appeal fee or appeal process. Additional input on this topic will likely occur as part of the general conversation with the community on additional Master Plan components; please see item eight below for more information. Staff recommendation: Direct staff accordingly. Potential processing time: Approximately three to six months, if decision-making changes are processed separately or as part of a package of minor changes. However, Coastal Commission approval would also be required before the changes were effective in the Coastal Zone, adding approximately six months. Processing time would increase if bundled as part of more significant Master Plan changes proposed, such as to architectural standards or other revisions the community may identify. 2. Permitted uses vital to a live, work, play community Background: Vital uses specifically mentioned included a post office, pharmacy, grocery store, hardware store, and farmers market. Except for the farmers' market, the Master Plan already permits these uses under the broad categories of "retail" and "public/quasi-public uses." A farmers' market is presently a conditionally permitted use in the VC District, the district in which the current market is held. Potential amendment options: The permitted uses table (Table 2-1 in the Master Plan) could be amended to specifically list desired uses. Other possibilities include revising the description of a district to note its appropriateness for a desired use or amending the Master Plan's goals and policies to encourage or attract a particular use. An amendment also could propose a farmers' market as a conditionally permitted use in an additional district or districts. Staff recommendation : As the Master Plan already permits the vital uses specifically identified, no changes are recommended. Listing uses individually does not mean they will happen, and it would be highly unusual for a city to dictate or require a very limited 4 Dec. 10, 2019 Item #16 Page 4 of 20 and specific use(s). In addition, consider a farmers' market as a conditionally permitted use in another district or districts only as part of other amendments to the Master Plan or as part of a privately-initiated amendment. Potential processing time: Approximately three to six months, if decision-making changes are processed separately or as part of a package of minor changes. However, Coastal Commission approval would also be required before the changes were effective in the Coastal Zone, adding approximately six months. Processing time would increase if bundled as part of more significant Master Plan changes proposed, such as to architectural standards or other revisions the community may identify. 3. Parking In-Lieu fees to be directed to a specific area for parking and the potential for public/private partnerships for a specific zoned parking structure Background: Through its goals, policies and standards, the Master Plan supports increased, efficient use of the existing parking system and resources as well as mobility alternatives to the private automobile. • Parking In-Lieu fee: Master Plan Table 2-4 describes the purpose of the Parking In-Lieu Fee Program: The Parking In-Lieu Fee Program enables project applicants, upon city approval, to pay a fee in lieu of providing on-site parking. Fee payment is an option only in certain districts east of the railroad tracks. Fees collected by the city help develop and maintain shared public parking, resulting in better utilization and relatively lower costs in comparison to the cost of exclusive on-site private parking. A non-residential development may satisfy its parking needs entirely through payment of the Parking In-Lieu fee. Fee payment, though, is an option only for Village properties east of the railroad tracks {VC, VG, HOSP, FC and PT districts; see Exhibit 2). Fees collected may be spent to develop or maintain public parking anywhere in the Village, including west of the railroad tracks in the Coastal Zone. Fee payment is not an option for developers of property in the Barrio (BP and BC districts). Fees may also not be used to develop or maintain public parking in the Barrio. Master Plan Policy 1.5.2.B.6 promotes a broader application of Parking In-Lieu fees than just development and maintenance of shared public parking: Expand use of Parking In-Lieu fees to include improvements and strategies that reduce parking demand. Ensure any parking-related revenues (including parking fees if implemented in the future) are reinvested back into the areas 5 Dec. 10, 2019 Item #16 Page 5 of 20 from which they are generated to improve parking supply, manage demand, and promote alternative ways to get around. • Public/private partnerships: The Master Plan encourages public/private partnerships via two policies: o Policy 1.5.2.B.4: Encourage shared and leased parking arrangements among multiple users of private or non-city owned lots to maximize efficient use of existing off-street parking. o Policy 1.5.2.B.5: Lease parking spaces from private entities and NCTD for public use. Shared and leased parking, whether between private entities or public and private entities, is also discussed in Master Plan Section 4.5.2, Managing Parking and Increasing Mobility, and presented as an available parking option to non- residential uses in Table 2-4. • Parking structure: Section 4.5.2 incorporates key recommendations and strategies from the Parking Management Plan for the Village, Barrio and adjacent beach area, accepted by City Council in Sept. 2017. The objective of these key components is "to address the deman~ imbalance and maximize use of available spaces ... prior to construction of a new parking garage" as the following two Master Plan policies demonstrate: o Policy 1.5.2.B.2: Increase on-street parking through a Parking Re-Striping and Curb Lane Management Program, which balances competing curb lane uses (e .g., parking, ride share, bicycle lanes). o Policy 1.5.2.B.3: Improve on-street parking availability through proactive enforcement of time limits and other parking regu lations. The Master Plan conditionally permits and has design guidelines for parking structures to recogn ize their potential, especially by private entities. A parking structure is not an identified capital improvement in Master Plan Chapter 5 (Implementation), but programs to manage the existing parking system and resources are. Comment: As the Master Plan first targets the better use of the existing parking system, an amendment that favors construction of a parking structure, for example, would represent a shift in Master Plan policy and Parking Management Plan recommended strategies. Revisions to the Parking In Lieu Fee Program to benefit a specific area rather than the whole Village would also be a significant change . Potential amendment options: • The Parking In-Lieu Fee Program could be revised to specifically direct funds to a particularly purpose and/or area of the Village. 6 Dec. 10, 2019 Item #16 Page 6 of 20 • The amount of the Parking In-Lieu fee could also be reviewed in comparison with current construction costs and community preferences or a yearly cost increase index or CPI could be added. • Master Plan policies and standards could be revised to emphasize, incentivize or support a certain parking improvement or shared parking arrangement. Staff recommendation: Provide further direction on the scope of the amendments. Requested are specifics and the desired outcomes regarding the two components that make up this item -"Parking In-Lieu fees to be directed to a specific area for parking" and "the potential for public/private partnerships for a specific zoned parking structure." Potential processing time: Further definition is needed to develop a timeline. Amendments may require significant effort, community outreach, and consultant support through technical studies. A proposal to increase the Parking In-Lieu fee, for example, would require preparation of a fee study to establish the nexus and rough proportionality of the fee to the impact of a proposed project. Early coordination with the California Coastal Commission may also be appropriate. Besides its approval authority of any policy or standard changes affecting the Coastal Zone, the agency would likely take an interest in changes to parking standards and policies. 4. Traffic impact analysis and mitigation fees specific to the Master Plan area and roadway conditions outside of the Coastal Zone Background: • Traffic impact analysis in the Village and Barrio: As described in the General Plan Mobility Element, all streets in Carlsbad (except Interstate 5) are intended to safely move all modes of travel, whether by bus, vehicle, bike, or foot. For Village and Barrio streets, an emphasis is placed on enhancing mobility for pedestrians and bicyclists, and, near the train station on efficiently moving vehicles and buses to/from transit centers. This contrasts with the purpose of other streets such as Palomar Airport Road, where the efficient moving of vehicles and buses only is stressed. Emphasizing· one mode of travel over another is based on the city's "livable streets" strategy. As indicated in the Mobility Element: Livable streets recognize each street within the city is unique given its geographic setting, adjacent land 1,.1ses, and the desired use of the facility. As such, this element identifies a street typology appropriate for the uniqueness of the street and surrounding land uses and identifies which modes of travel (pedestrian, bicycle, vehicles, etc.) should be accommodated on that street. 7 Dec. 10, 2019 Item #16 Page 7 of 20 The Mobility Element further notes "the city's approach to provide livable streets recognizes that optimum service levels cannot be provided for all travel modes on all streets within the city." Consistent with the Mobility Element, the Growth Management Program circulation performance standard requires the following: Implement a comprehensive livable streets network that serves all users of the system -vehicles, pedestrians, bicycles and public transit. Maintain LOS Dor better for all modes that are subject to this multi- modal level of service (MM LOS) standard, as identified in Table 3-1 of the General Plan Mobility Element, excluding LOS exempt intersections and streets approved by the City Council. Levels of service (LOS) range from grades "A" to "F". LOS A represents a high service standard for a travel mode. Conversely~ LOS F reflects a poor service standard. For pedestrian facilities, this might mean a lack of sidewalk. As noted, the city's LOS grade objective is "D" for all modes of travel as identified in both the General Plan and Growth Management Program. As its name implies, multi-modal level of service, or MM LOS, establishes standards for all mobility types. Projects in the Master Plan area are evaluated against MM LOS standards meant to maintain and enhance travel by bike, foot and transit versus by car. The intent of these standards, however, is not to degrade service levels for any travel mode. The potential impacts of commercial and residential projects on the Village and Barrio's pedestrian, bike, arid (close to the train station) transit facilities are evaluated in transportation impact analysis reports required by city engineering guidelines. Such an analysis considers the quality of the pedestrian system, friendliness of the bicycle infrastructure, and amenities and safety of transit facilities. It typically includes review of facilities along the project's street block · and determines a LOS grade based on that review. In addition, projects meeting specific traffic thresholds may be required to consider traffic impacts to signalized and unsignalized intersections as well. Because of the qualitative nature of the MM LOS methodology, a project impact is significant if an existing pedestrian, bicycle or transit facility is determined to not meet the LOS D standard regardless of the forecasted number of project trips expected to use the facility. An impact occurs and is deemed significant for many reasons, including if a gap is identified in or directly adjacent to the study area related to pedestrian, bicycle or transit service to the project site or if the project causes a standard facility to become substandard (e.g., removal of an existing bike lane or blocking pedestrian access). Mitigation of impacts is discussed below. 8 Dec. 10, 2019 Item #16 Page 8 of 20 • Mitigation: When significant impacts occur, potential mitigation measures could include construction or a fair share contribution toward the financing of feasible capital improvement projects related to pedestrian, bicycle, and transit facilities. Where applicable, a project could contribute towards local or citywide transit capital improvements, or participate in TDM (transportation demand management) measures that support transit operations. While not mitigation, all projects, including changes of occupancy, are subject to payment of a traffic impact fee. This fee varies among uses and is typically higher for uses that generate more traffic. The fee is not Village and Barrio specific and funds circulation improvements citywide. • Roadway conditions outside the Coastal Zone: Recently approved Coastal Commission changes to the Master Plan included the addition of new Policy 1.5.2.A.11 that identifies Carlsbad Boulevard and Carlsbad Village Drive as "major coastal access streets." The policy applies only to the portions of these two streets located within the Coastal Zone. It states improvements to these streets "that significantly impact coastal access shall be avoided." While this policy intends to improve mobility among all users, it specifically discourages projects that may negatively impact vehicle access. Accordingly, the policy states projects that "reduce vehicle capacity resulting in or worsening an existing or future vehicular level of service (LOS) E or below at one or more intersections or segments (with or without proposed development), requires a quantitative analysis and City Council approval." The required analysis includes summer travel time surveys. A full text of the policy is provided as Exhibit 3. Similar to this Coastal policy but applicable anywhere in Carlsbad is Mobility Element Policy 3-P.15: Evaluate methods and transportation facility improvements to promote biking, walking, safer street crossings, and attractive streetscapes. The City Council shall have the sole discretion to approve any such road diet or vehicle traffic calming improvements that would reduce vehicle capacity to or below a LOS D; this also applies to streets where the vehicle is not subject to the MM LOS standard as specified in Table 3-1. Comment: To summarize the above background, the transportation impact analyses required of Village and Barrio projects primarily evaluate impacts to pedestrian, bicycle, and transit levels of service versus vehicular level of service. However, a General Plan policy requires City Council approval of street improvements that reduces vehicle capacity below the acceptable level of service (LOS D), even on streets where the vehfcle is not the evaluated mode. 9 Dec. 10, 2019 Item #16 Page 9 of 20 In Section 5.4.1, the Master Plan recognizes that due to the multiple property owners, numerous small lots, and the frequent reuse of existing buildings (versus new construction) in the Village, it is more likely the city will take the lead on implementing street or other public improvements. This is particularly true for large-scale projects such as the Grand Avenue Promenade or reconfiguration of State Street. Funding of public improvements may come from the city, federal or state programs, grants, or possibly through public-private partnerships. Examples of funding sources include the General Fund, the Gas Tax and Transit Funds, and funds set aside for utility undergrounding. Assessment or Infrastructure Financing Districts are other examples of funding sources. More funding source information is provided in Master Plan Chapter 5 . and Appendix C. Chapter 5 also contains an Implementation Action Matrix (Table 5-1) that provides an initial effort to phase Master Plan public improvements. A first phase action is to develop a financing strategy for Village and Barrio programs and capital projects. Matrix projects, programs, and phasing can all be refined depending on funding availability, feasibility, cost, community preferences and other factors. Potential amendment options: • Make no changes, which means improvements would occur as properties develop and capital projects are approved and built. • Refine the Implementation Action Matrix if appropriate; improvements that improve streets and mobility for all users could be prioritized. • Based on the matrix, develop a financing strategy for Village and Barrio programs and capital projects. Staff recommendation: Provide further direction on the scope of the amendments. Requested are specifics and the desired outcomes regarding the two components that make up this item -"traffic impact analysis and mitigation fees specific to the Master Plan area" and "roadway conditions outside of the Coastal Zone." Potential processing time: Further definition is needed to develop a timeline. Refinement of the matrix and development of a financing strategy would warrant community involvement and consultant assistance. 5. Objective architectural, historical and design standards within the Master Plan area Background: • Architectural and design standards: Master Plan Chapter 2 contains development standards and design guidelines. These provisions are both objective and subjective and apply to residential and non-residential projects. 10 Dec. 10, 2019 Item #16 Page 10 of 20 As provided by the state Housing Accountability Act (HAA), if a housing project complies with all objective standards, it may only be denied or its density reduced if a city can find the project would have an adverse impact on public health and safety. Other HAA provisions target simplifying and shortening the review and approval of residential development. On Aug. 20, 2019, the City Council authorized staff to apply for SB 2 Planning Grants Program Funds from the State of California, a noncompetitive grant process. The state approved the city's application on Nov. 7, 2019, and the city will use some of the funds to develop objective design standards for multi-family housing projects both city-wide and in the Village and Barrio. • Historical standards: Master Plan Goal 1.5.1.E is to "recognize and support the historical roots of the Village and Barrio." Implementing policies are: o Develop an implementation program to encourage the voluntary rehabilitation and preservation of qualified historic resources. o Support a program to identify and protect heritage trees. o Comply with the Carlsbad Tribal, Cultural and Paleontological Resources Guidelines. Master Plan Chapter 5 contains an implementation action matrix (Table 5-1). The matrix identifies development of a financing strategy for all Village and Barrio programs and capital projects as a first phase action. Two historic resource programs identified in the matrix are "formalize historical information markers and plaques" and "establish a Mills Act Tax Incentive Program." These two programs are components of an overall Historic Resources Implementation Program envisioned by the first policy listed above. As with other Master Plan programs related to historic resources, they are also consistent with relevant policies in the General Plan Arts, History, Culture and Education Element. The Element, through Policy 7-P.1, calls for preparation of "an updated inventory of historic resources in Carlsbad, with recommendations for specific properties and districts to be designated in national, state, and local registries, if determined appropriate and with agreement of the property owners." The city's Cultural Resources Survey, which identifies many potential Village and Barrio historic resources, was prepared in 1990. Regarding heritage trees, in September 2019 the City Council approved an update to the citywide Community Forest Management Plan. The approved Community Forest Management Plan includes revised Carlsbad Heritage Tree Reports that identify heritage trees and provide requirements for their protection (protection is advisory only for privately owned and any non-city owned public heritage trees). The Phase I Heritage Tree report encompasses the Village and part of the Barrio. 11 Dec. 10, 2019 Item #16 Page 11 of 20 The City Council accepted the Carlsbad Tribal, Cultural and Paleontological Resources Guidelines in 2017, replacing the city's 1990 Cultural Resources Guidelines. The Carlsbad Tribal, Cultural and Paleontological Resources Guidelines follow state and other legal frameworks, and include procedures and protocols for tribal, archaeological, historical and paleontological resources and potential impacts to these resources. They identify the Village and Barrio as having areas with high architectural sensitivity. Potential amendment options: • Architectural and design standards: Develop objective design standards for multi-family housing projects as approved under SB 2 grant funding. • Expand development of objective standards to apply to residential and non- residential projects, which could assist Village revitalization. • Historic standards: None as further direction on the scope is needed; see the staff recommendation below. Staff recommendation: • Architectural and design standards: Develop objective design standards for only residential projects as part of SB 2 identified activities; work on the standards is estimated to begin mid-2020 and end late 2021. • Historical standards: Provide staff additional direction on the specifics and desired outcome. This will help inform the financing strategy for the Village and Barrio programs and capital projects, including development of a Historic Resources Implementation Program. • Seek community input in the development of each standard. Potential processing time: • For objective design standards and as recommended by staff, city efforts would conclude in late 2021; required review by the California Coastal Commission would add approximately six months. • For historical standards, further definition is needed to develop a timeline. Update of the city's 1990 Cultural Resources Survey (as the General Plan recommends), if contemplated, would require a significant time and resource commitment along with community input and Historic Preservation Commission participation. 6. Solutions and options to avoid Housing In-Lieu fee payments in the Master Plan area Please see discussion under the following item. 7. A specific inclusionary policy for the Master Plan area Background: Since they are related, staff combined the discussion on this item and item six. The General Plan Housing Element Program 3.1 describes the city's inclusionary requirement and the Housing In-Lieu Fee. Part of that description follows. 12 Dec. 10, 2019 Item #16 Page 12 of 20 The city will continue to implement its lnclusionary Housing Ordinance, which requires a minimum of 15% of all ownership and qualifying rental residential projects of seven or more units be restricted and affordable to lower-income households. This program [the lnclusionary Housing Ordinance] requires an agreement between all residential developers subject to this inclusionary requirement and .the city which stipulates: • The number of required lower-income inclusionary units • The designated sites for the location of the units • A phasing schedule for production ofthe units • The term of affordability for the units For all ownership and qualifying rental projects of fewer than seven units, payment of a fee in lieu of inclusionary units is permitted. The fee is based on a detailed study that calculated the difference in cost to produce a market-rate rental unit versus a lower-income affordable unit. As of 2016, the in-lieu fee per market-rate dwelling unit was $4,515. The fee amount may be modified by the City Council from time-to- time and is collected at the time of building permit issuance for the market-rate units. The city will continue to utilize inclusionary in-lieu fees collected to assist in the development of affordable units. Zoning Ordinance Chapter 21.85 is the lnclusionary Housing Ordinance and contains the requirements for construction of inclusionary units and payment of the Housing In-Lieu fee. The Master Plan does not contain inclusionary requirements and instead defers to Chapter 21.85. In addition, the Housing In-Lieu fee amount of $4,515 has not changed since 1996. The fee is not tied to a yearly cost increase index and therefore does not adjust automatically. Potential amendment options: Options include review of the Housing In-Lieu fee amount and threshold for construction of affordable units. As an addition or alternative to revising the lnclusionary Housing Ordinance, standards that incentivize smaller unit sizes, for example, could be considered. Amendments also could be specific to the Master Plan or as part of a city-wide discussion on the city's inclusionary policy. However, further direction on the scope of the amendments is needed before proceeding with any changes; see the staff recommendation below. Staff recommendation: • Provide staff additional direction on the specifics and desired outcome regarding amendment package items six and seven -"solutions and options to avoid Housing In-Lieu fee payments in the Master Plan area" and "a specific inclusionary policy for the Master Plan area." 13 Dec. 10, 2019 Item #16 Page 13 of 20 • Consider any changes to the city-wide inclusionary policy and Housing In-Lieu fee holistically as part of the Housing Element update beginning early next year. This topic will generate community and stakeholder interest, and the housing element update process is readily able to facilitate public discussion. Potential processing time: The Housing Element update process will begin in 2020 and conclude in early 2021. The updated Housing Element must be adopted by Apr. 15, 2021. After adoption, implementation of the updated Housing Element's Programs will begin. Staff will .process amendments as the programs direct. Changes to the Housing In-Lieu fee may require preparation of a fee study. Processing amendments could take one to two years. 8. Allow for general conversation regarding additional components of the Master Plan Background: Exhibit 2 provides a chronology of the plan's five-year development from 2014 to 2019. Community notification and participation were extensive. Based on public, staff and decision-maker comments and direction, the city has produced five iterations of the master plan: • November 2015 -first draft release • April 2016 -second draft release • January 2018 -third draft release • August 2018 -City Council approved document • October 2019 -Coastal Commission approved document The community has participated in the Master Plan's development over the past five years and as recently as this year. Furthermore, the Master Plan itself has yet to be thoroughly implemented, given its recent approvals (City Council in 2018 and California Coastal Commission in 2019) and effectiveness in the Coastal Zone since only Oct. 16, 2019. Potential general conversation options: There are a range of options to publicize and encourage a general community conversation on the Master Plan, all of which the city used during the Master Plan's development: • Public meetings to gather community input, including events specifically-tailored to Spanish-speaking residents • Online input opportunities • Mailed and emailed meeting notices • City website and sodal media posts Staff recommendation: A full "reopening" of the Master Plan with extensive public outreach and input opportunities is not necessary. Therefore, to allow for a general 14 Dec. 10, 2019 Item #16 Page 14 of 20 conversation and additional comment on the Master Plan, staff recommends a measured outreach and participation plan: • A Planning Commission Public Hearing at the City Council Chamber to receive commissioner and public input on potential revisions to the Master Plan • Targeted outreach to Spanish-speaking residents • A City Council Public Hearing on comments received and confirmation on changes to process • Public notification of all review and input opportunities via the city's website, news releases, emails, and mailings. People who provided written or verbal comments during 2018 or 2019 Public Hearings on the Master Plan, for example, would receive notices via mail or email. Additionally, materials would be in English and/or Spanish, as appropriate. Potential processing time: Five to seven months, based on staff's recommendation. Fiscal Analysis As requested, more definition of the project scope is necessary before staff can develop a cost estimate. This estimate may change upon public input and City Council confirmation of the changes to process as the staff recommendation notes for item eight above. Funds for consultant assistance may or will be necessary to respond to various items of the amendment package, such as helping prepare objective design standards, draft a Housing In- Lieu fee nexus study, or conduct the necessary environmental review. The city's success in receiving SB 2 grant funding will help offset expenses. In addition, project scope and timing may impact staffing resources and progress on other projects. Upon confirmation of the scope, staff will return to the City Council with cost estimates and a resourcing strategy as part of the Work Plan and project schedule. Next Steps Upon receipt of City Council direction, staff will return to City Council for confirmation of the project scope, work plan and timeline, and resource strategy, as necessary. Staff estimates it can return to City Council within three to four months. Environmental Evaluation (CEQA) Pursuant to Public Resources Code section 21065, this action does not constitute a "project" within the meaning of CEQA in that it has no potential to cause either a direct physical change in the environment, or a reasonably foreseeable indirect physical change in the environment, and therefore does not require environmental review. Revisions to the Master Plan would be subject to CEQA. The level of environmental review necessary will be determined as the project scope is defined. 15 Dec. 10, 2019 Item #16 Page 15 of 20 Public Notification This item was noticed in accordance with the Ralph M. Brown Act and was available for public viewing and review at least 72 hours prior to the scheduled meeting date. City staff also provided public notification via updates to the Village and Barrio Master Plan portion of the city's website (www.carlsbadca.gov/villagebarrio) and emails to several hundred individuals requesting email updates on the Master Plan. Exhibits 1. Village and Barrio Master Plan Area District Map (Master Plan Figure 2-1). 2. Village and Barrio Master Plan Chronology (Master Plan Appendix D). 3. Master Plan Policy 1.5.2.A.11 regarding Carlsbad Boulevard and Carlsbad Village Drive. 16 Dec. 10, 2019 Item #16 Page 16 of 20 Exhibit 2 CHRONOLOGY APPENDIX D Village and Barrio Master Plan Chronology 2011 In March, City Council discusses one of its priorities to partner with the local property owners, businesses and/or other stakeholders in the Village Area to develop a program, policies, financing mechanisms and/or other initiatives to spur local investment and foot traffic on a self-sustaining basis for the Village Area 2013 March: City Council receives report identifying a "new Village Master Plan" as a way to sustain the Village over the long term June: City Council adopts "quick fix" changes to the existing Village Master Plan and Design Manual to stimulate activity in the Village; these changes signal the more significant work contemplated as part of an overhaul of the existing Village Master Plan and Design Manual September and October: Staff meets with two small groups of Barrio stakeholders to discuss the concept of expanding Village master planning efforts to include the Barrio; the concept was received favorably October: Staff solicits consultant proposals to assist in preparation of the Village and Barrio Master Plan, a document that would replace the Village Master Plan and Design Manual and encompass the Barrio 2014 March: Council awards contract to Dover, Kohl & Partners (consultant) to help prepare Village and Barrio Master Plan June: Consultant visits and studies Master Plan area over two days, meeting with many city staff, residents, merchants, developers and other stakeholders Summer: Staff initiates Master Plan outreach to the public and city committees and commissions September: Consultant and staff hold a two-week public "charrette" at various Barrio and Village locations to receive community input and start the foundation for the Master Plan 2015 Throughout the year, staff makes presentations on the master plan to various community and city groups, including Barrio Strong and the Beach Preservation Committee as well as the Planning Commission and City Council November: City releases first draft of Village and Barrio Master Plan for 60-day public review December: Consultant and staff hold three-day mini charrette at various locations in the Village and Barrio MASTER PLAN D-1 Dec. 10, 2019 Item #16 Page 18 of 20 Mia De Marzo Subject: Attachments: From: Council Internet Email FW: hearing item #16 VB-MP2019mods.pdf Sent: Tuesday, December 10, 2019 1:22 PM To: City Clerk <Clerk@carlsbadca.gov> Subject: FW: hearing item #16 From: Robert Wilkinson Sent: Tuesday, December 10, 2019 11:30 AM To: Council Internet Email <CityCouncil@carlsbadca.gov> Subject: hearing item #16 Please distribute to all council as input for tonight's hearing Respectfully, Robert Wilkinson Wilkinson Design Group Land Planning + Landscape Architecture Carlsbad Ca, 92018-4237 1 All Recei.ve -Agenda Item # l \p For the Information of th;- CITY COUNCIL Date \"l-j 10 CA '() cc ~ CM _Jqcoo --1_ DCM (3) 1_ IL ,,?. l1i) -,1 .f i·, DEC 10, 2019 CITY COUNCIL MTG ITEM # 16 -VILLAGE/BARRIO MP AMENDMENT PACKAGE #3 PARKING, THE POTENTIAL FOR PUBLIC/PRIVATE PARTNERSHIPS FOR A SPECIFIC ZONED PARKING STRUCTURE . Many of us do not believe that some of the prescribed actions the Master Plan's Parking Study well prove effective in providing the best and efficient solution to this important ingredient in our downtown. Curbside management is a worthy element in planning and managing parking. However, we believe, given all of the competing elements, it will not yield enough new parking to play a strong enough role in producing significant amounts of additional parking. Also the studies recommendation to lease private lands for municipal parking meeting the needs of the in lieu . program (which we support) is short sided when after a few years these leases run out and the private lands go on to generate higher uses. We request that the Council ask staff to .give them a schedule of task and time line on a major parking structure. Lets make it a public/private partnership tied to the development of adjacent uses. Place it in an area that already has some public parking. Ask staff to take you through all the steps that will be needed and the time it will take. Then we request that you reflect on if we follow the Parking Study and in some 5 to 10 years down the road we find that no in fact they have not solved the need for adequate parking continuing to handcuff a robust Village core. We then make the decision to build a concentrated facility needing the additional time noted in this exercise to make it happen, that's not effective town planning. #5 OBJECTIVE ARCHITECTURAL, HISTORICAL AND DESIGN STANDARDS The recommendations made to address this issue are too weak and misguide. It is important to get the best architecture throughout the area covered by the Master Plan. However it is our opinion that building architecture in the core districts are the most important to the downtown's recognizable character. For the residential areas lets take a significant step toward community based residential architecture that is sensitive to this area's heritage. That is to say no (more) contemporary (modern) style buildings south of CVD or Oak in South Village "Our Historic Barrio" (my term). Also lets try to remember all the steps taken in the making of the Master Plan, lets go back to the input meeting with the community when the consultant took a pole of what architectural styles the community supports, contemporary came out last, and yet look around at the new buildings going up "in Vogue" The Village has functioned as the areas center of gravity to over 100 years. It had its first real bloom in the 1920s but unfortunately that did not yield too many buildings of significant architectural style or prominence. Still it is our opinion that this longevity should play a significant role in the areas redevelopment. If not what we will wind up with is a downtown that will look like most all other areas developed during the same time period. It will have diluted its heritage and longevity to today's current "in vogue" styles. ADDITIONAL ITEMS THAT NEED TO BE IN THE MASTER PLAN A COMPRESSIVE STREET TREE PROGRAM One of the draft editions of the master plan made the statement more than once to "make great streets". Of course this statement came from the consultant working on the document at the time. I will have to check if the statement is still in the final approved plan. Whether in or out implementation of the MP is not living up to that stated objective. Our city requires street trees in most if not all new development around town but seems to miss this element in our downtown neighborhood where street trees should be taken as important. All we need to do is to look around with an objective view to see the many missteps taken in the past where a comprehensive view of what is needed did not happen. Currently there are four new projects that illustrate that we are continuing to not get it right with this important element in " Making Great Streets". If needed to get this task added to the MP I will request additional time at one of the up coming hearings to present these four examples of not getting street trees right, two newly built developments, one under construction and one newly approved by your Planning Commission. ADVOCATE -MANAGER FOR OUR (DOWN)TOWN-CENTER Redevelopment of the core districts require a new program of to implement the Master Plan and guide it through the next twenty years with enhanced day to day advocacy, coordination and management. An entity stronger than any other we have tried in the past . This area has been identified many · times as a "special district", "Heart of the City" and as "our downtown". Most recognize it as unique in all of Carlsbad, we are now attempting to replicate some of its most desirable attributes in other areas of our town. Carlsbad has been all about planned communities and well coordinated multi unit/use developments in town. In private hands, even with a number of different land ownerships these have been effective in bringing forward the best we can get in land use and development because they have comprehensive planning and implementing management. We recognize that taking this step runs contrary to how the Carlsbad government has traditionally functioned, in becoming more proactive rather than reactive. We make the request due to the importance of this neighborhood to all of Carlsbad as a flagship area that all -of us are proud of how it represents the full community. An area of town we want to visit it on a regular basis as a homegrown destination. Mia De Marzo From: Sent: To: Subject: Attachments: Christine Davis <chris@carlsbad-village.com > Tuesday, December 10, 2019 12:58 PM City Clerk Letter on record for Dec 10 City Council meeting CVA_City Council_Dec10_2019.pdf AU Receive -Agenda Item # l(p For the lnfo~mation of th;- CITY COUNCIL Date ~ CA ~ CC ~ CM ~00 ~ DCM (3)~ Please find attached a letter that we would like added to the record prior to tonight's City Council meeting. Thank you, CHRISTINE DAVIS I Executive Director Carlsbad Village Association p: 760.644.2121 Subscribe to our eNewsletter Sent with Mixmax 1 Carlthad Villay"e Attociation Zachary Markham Chairman Darcy Clevenger Vice Chair Joli Hatch Treasurer Fumi Matsubara Board Member Heidi Willes Board Member Sherry Alvarado Board Member Samantha Fauce Board Member Jake Stipp Board Member Tony Tata Board Member The Carlsbad Village Association (CVA) is a non- profit organization whose core purpose is to lead the continual improvement of Carlsbad Village by promoting and enhancing its business, cultural, and community vitality, making it a premier destination. 300 Carlsbad Village Dr. Suite 108A #135 Carlsbad, CA 92008 760.644.2121 www.carlsbad-village.com December 10, 2019 City of Carlsbad City Council 1200 Carlsbad Village Drive Carlsbad, CA 92008 experience the village RE: Support for Village and Barrio Master Plan amendment Mayor Matt Hall and City Council Members: I am writing on behalf of the Carlsbad Village Association (CVA) in support of amending the Village and Barrio Master plan as it relates to permitted uses vital to a live, work, play community. As the council and city staff knows, CVA has had the privilege of managing the State Street Farmers' Market every Wednesday for the past five years of its 25-year-history in the Village. !t has never been a more vital component of Carlsbad's downtown. With residential properties becoming more numerous in the Village, access to quality artisan food, as well as fresh, local produce, meat, fish, and other perishables has become key to everyday life. The weekly Farmers' Market has helped fill a void caused by not having a grocery store in the Village that can provide these types of products. That need is growing. In addition to being practical, the Farmers' Market has also become a place for community in the Village. Regulars return each week to meet with friends, shop, eat, and listen to music. In addition, many organiiations have utilized a free booth provided by CVA every week. Organizations such as the Carlsbad Community Gardens and others such as the City's Book Bike, Senior Center, Parks & Recreation, Library, Police, Fire, Composting, and other City departments have availed themselves of this free community outreach booth with great success. They have come to rely on it for community outreach. CVA has been eager to bring back its Saturday Farmers' Market for some time now, however, the current Village and Barrio Master Plan only allows for it in the Village Center. CVA has located two ideal locations for a future Saturday market both of which have garnered tremendous public support; however, one is in the Hospitality Zone and the other in the Barrio. Neither are currently allowed. That is why CVA is in support of an amendment that would allow a Farmers' Market as a conditionally permitted use in an additional district or districts. It is CVA's goal to implement a Saturday morning market to augment its weekly market to allow for greater access to more downtown and local residents, and an amendment is necessary to make this a reality. Sincerely, Christine Davis Executive Director Village and Barrio Master Plan Amendment Package Scott Donnell, Senior Planner December 10, 2019 Background August 20, 2019, City Council action •Approved Coastal Commission changes •Directed staff to return with a work plan and timeline –Address an “amendment package” 2 “Amendment Package” •Decision-making authority •Uses •Parking •Traffic •Standards •Affordable housing •Community input 3 Village and Barrio Master Plan Status •October 2019 Coastal Commission action •Master Plan now fully effective 4 Implementing City Council Direction •Further City Council direction requested •Potential changes first require: –Further study and analysis –City Council confirmation (as recommended) –Approval at public hearings 5 Implementing City Council Direction •Provide staff additional direction •To assist, the staff report provides: –Background –Amendment options –Recommendations –Processing times 6 “Amendment Package” 1.Decision-making authority 2.Permitted uses 3.Parking In-Lieu fees/parking structure 4.Traffic impact analysis, mitigation, and roads 7 “Amendment Package” 5.Objective standards 6.Housing In-Lieu fee 7.Inclusionary housing 8.General conversation 8 Recommendation •Direct staff on the scope and timing of the amendment package items •Direct staff to return for confirmation of the project scope, work plan and timeline and resource strategy, as needed 9