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~ ...
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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.
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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
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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
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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.
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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.
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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.
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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.
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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.
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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.
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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.
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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."
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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
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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