HomeMy WebLinkAbout2024-06-25; City Council; ; Fiscal Year 2022-23 Growth Management Program Monitoring ReportMeeting Date: June 25, 2024
To: Mayor and City Council
From: Scott Chadwick, City Manager
Staff Contact: Jennifer Jesser, Senior Planner
jennifer.jesser@carlsbadca.gov, 442-339-2637
Subject: Fiscal Year 2022-23 Growth Management Program Monitoring Report
Districts: All
Recommended Action
1.Hold a public hearing; and
2.Adopt a resolution accepting the Fiscal Year 2022-23 Growth Management Program
Monitoring Report and finding that it satisfies the city’s monitoring requirements.
Executive Summary
The city’s Growth Management Program has guided the growth of Carlsbad since the 1980s.
This report on the city’s Growth Management Program is presented to the City Council each
year in accordance with Carlsbad Municipal Code Section 21.90 - Growth Management,
subsection 130(d). The report includes the status of development activity, the adequacy of
public facilities and public facility financing.
This year’s report shows that all public facilities identified in the Fiscal Year 2022-23 Growth
Management Program Monitoring Report meet the required facility performance standards for
FY 2022-23. Regarding the Circulation performance standard, the report includes the status of
the vehicle mode of travel. The status of the pedestrian, bicycle and transit travel modes will be
reported separately.
Exhibit 1 is a resolution accepting the Fiscal Year 2022-23 Growth Management Program
Monitoring Report and finding that it satisfies the city monitoring requirements, as established
in Section 21.90.130(d). The monitoring report is included as Attachment A to Exhibit 1.
Explanation & Analysis
Background
The City Council approved an ordinance in 1986 that established a growth management
program with a requirement that new development construct and pay for the public facilities
needed to serve the development. Developers either build the improvements themselves or
pay fees to the city so the city can construct the facilities.
Carlsbad voters affirmed the general principles of Carlsbad’s Growth Management Program
when they passed Proposition E in November 1986. Proposition E also established limits, or
caps, on the number of homes in the city. However, as described in the monitoring report, state
housing laws preempt the city’s ability to require compliance with the housing caps.
June 25, 2024 Item #10 Page 1 of 44
CA Review AF
Also in 1986, the City Council approved a Citywide Facilities and Improvements Plan that
included performance standards for the following eleven public facilities:
These performance standards are applied citywide, by city quadrant, by local facility
management zone or by project site, depending on the facility. New development must comply
with the public facility performance standards.
FY 2022-23 Growth Management Program Monitoring Report (Exhibit 1, Attachment A)
The report includes:
•An analysis of the public facility performance standards, including the current status of
each facility and the projected status for when the community is built out (i.e., fully
developed). This analysis shows:
o All public facilities identified in the report met the required performance standards
during fiscal year 2022-23. The report also identifies that when the city is built out,
additional facilities will be needed to meet the standard for libraries, drainage, open
space, sewer collection and water distribution.
o The status of the circulation performance standard shows the vehicle mode of travel
meets the performance standard, except where streets have been exempted from
the standard. The status of the pedestrian, bicycle and transit travel modes will be
reported separately.
•A summary of development activity during the reporting period:
o Building permits were issued for 276 new dwelling units (194 primary dwelling units
and 82 accessory dwelling units).
o Building permits were issued for 290,988 square feet of new non-residential space.
•An updated resident population and existing dwelling unit inventory.
o The total existing dwelling units in Carlsbad, as of June 30, 2023, is 47,629 and the
existing population estimate is 117,107.
•An analysis of the Proposition E residential dwelling unit caps.
o As described in the report, state housing laws preempt the city’s ability to require
compliance with the Proposition E dwelling unit caps. The report analyzes the
Proposition E dwelling unit caps for reference purposes only and shows that the
existing and planned unbuilt dwellings during fiscal year 2022-23 remained below
the dwelling unit caps.
June 25, 2024 Item #10 Page 2 of 44
Carlsbad Tomorrow Growth Management Citizens Committee
To address state housing laws and evaluate other issues affecting Carlsbad’s growth, the City
Council established a goal in fiscal year 2021-2022 to “engage the community through a citizens
committee to create a new plan to manage growth in Carlsbad in a way that maintains an
excellent quality of life.” The City Council approved the formation of the Carlsbad Tomorrow:
Growth Management Citizens Committee on March 8, 2022.
The committee met from March 2022-April 2023 to review and identify key elements of a new
plan to manage growth in a way that maintains excellent quality of life and ensures compliance
with state laws. The committee’s recommendations are provided in a report titled “Carlsbad
Tomorrow: Growth Management Citizens Committee Final Report April 2023.” The report was
presented to the City Council on July 18, 2023, at which time the City Council directed staff to
return in 2024, three months after the adoption of the General Plan’s Housing Element
rezoning program, with a work plan for next steps to implement the committee’s
recommendations. The Housing Element, the part of the General Plan that covers housing, was
adopted on Jan. 30, 2024. A City Council memorandum (Exhibit 2) updated the City Council on
the next steps to update the program, and a report on the subject will be presented to the City
Council before its August recess.
Changes to the Growth Management Program to implement the committee’s
recommendations are awaiting City Council approval, so the Fiscal Year 2022-23 Growth
Management Program Monitoring Report provides information on the city’s progress in
implementing the current Growth Management Program.1
Fiscal Analysis
There is no fiscal impact associated with this action.
Next Steps
The Fiscal Year 2022-23 Growth Management Program Monitoring Report will be kept on file
and posted on the city’s website.
Environmental Evaluation
This action does not require environmental review because it does not constitute a project
within the meaning of the California Environmental Quality Act under California Public
Resources Code Section 21065 in that it has no potential to cause either a direct physical
change or a reasonably foreseeable indirect physical change in the environment.
Exhibits
1.City Council resolution
2.City Council memorandum, dated April 18, 2024 (on file in the Office of the City Clerk)
1 More information about the committee’s work and a link to the committee’s report can be found at
carlsbadca.gov/city-hall/meetings-agendas/boards-commissions/growth-management-committee
June 25, 2024 Item #10 Page 3 of 44
RESOLUTION NO. 2024-164
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD,
CALIFORNIA, ACCEPTING THE FISCAL YEAR 2022-23 GROWTH
MANAGEMENT PROGRAM MONITORING REPORT AND FINDING THAT IT
SATISFIES THE CITY'S MONITORING REQUIREMENTS
WHEREAS, in 1986, the Carlsbad City Council adopted the Growth Management Program to
ensure that adequate public facilities are provided concurrent with growth; and
WHEREAS the Growth Management Program is implemented through Carlsbad Municipal Code
Chapter 21.90 and the Citywide Facilities and Improvements Plan; and
WHEREAS Carlsbad Municipal Code Section 21.90.130(d) requires the City Planner to provide
to the City Council an annual Growth Management Program monitoring report that includes
information on development activity, public facilities and improvements, and public facility financing;
and
WHEREAS the Fiscal Year 2022-23 Growth Management Program Monitoring Report
(Attachment A) addresses the status of all public facility performance standards, except the status of
the Circulation performance standard for the pedestrian, bicycle, and transit travel modes, which will
be reported separately.
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbad, California, as
follows:
1.That the above recitations are true and correct.
2.That the Fiscal Year 2022-23 Growth Management Program Monitoring Report satisfies
Carlsbad Municipal Code Section 21.90.130(d) by providing information to the City
Council regarding the status of the Carlsbad Growth Management Program for the fiscal
year covering July 1, 2022 to June 30, 2023, except for the status of the Circulation
performance standard for the pedestrian, bicycle and transit travel modes, which will
be reported separately.
3.That the Fiscal Year 2022-23 Growth Management Program Monitoring Report
(Attachment A) is accepted, and the City Planner shall file the report and post it to the
city website.
June 25, 2024 Item #10#10 Page 4 of 44
Exhibit 1
PASSED, APPROVED AND ADOPTED at a Regular Meeting of the City Council of the City of
Carlsbad on the 25th day of June, 2024, by the following vote, to wit:
AYES:
NAYS:
ABSTAIN:
ABSENT:
BLACKBURN, BHAT-PATEL, ACOSTA, BURKHOLDER, LUNA.
NONE.
NONE.
NONE.
KEITH BLACKBURN, Mayor u� t 1ri zn:,,b--
�HERRY FREISINGER, City Clerk
(SEAL)
June 25, 2024 Item #10#10 Page 5 of 44
CITY OF CARLSBAD
Fiscal Year 2022-23
Growth Management Program Monitoring Report
July 1, 2022 through June 30, 2023
Carlsbad City Council
Mayor Keith Blackburn
Mayor Pro Tem Priya Bhat-Patel, District 3
Council Member Melanie Burkholder, District 1
Council Member Carolyn Luna, District 2
Council Member Teresa Acosta, District 4
February 2024
Report prepared in cooperation with the following City of Carlsbad district and departments:
Carlsbad Municipal Water District
Community Development
Community Services
Fire
Library & Cultural Arts
Parks & Recreation
Public Works
June 25, 2024 Item #10 Page 6 of 44
Attachment A
Introduction
This Growth Management Program Monitoring report for fiscal year (FY) 2022-23 (July 1, 2022 – June 30,
2023), is provided in accordance with Carlsbad Municipal Code Section 21.90.130(d), which requires the
preparation of an annual monitoring report on the Growth Management Program.
GROWTH MANAGEMENT PROGRAM OVERVIEW
The principle behind the Growth Management Program is to ensure that new development and growth
does not outpace the performance standards established for public facilities such as circulation facilities,
libraries, parks, open space, and facilities to provide water and sewer services. The City of Carlsbad's
Growth Management Program was created in 1986 and is comprised of:
• The Growth Management Ordinance (Carlsbad Municipal Code Chapter 21.90);
• The Citywide Facilities and Improvements Plan; and
• Proposition E, passed by voters in November 1986, established a cap on the number of residential
dwelling units in the city. The dwelling unit cap is no longer enforceable due to state law (see
“Impacts of State Law”, below).
• Local Facility Management Plans for 25 local facility management plans
The Citywide Facilities and Improvements Plan specifies the performance standards for 11 public facilities,
as listed in Table 1. To ensure that the public facility performance standards could be achieved, the
Growth Management Program directed the development of financing and management plans describing
how/when the public facilities would be developed. The subsections below provide additional
information.
CARLSBAD TOMORROW: GROWTH MANAGEMENT CITIZENS COMMITTEE
The city’s Growth Management Program was created in the 1980s and is largely credited with maintaining
the city’s excellent quality of life, well-planned infrastructure, and financial health over the past 35+ years.
However, in recent years, state laws have suspended the ability of cities to establish or implement any
provision that limits housing development or population (see “Impacts of State Law”, below).
To address state housing laws and evaluate the issues affecting Carlsbad’s growth, the City Council
established a goal (fiscal year 2021-2022) to “engage the community through a citizens committee to
create a new plan to manage growth in Carlsbad in a way that maintains an excellent quality of life.” The
City Council approved the formation of the Carlsbad Tomorrow: Growth Management Citizens Committee
on March 8, 2022.
The committee met from March 2022 – April 2023 to review and identify key elements of a new plan to
manage growth in a way that maintains excellent quality of life and ensures compliance with state laws.
The committee’s recommendations are provided in a report titled “Carlsbad Tomorrow: Growth
Management Citizens Committee Final Report April 2023.” The report was presented to the City Council
on July 18, 2023, at which time the council directed staff to return in 2024 with a work plan to implement
the committee’s recommendations.
June 25, 2024 Item #10 Page 7 of 44
While changes to the Growth Management Program to implement the committee’s recommendations
are pending City Council action, this report provides information on the city’s progress in 2022-2023 in
implementing the existing Growth Management Program.
Table 1: Citywide Facilities and Improvements Plan Public Facility Performance Standards
Public
Facility
Performance
Standard
Status
on Page
City
Administrative
Facilities1
1,500 sq. ft. per 1,000 population must be scheduled for construction
within a five-year period or prior to construction of 6,250 dwelling units,
beginning at the time the need is first identified.
11
Library1
800 sq. ft. (of library space) per 1,000 population must be scheduled for
construction within a five-year period or prior to construction of 6,250
dwelling units, beginning at the time the need is first identified.
13
Wastewater
Treatment Sewer plant capacity is adequate for at least a five-year period. 14
Parks1
3.0 acres of Community Park or Special Use Area per 1,000 population
within the Park District must be scheduled for construction within a five-
year period beginning at the time the need is first identified. The five-year
period shall not commence prior to August 22, 2017.
15
Drainage Drainage facilities must be provided as required by the city concurrent
with development.
17
Circulation
Implement a comprehensive livable streets network that serves all users
of the system – vehicles, pedestrians, bicycles, and public transit.
Maintain LOS D or better for all modes that are subject to this multi-
modal level of service (MMLOS) standard, as identified in Table 3-1 of the
General Plan Mobility Element, excluding LOS exempt intersections and
streets approved by the City Council.
18
Fire No more than 1,500 dwelling units outside of a five-minute response
time.
27
Open Space2
Fifteen percent of the total land area in the Local Facility Management
Zone (LFMZ) exclusive of environmentally constrained non-developable
land must be set aside for permanent open space and must be available
concurrent with development.
28
Schools2
School capacity to meet projected enrollment within the Local Facility
Management Zone (LFMZ) as determined by the appropriate school
district must be provided prior to projected occupancy.
33
Sewer
Collection
System
Trunk-line capacity to meet demand, as determined by the appropriate
sewer districts, must be provided concurrent with development.
34
Water
Distribution
System
Line capacity to meet demand as determined by the appropriate water
district must be provided concurrent with development. A minimum of
10-day average storage capacity must be provided prior to any
development.
36
1 The performance standards for city administrative facilities, library facilities, and parks are stated in terms of population, which
is discussed in the subsection below entitled “Population.”
2 The performance standards for open space and schools are based on a “Local Facility Management Zone,” which is discussed in
the subsection below entitled “Facility and Improvement Plans.”
June 25, 2024 Item #10 Page 8 of 44
Figure 1
LOCAL FACILITY AND IMPROVEMENT PLANS
To develop a road map for how the above standards could be met, a
Citywide Facilities and Improvements Plan was created in 1986 that
detailed how compliance with the performance standards will be
achieved, how the necessary public facilities will be provided, and
what financing mechanisms will be used for the facilities. Because
planned development and growth varies throughout the city and at
different levels, Carlsbad is divided into twenty-five local facilities
management zones (Figure 1). Each Local Facility Management Zone
has an adopted Local Facilities Management Plan. Consistent with the
Growth Management Program and the Citywide Facilities and
Improvements Plan, each Local Facility Management Plan must
describe how the Local Facility Management Zone will be developed,
how the required public facilities will be provided, and how those
facilities will be funded.
FAILURE TO MEET A PERFORMANCE STANDARD
The Growth Management Ordinance, Carlsbad Municipal Code Section 21.90.080, states:
“If at any time after preparation of a local facilities management plan the performance standards
established by a plan are not met then no development permits or building permits shall be issued within
the [affected] local zone until the performance standard is met or arrangements satisfactory to the city
council guaranteeing the facilities and improvements have been made.”
As described in the following subsection, the city’s ability to stop development due to lack of compliance
with a growth management performance standard has been largely preempted by recent state law.
IMPACTS OF STATE LAW
According to the Growth Management Program, development activity cannot proceed if either the
residential growth caps or public facility performance standards are not met. However, updates to state
law and the city’s Housing Element have modified these components of the Growth Management
Program.
In 2017 the California Legislature passed SB 166, known as the No Net Loss Law, which requires local
jurisdictions to ensure that their housing element inventories can accommodate, at all times throughout
the planning period, their remaining unmet share of the regional housing need. The California
Department of Housing and Community Development (HCD) has taken the following positions with
respect to Carlsbad: that failure to meet the GMP performance standards cannot be used as a basis for
implementing a moratorium that precludes meeting Carlsbad’s share of the regional housing need, and
that the GMP residential unit caps could not prevent the city from achieving consistency with the Housing
Element inventory and SB 166. In 2019, the legislature passed SB 330, the Housing Crisis Act of 2019,
which prohibits local jurisdictions from imposing moratoriums on housing development and using
residential housing caps or other limits to regulate the number of housing units built within a jurisdiction.
As noted in the City’s May 5, 2020, staff report, Item 12,3 Senate Bill 166 of 2017 states that “Each city,
county, or city and county shall ensure that its housing element inventory… can accommodate, at all times
3 City Council May 5, 2020 Staff Report, Item 12 available at: https://carlsbadca.swagit.com/play/05052020-1021#full-agenda
June 25, 2024 Item #10 Page 9 of 44
throughout the planning period, its remaining unmet share of the regional housing need allocated
pursuant to Section 65584.” Furthermore, where housing is an allowable use, Senate Bill 330 (2019)]
prohibits a city from enacting a “development policy, standard or condition” that would have the effect
of “imposing a moratorium or similar restriction or limitation on housing development ... other than to
specifically protect against an imminent threat to the health and safety of persons residing in, or within
the immediate vicinity of, the area subject to the moratorium...”
The following state laws limit the city’s ability to stop development:
• Senate Bill 166 (2017) states that “Each city, county, or city and county shall ensure that its housing
element inventory… can accommodate, at all times throughout the planning period, its remaining
unmet share of the regional housing need allocated pursuant to Section 65584.” The California
Department of Housing and Community Development has taken the position that exceedances of
the city’s growth management standards cannot constitute a basis for implementing a moratorium
that precludes attainment of the city’s regional housing need allocation.
• Senate Bill 330 (2019) prohibits a city from enacting a “development policy, standard or condition”
that would have the effect of “imposing a moratorium or similar restriction or limitation on housing
development ... other than to specifically protect against an imminent threat to the health and safety
of persons residing in, or within the immediate vicinity of, the area subject to the moratorium...” On
April 17, 2020, the city received an opinion from the California Department of Housing and
Community Development, which states in part that a "housing moratorium adopted pursuant to the
City's [Growth Management Program] would be impermissible under Government Code section
66300 [Senate Bill 330].”
On April 17, 2020, the city received an opinion from the California Department of Housing and Community
Development regarding the city’s ability to implement a moratorium under the City's Growth
Management Plan where vehicular deficiencies exist (CMC §§ 21.90.080 and 21.90.130) in light of SB 330.
The department’s opinion concludes that "the housing moratorium adopted pursuant to the city’s GMP
would be impermissible under Government Code section 66300.” “HCD does not consider, however, that
general concerns about the health and welfare of the citizenry-including traffic conditions that cause
minor delays-present an imminent threat to health and safety.” In City Council Resolutions No. 2020-104,
No 2020-105, No 2020-106, No 2020-208, the City Council similarly concluded that “The City finds that
Gov. Code § 65863(a) (SB 166 [2017]) and Gov. Code, § 66300(b)(1)(B)(i) (SB 330 [2019]) preempt the City
from implementing a moratorium pursuant to Carlsbad Municipal Code §§ 21.90.080 and 21.90.130 and
[Growth Management Program] regulations.”
The city also reached similar conclusions with the adoption of its Housing Element in April 2021
(Resolution No. 2021-074.). That resolution states “Consistent with Updated Housing Element Program
2.2, the City Council finds that Government Code Sections 65583(a)(3) and 65863(a) (SB 166 [2017]) and
Government Code Section 66300(b)(1)(D) (SB 330 [2019]) preempt the city from implementing residential
growth management plan caps, residential quadrant limits, and residential control points. Consequently,
the City finds that it cannot and will not enforce these residential caps, quadrant limits, and control points,
including but not limited to those contained in the General Plan (including, but not limited to the Land
Use and Community Design Element Table 2-3, Section 2.6, Policy 2-P.8(a) and (b), Policy 2- P.16(d), and
Policy 2-P.57), Growth Management Plan (Proposition E); City Council Policy Statement No. 43, Carlsbad
Municipal Code Chapter 21.90 including but not limited to CMC §§ 21.90.030 (b), 21.90.045 and
21.90.185.”
June 25, 2024 Item #10 Page 10 of 44
SUMMARY STATUS OF PUBLIC FACILITY PERFORMANCE STANDARDS
As further detailed in this report and summarized in Table 2, during FY 2022-23 the city met the Growth
Management Program performance standards for the 11 public facilities.
Table 2: Public Facility Adequacy Status
Public Facility FY 2022-23 Adequacy Status
(Meets performance standard?)
Buildout Adequacy Status
(Meets performance standard?)
City Administrative
Facilities
Yes Yes
Library Yes Additional facilities to be provided
Wastewater Treatment
Capacity
Yes Yes
Parks Yes Yes
Drainage Yes Additional facilities to be provided
Circulation Yes* Additional facilities to be provided
Fire Yes Yes
Open Space Yes Additional facilities to be provided
Schools Yes Yes
Sewer Collection System Yes Additional facilities to be provided
Water Distribution System Yes Additional facilities to be provided
* The information on the status of the Circulation performance standard is provided in part by this report
(status of the vehicle travel mode). The status of the pedestrian, bicycle and transit travel modes will be
reported separately.
June 25, 2024 Item #10 Page 11 of 44
FY 2022-23 DEVELOPMENT ACTIVITY
Residential Development Activity
During FY 2022-23, building permits were issued for 276 new dwelling units (194 primary dwellings and
82 accessory dwellings). Table 6 indicates where the residential development activity occurred.
Table 3: FY 2022-23 Building Permits Issued – Dwelling Units
Quadrant Local Facility Management Zone Primary Dwellings Accessory Dwellings
Northwest
1 120 48
3 0 4
8 0 1
Total NW 120 53
Northeast 2 0 5
7 0 2
Total NE 0 7
Southwest
5 70 0
6 0 2
9 0 1
19 1 3
20 0 1
Total SW 71 7
Southeast
6 3 8
11 0 4
12 0 2
18 0 1
Total SE 3 15
Total Citywide 194 82
Figure 2 shows the recent five-year trend of building permits issued for dwelling units and shows that the
permits issued in FY 2022-23 were 26 percent less than the permits issued in FY 2018-19, 10 to 14 percent
higher than FY 2019-20 and FY 2020-21, and 144 percent higher than FY 2021-22.
Figure 2 – Five Year Trend of Building Permits Issued for Dwelling Units
375
242 251
113
276
0
50
100
150
200
250
300
350
400
2018-19 2019-20 2020-21 2021-22 2022-23
#
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June 25, 2024 Item #10 Page 12 of 44
Non-Residential Development Activity
During FY 2022-23, building permits were issued for 63,338 square feet of new commercial construction
and 227,650 square feet of new industrial construction. Table 7 provides a breakdown by quadrant and
Local Facility Management Zone, excluding the zones that had no building permit activity. Figure 3 shows
the recent five-year trend of building permits issued for non-residential construction. The amount of non-
residential square feet permitted in FY 2022-23 was 7.7% less than FY 2018-19, 21.9% less than FY 2019-
20, and 34.2% to 169.6% more than FY 2020-21 to FY 2021-22.
Table 4 – FY 2022-23 Non-Residential Development
Quadrant Local Facility
Management Zone Commercial (SF) Industrial (SF) Combined (SF)
Northwest
1 44,852 - 44,852
5 - 480
13 18,486 - 18,486
Total NW 63,338 - 97,842
Southeast 18 - 227,170 227,170
Total SE - - 227,170
Total Citywide 63,338 227,650 290,988
Figure 3 – FY 2022-23 Non-Residential Square Feet Permitted
315,194
372,455
216,834
107,935
290,988
0
50,000
100,000
150,000
200,000
250,000
300,000
350,000
400,000
2018-19 2019-20 2020-21 2021-22 2022-23
Sq
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e
F
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i
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Fiscal Year
June 25, 2024 Item #10 Page 13 of 44
Growth Management Program (Proposition E) Dwelling Unit Cap Analysis
In 1986, through Proposition E, voters limited the number of dwelling units in the city to the 54,599
dwelling units, and limited units in each quadrant, as shown in Table 3. However, as described in the
“Impacts of State Law” section above, state housing laws preempt the city’s ability to require compliance
with the Proposition E dwelling unit caps. Table 3 shows the Proposition E dwelling unit caps for reference
purposes only and shows that existing and planned unbuilt dwellings remain below the dwelling unit caps
(as of June 30, 2023).
Table 3 represents the number of existing dwellings and the number of future dwelling units (“unbuilt
planned dwellings”), as of June 30, 2023, that could be built (based on the applicable growth management
control point density) on all parcels that have a residential land use designation according to the General
Plan Land Use Map. The “total existing and unbuilt planned dwellings”, as shown in Table 3, assumes all
parcels with a residential land use designation will be developed with residential dwellings, including land
that is currently developed with non-residential uses (e.g., churches and professional care facilities).
Table 5: FY 2022-23 Residential Dwelling Status Per Quadrant
As of June 30, 2023
Northwest
Quadrant
Northeast
Quadrant
Southwest
Quadrant
Southeast
Quadrant
Citywide
Total
Proposition E Dwelling Cap4 15,370 9,042 12,859 17,328 54,599
Existing Dwellings5 12,781 7,460 10,274 16,488 47,003
Unbuilt Planned Dwellings6 2,553 1,480 1,650 534 6,217
Total Existing and Unbuilt Planned Dwellings 15,334 8,940 11,924 17,022 53,220
Units below or above dwelling cap7 36 below 102 below 935 below 306 below 1,379 below
The section below titled “Housing Element Rezone Program” identifies how the rezone program affects
the dwelling unit caps. The rezone program was approved by City Council on January 30, 2024, which is
outside the reporting period of this report and is therefore not reflected in Table 5.
4 Proposition E dwelling caps are not enforceable and are shown here for reference purposes only (see the “Impacts of State
Law” section of this report.
5 Existing dwellings exclude accessory dwelling units and commercial living units. The number of accessory dwelling units and
commercial living units (professional care facilities) are shown in Table 4 for purposes of population estimates. Table 3
compares existing dwellings to the Proposition E dwelling unit caps, and for purposes of the dwelling caps, accessory dwellings
and commercial living units are excluded. California Government Code Section 65852.2 states that accessory dwelling units
shall not be considered in the application of any local ordinance, policy or program that limits residential growth. Regarding
commercial living units (e.g., professional care facilities, hotels, and time-shares), Carlsbad Municipal Code Section 21.04.093
states that such units are not considered dwelling units due to the assistance/services provided in conjunction with the living
unit and/or the use of the living unit for temporary lodging.
6 All quadrants except the Village - includes unbuilt approved projects, as well as vacant and underdeveloped property
designated for residential use by the General Plan.
7 For reference purposes only.
June 25, 2024 Item #10 Page 14 of 44
POPULATION
Existing Population (as of June 30, 2023)
The performance standards for city administrative facilities, library facilities, and parks are stated in terms
of population. The demand for these facilities is based on each new dwelling unit built and the estimated
number of new residents it adds to the city, which is determined using the average number of persons
per dwelling unit. Utilizing data from the 2020 Federal Census (total population divided by total number
of dwelling units), the average for Carlsbad is 2.44 persons per dwelling unit.
As shown in Table 4, as of June 30, 2023, the city’s population is estimated to be 117,107, which is
calculated by multiplying 2.44 persons per dwelling unit by the number of dwelling units and accessory
dwelling units and adding population in commercial living units (professional care facilities). The
population estimates are based on the 2020 Census population estimate and the city’s dwelling unit
estimates and may vary from estimates of other agencies.
The city’s population estimate methodology has been refined and updated since the last (March 2022)
Growth Management Program Monitoring Report for FY 2021-22, as described below:
• The FY 2021-22 report utilized a persons per dwelling unit (2.404) estimate that was based on the
April 2020 Census total population (114,746) divided by the 2020 Census total dwellings (47,734).
The city maintains a database of existing dwellings, which differs from the 2020 Census dwelling
estimate. Because the city uses its dwelling database to estimate population, as shown in Table
4, a more accurate method to calculate persons per dwelling is to divide the 2020 Census total
population (114,746) by the city’s estimated total dwellings in April 2020 (46,772), which results
in 2.44 persons per dwelling.
• The FY 2021-22 report utilized data from the 2010 Census for the number of group quarters
(professional care facilities/commercial living units) in the city, as that data was not yet available
from the 2020 Census. Since the last report (March 2022) for FY 2021-22, additional data from
the 2020 Census was evaluated regarding the number of group quarters (professional care
facilities/commercial living units). The 2020 Census reports a lower population in group quarters
(professional care facilities/commercial living units) compared to the 2010 Census.
Overall, the updated population estimate methodology results in a population estimate that is 693
persons less than the FY 2021-22 report. The reduction in population is primarily due to the updated 2020
Census group quarters information.
The city’s population estimate remains higher when compared to the population estimates from the
California Department of Finance (DOF) and the San Diego Association of Governments (SANDAG); both
agencies are estimating a decline in population since the 2020 Census. The Department of Finance (DOF)
estimates that Carlsbad’s population, as of January 1, 2023, was 114,549 (316 less than the DOF January
1, 2022, estimate). SANDAG’s current population estimates are consistent with the DOF. City staff will
continue to monitor projected population estimates from the DOF and SANDAG.
The city updates its population estimate methodology after each decennial census; the next will be in
2030. The city’s method ensures a consistent methodology over a 10-year period, which provides stable
population projections for public facility planning purposes. If other agencies continue to estimate a
declining population, the city’s population estimates will remain conservatively high and will be adjusted
after the 2030 Census.
June 25, 2024 Item #10 Page 15 of 44
Table 6: Existing Population (as of June 30, 2023)
Quadrant
Existing
Dwelling
Units
Existing
Accessory
Dwelling
Units
Total
Existing
Dwelling
Units
Dwelling
Unit
Population
Population in
Professional
Care Facilities
2020 Census
Population in
Professional
Care Facilities
After 2020
Total
Population
NW 12,781 310 13,091 31,944 172 - 32,116
NE 7,460 56 7,516 18,340 179 270 18,789
SW 10,274 54 10,328 25,201 139 - 25,340
SE 16,488 206 16,694 40,735 127 - 40,826
TOTAL 47,003 626 47,629 116,220 617 270 117,107
Buildout Population (as of June 30, 2023)
Table 5 estimates the number of dwellings that will exist at buildout based on current (June 30, 2023)
General Plan residential land use designations.
Table 7: Estimated Buildout Population (as of June 30, 2023)
Quadrant Dwelling Units8 Population9
NW 15,644 39,215
NE 8,996 22,550
SW 11,978 30,026
SE 17,228 43,186
Total 53,846 134,977
The section below titled “Housing Element Rezone Program” identifies how the rezone program affects
the estimated buildout population. The rezone program was approved by City Council on January 30,
2024, which is outside the reporting period of this report; however, the information is provided in
anticipation of questions about the rezone program.
8 Includes existing accessory dwellings.
9 Includes population in group quarters (e.g., professional care facilities) – an additional 0.86% of household population.
June 25, 2024 Item #10 Page 16 of 44
HOUSING ELEMENT REZONE PROGRAM
On Jan. 30, 2024, the City Council voted to approve the rezoning of properties around Carlsbad, as shown
below. The purpose of the rezone program is to meet state housing requirements by implementing
Housing Element Program 1.1, which requires rezoning various properties to allow higher residential
densities to accommodate the city’s Regional Housing Needs Assessment obligations.
Figure 4 – Housing Sites Approved for Rezoning
June 25, 2024 Item #10 Page 17 of 44
The rezone program results in an increased number of future dwellings and population. The following
information estimates future dwellings and population with the rezoned sites and shows how the dwelling
caps are affected.
Table 8 – Estimated Buildout Dwellings and Population with Rezone Program
Quadrant Growth Management
Dwelling Caps
Estimated Buildout
Dwelling Units
Estimated Buildout
Population
Northwest 15,370 17,081 42,817
Northeast 9,042 9,600 24,065
Southwest 12,859 12,385 31,046
Southeast 17,328 17,270 43,291
Citywide 54,599 56,366 141,219
As described in the “Impacts of State Law” section above, state housing laws preempt the city’s ability to
require compliance with the Growth Management (Proposition E) dwelling unit caps. The approval of the
Housing Element Rezone Program on Jan. 30, 2024, results in an increase in future dwelling units that will
exceed the Growth Management dwelling caps in the northwest and northeast quadrants, as well as
citywide. This estimate includes consistent methodology of persons per household and vacancy rates from
the 2020 census. This methodology is updated during each 10-year census period. Current demographic
projections from the San Diego Association of Governments show the region’s population declining after
2042. This report will continue to use the best available data from the census. Environmental documents,
such as Environmental Impact Reports, will also use the best available information for consistency and
public disclosure of impacts.
Although the city is no longer able to enforce the dwelling unit caps, future development must still comply
with the Growth Management Program’s public facility performance standards, which will ensure
adequate public facilities are provided concurrent with growth.
The sections below describe the status of each public facility performance standard, as of June 30, 2023
(prior to approval of the rezone program). Analysis of how the rezone program affects the public facility
performance standards is included in Exhibit 11 of the Planning Commission Staff Report, dated October
18, 2023, for the Housing Element Implementation and Public Safety Element Update.
June 25, 2024 Item #10 Page 18 of 44
CITY ADMINISTRATIVE FACILITIES
Performance Standard
1,500 sq. ft. per 1,000 population must be scheduled for construction within a five-year period or prior
to construction of 6,250 dwelling units, beginning at the time the need is first identified.
FY 2022-23 Facility Adequacy Analysis
Based on the estimated June 30, 2023, population estimate of 117,107, the current demand for
administrative facilities is 175,661 square feet. To date, city administrative facilities exceed the
performance standard. The existing inventory of City of Carlsbad and Carlsbad Municipal Water District
buildings (leased and owned) occupied for administrative services are included in Table 8:
Table 9: Existing Administrative Facilities (as of June 30, 2023)
Facility Address Square Feet
City Hall Complex 1200 Carlsbad Village Drive 16,000
Faraday Administration Building 1635 Faraday Ave. 68,000
Fleet Service Center 2480 Impala Drive 10,540
Water District (Maintenance & Operations) 5950 El Camino Real 18,212
Parks Yard (Maintenance & Operations) 1166 Carlsbad Village Drive 4,012
Public Works Operations 405 Oak Ave. 9,950
Safety Center (Police and Fire administration) 2560 Orion Way 55,027
First Responder Safety Training Center 5750 Orion Way 15,090
Senior Center (Parks & Recreation
administration) 799 Pine Ave. 5,770
Harding Community Center (Parks & Recreation
administration) 3096 Harding St. 1,335
Total Existing Square Feet of Administrative Facilities 203,936
Square Feet Required by Performance Standard 175,661
Square Feet that Exceeds Standard 28,275
Buildout Facility Adequacy Analysis
Based on the General Plan residential land use designations in effect June 30, 2023, the projected buildout
population is 134,977, the demand for city administrative facilities will be 202,466 square feet. The
existing 203,936 square feet of administrative facilities exceeds the growth management performance
standard at buildout (estimated June 30, 2023). Analysis of how the Housing Element rezone program
(approved January 30, 2024) affects the City Administrative Facilities performance standard at buildout is
included in Exhibit 11 of the Planning Commission Staff Report, dated October 18, 2023, for the Housing
Element Implementation and Public Safety Element Update.
June 25, 2024 Item #10 Page 19 of 44
New Orion Center Project
A development proposal is underway for the Orion Center project, which will centralize the city’s
maintenance and operations functions into a single location on Orion Way. The goal for the facility is to
accommodate the existing and future needs for Public Works (Facilities and Streets Maintenance) and
Parks & Recreation (Parks Maintenance). The proposed project will make two existing city facilities
available for redevelopment: 405 Oak Street, and 1166 Carlsbad Village Drive. The Orion Center project
will provide 25,000 square feet of administrative space (among other uses), which will be a net increase
of 11,000 square feet over the two existing sites. The Planning Commission approved a Conditional Use
Permit for the project in April 2023.
New City Hall Project
On Aug. 16, 2022, the City Council received an update on a new City Hall and directed staff to pursue a
new approximately 40,000 square foot City Hall to be built on the site of the current City Hall Complex
(16,500 square feet). After the August 2022 City Council update report, city staff refined the plans for the
City Hall Complex and determined the facility will be approximately 34,000 square feet, which is an
increase of 17,500 square feet compared to the existing facility. The new facility will include
administrative facilities for existing City Hall Complex staff. Additionally, the New City Hall Project will
likely also include the planning efforts for a new Cole Library facility, see “Library Facilities” in the next
section.
June 25, 2024 Item #10 Page 20 of 44
LIBRARY FACILITIES
Performance Standard
800 sq. ft. (of library space) per 1,000 population must be scheduled for construction within a five-year
period or prior to construction of 6,250 dwelling units, beginning at the time the need is first identified.
Note: library space is used as a standard library measurement of customer use and includes collection space,
seating, meeting rooms, staff areas, technology, and other public facility needs. The performance standard
was originally developed based on surveys of other libraries of comparable size and based on related standards
(such as volumes per capita) set by the American Library Association.
FY 2022-23 Inventory and Adequacy of Facilities
The current inventory of library facilities (city-owned) is shown in Table 9:
Table 10: Existing Library Facilities (as of June 30, 2023)
Facility Square Feet
Dove Library 64,000
Cole Library 24,600
Learning Center 11,393
Total Existing Library Square Feet 99,993
Square Feet Required by Performance Standard 93,686
Square Feet that Exceed Standard 6,307
Based on the June 30, 2023, population estimate of 117,107, the growth management standard requires
93,686 square feet of public library space. The city’s current 99,993 square feet of library facilities
adequately meets the growth management standard.
Facility Adequacy at Buildout
Based on the General Plan residential land use designations in effect June 30, 2023, the projected buildout
population is 134,977, the demand for library facilities will be 107,982 square feet. The existing 99,993
square feet of library facilities will fall short of the growth management standard at buildout (estimated
June 30, 2023). Analysis of how the Housing Element rezone program (approved January 30, 2024) affects
the Library Facilities performance standard at buildout is included in Exhibit 11 of the Planning
Commission Staff Report, dated October 18, 2023, for the Housing Element Implementation and Public
Safety Element Update.
In 2015-16, the city completed major maintenance and renovation for both the Cole and Dove facilities
that addresses current Americans with Disabilities Act requirements and allows delivery of modern library
services and technology, while extending the life of the Cole Library by 10 to 15 years.
Built in 1967, the design of the Cole Library did not contemplate modern library services, such as delivery
of electronic resources, automated materials handling, and media formats. The library’s role as a
community gathering space has also evolved.
With an already maximized building footprint and infrastructure constraints, the Cole Library will not
expand further to meet these changing needs. Complete replacement and expansion of the Cole facility
is included in the Capital Improvement Program budget between the years 2023 and buildout, as part of
the new City Hall project (see “Administrative Facilities” in the preceding section). The City Hall project
will most likely inform the timing, impact and opportunities for a new Cole library facility.
June 25, 2024 Item #10 Page 21 of 44
WASTEWATER TREATMENT CAPACITY
Performance Standard
Sewer plant capacity is adequate for at least a five-year period.
FY 2022-23 Facility Adequacy Analysis
The Encina Water Pollution Control Facility currently provides adequate capacity in excess of the
performance standard. Carlsbad’s FY 2022-23 annual daily average dry weather sewer flow was 6.22
million gallons per day (MGD) representing 61% of the city’s 10.26 MGD capacity rights. The city’s annual
daily average sewage flow to the Encina Water Pollution Control Facility for the previous five years is
shown in Table 10:
Table 11: Five-Year Annual Daily Average Sewage Flow
Fiscal Year Annual daily average flow
FY 2018-19 6.03 MGD
FY 2019-20 6.31 MGD
FY 2020-21 6.31 MGD
FY 2021-22 5.72 MGD
FY 2022-23 6.22 MGD
Buildout Facility Adequacy Analysis
The Encina Water Pollution Control Facility Phase V Expansion provides adequate sewer treatment
capacity to ensure compliance with the growth management wastewater performance standard through
buildout of the Carlsbad sewer service area.
The City of Carlsbad 2019 Sewer Master Plan Update contains an analysis of annual daily average sewer
flow through buildout (2040) of the city based on the Carlsbad General Plan land use projections. The
analysis indicates that the city’s projected ultimate buildout flow is approximately 8.31 MGD. The city has
purchased capacity rights to 10.26 MGD in the Encina Water Pollution Control Facility, which ensures
adequate wastewater treatment capacity is available to accommodate an unanticipated increase in future
sewer flows.
Analysis of how the Housing Element rezone program (approved January 30, 2024) affects the Wastewater
Treatment Capacity performance standard at buildout is included in Exhibit 11 of the Planning Commission
Staff Report, dated October 18, 2023, for the Housing Element Implementation and Public Safety Element
Update.
June 25, 2024 Item #10 Page 22 of 44
PARKS
Performance Standard
3.0 acres of Community Park or Special Use Area per 1,000 population within the Park District10 must
be scheduled for construction11 within a five-year period beginning at the time the need is first
identified12. The five-year period shall not commence prior to August 22, 2017.
FY 2022-23 Facility Adequacy Analysis
As shown in Table 11, all quadrants were in compliance with the park standard during FY 2022-23.
Table 12: Existing Park Inventory and Required Park Acreage (as of June 30, 2024)
Quadrant Park acreage inventory existing Park acreage required by Standard
NW 131.7 96.3
NE 68.7 56.4
SW 93.6 76.0
SE 138.3 122.6
Total 432.4 351.3
The existing park acreage inventory in each quadrant meets the current park acreage required by the
performance standard.
Veterans Memorial Park
The existing park acreage inventory in Table 11 includes 23.425 acres allocated to each quadrant for
Veterans Memorial Park. On July 26, 2022, the City Council adopted the Veterans Memorial Park Master
Plan. The Veterans Memorial Park site has been selected, a financing plan for the construction of the park
has been approved, and the adoption of the master plan signified completion of the park design.
Therefore, the park has been “scheduled for construction.”
Veterans Memorial Park is a 93.7-acre park located approximately 350 feet east of Cannon Road and
Faraday Avenue. Because of its size, relatively centralized location, and citywide significance, the park will
help fulfill citywide park facility needs. The city’s intention for the park to be a citywide park facility, and
for the total park acreage to be allocated equally to all city quadrants, dates to the Citywide Facilities and
Improvements Plan (CFIP) approved in 1986 (See Resolution 8797, adopted September 23, 1986, Exhibit
A at pp. 33–35 [allocating 25 acres from the Macario Canyon park to each quadrant]). Additionally, the
following documents reaffirmed the acreage allocation of Veterans Memorial Park for citywide benefit:
• Community Facilities District No. 1 (CFD), established in 1991, finances public facilities of citywide
benefit, including Veterans Memorial Park.
• 2015 General Plan Open Space, Conservation and Recreation Element credits equal acreage from
Veterans Memorial Park to each quadrants future park inventory.
10 "Park District" = "quadrant". There are four park districts within the city, corresponding to the four quadrants.
11 “Scheduled for construction” means that the improvements have been designed, a site has been selected, and a financing
plan for construction of the facility has been approved (See Resolution 2017-170.) An identical definition was adopted in the
Citywide Facilities and Improvements Plan in September 1986 (pages 14 and 32).
12 The threshold for triggering the construction of a new park is as follows: Once a deficit of park acreage in a quadrant is
identified, a new park must be scheduled for construction within the time frame of five years.
June 25, 2024 Item #10 Page 23 of 44
Buildout Facility Adequacy Analysis
Based on the FY 2022-23 Capital Improvement Program list of projects, Veterans Memorial Park is
proposed to be constructed prior to buildout. The scheduling of construction of this community park
results in the projected park inventory for all city quadrants exceeding the projected required acreage at
buildout, as shown in Table 13:
Table 13: Projected Park Inventory at Buildout
Quadrant Buildout
Population
Buildout
Required Acreage
Current
Inventory
Projected
Inventory
NW 39,215 117.6 131.7 131.7
NE 22,550 67.7 68.7 68.7
SW 30,026 90.1 93.6 93.6
SE 43,186 129.6 138.3 138.3
Total 134,977 404.9 432.4 432.4
Analysis of how the Housing Element rezone program (approved January 30, 2024) affects the
Parks performance standard at buildout is included in Exhibit 11 of the Planning Commission Staff
Report, dated October 18, 2023, for the Housing Element Implementation and Public Safety
Element Update.
Additional Parks Acreage
The projected park acreage numbers in Table 13 do not include park projects listed in the CIP as “partially
funded” or “unfunded”. Should additional funding mechanisms be found, and these parks are built, the
additional park acreage would further aid in meeting/exceeding the growth management parks
performance standard.
• Partially funded – In the FY 2022-23 CIP, $614,000 has been appropriated to the Robertson Ranch
Park project (NE – 11.2 acres), which continued its status as “partially funded”. The master
planning process for this park began in FY 2022-23.
• Unfunded – Zone 5 Business Park Recreational Facility (NW – 9.3 acres) and Cannon Lake Park
(NW – 6.8 acres).
June 25, 2024 Item #10 Page 24 of 44
DRAINAGE
Performance Standard
Drainage facilities must be provided as required by the city concurrent with development.
FY 2022-23 Facility Adequacy Analysis
All areas of the city currently (as of June 30, 2023) meet the growth management drainage performance
standard because required drainage facilities have been provided concurrent with development.
Drainage facility needs are best assessed as specific development plans for individual projects are
finalized. Therefore, the drainage performance standard was written to allow the city to require
appropriate drainage facilities as development plans are finalized and approved.
The construction of drainage facilities related development projects is addressed during the review of
individual project proposals. Maintenance, repair, and replacement drainage projects are identified on an
ongoing basis and are incorporated in the Capital Improvement Program as a part of the Storm Drain
Condition Assessment Program, the Citywide Storm Drain Rehabilitation and Replacement Program, or as
individual/stand-alone projects.
Master planned drainage facilities are identified in the city’s 2008 Drainage Master Plan. The associated
Planned Local Drainage Area fee program finances the construction of these facilities. The goal of the
Drainage Master Plan is to assess the performance of existing drainage infrastructure, identify anticipated
improvements and identify a funding mechanism to ensure construction of the planned facilities. The
Drainage Master Plan is updated periodically to reflect changes in the general plan, city growth,
construction costs, drainage standards and environmental regulations. At the present, the Public Works
Branch is updating the 2008 Drainage Master Plan to ensure these larger/master planned facilities will be
adequately funded.
Buildout Facility Adequacy Analysis
As development occurs in the future, additional drainage facilities will be required consistent with the
performance standard. The 2008 Drainage Master Plan proposes the construction of new facilities to
reduce the flooding risk from potential storm events. Construction of the proposed drainage facilities will
provide the backbone system to maintain the drainage performance standard through buildout of the
city. The current update to the Drainage Master Plan will address funding availability for the construction
of needed flood control facilities. The estimated costs for these facilities and the programming of Planned
Local Drainage Area funds are included in the annual Capital Improvement Program.
Analysis of how the Housing Element rezone program (approved January 30, 2024) affects the Drainage
performance standard at buildout is included in Exhibit 11 of the Planning Commission Staff Report, dated
October 18, 2023, for the Housing Element Implementation and Public Safety Element Update.
June 25, 2024 Item #10 Page 25 of 44
CIRCULATION
The information on the status of the Circulation performance standard for the vehicle travel mode is
provided by this report. The status of the pedestrian, bicycle and transit travel modes will be reported
separately.
Performance Standard
Implement a comprehensive livable streets network that serves all users of the system – vehicles,
pedestrians, bicycles and public transit. Maintain level of service (LOS) D or better for all modes that are
subject to this multi-modal level of service (MMLOS) standard, as identified in Table 3-1 of the General
Plan Mobility Element, excluding LOS exempt intersections and streets approved by the City Council.
Background
The following Circulation information discusses the service levels for each travel mode, which are
represented as a letter “grade” ranging from LOS A to LOS F. LOS A reflects a high level of service for a
travel mode (e.g., outstanding characteristics and experience for that mode) and LOS F would reflect an
inadequate level of service for a travel mode (e.g., excessive congestion for vehicles or inadequate
facilities for bicycle, pedestrian or transit users).
The monitoring and implementation of the performance standard for the circulation system are guided
by the following:
General Plan Mobility Element Goals and Policies
Goal 3-G.1: Keep Carlsbad moving with livable streets that provide a safe, balanced, cost-effective, multi-
modal transportation system (vehicles, pedestrians, bikes, transit), accommodating the mobility needs of
all community members, including children, the elderly and the disabled.
The California Complete Streets Act (2008) requires cities in California to plan for a balanced,
multi-modal transportation system that meets the needs of all travel modes. Accomplishing this
state mandate requires a fundamental shift in how the city plans and designs the street system –
recognizing the street as a public space that serves all users of the system (elderly, children,
bicyclists, pedestrians, etc.) within the urban context of that system (e.g., account for the adjacent
land uses).
• Prior to adoption of the General Plan Mobility Element on Sept. 22, 2015, the growth
management circulation performance standard was based on the circulation needs of a single
mode of travel – the automobile.
• The General Plan Mobility Element identifies a new livable streets strategy for mobility within
the city.
• The livable streets strategy focuses on creating a ‘multi-modal’ street network that supports
the mobility needs of pedestrians, bicyclists, transit users and vehicles.
• Providing travel mode options that reduce dependence on the vehicle also supports the city’s
Climate Action Plan in achieving its goals of reducing greenhouse gas emissions within the
city.
June 25, 2024 Item #10 Page 26 of 44
Implementing Policy 3-P.3: Apply and update the city’s multi-modal level of service (MMLOS) methodology
and guidelines that reflect the core values of the Carlsbad Community Vision related to transportation and
connectivity. Utilize the MMLOS methodology to evaluate impacts of individual development projects and
amendments to the General Plan on the city’s transportation system.
Implementing Policy 3-P.4: Implement the city’s MMLOS methodology and maintain LOS D or better for
each mode of travel for which the MMLOS standard is applicable, as identified in Table 3-1 and Figure 3-
113.
General Plan Mobility Element Street Typology
The city’s approach to provide livable streets recognizes that improving the LOS for one mode of
transportation can sometimes degrade the LOS for another mode. For example, pedestrian-friendly
streets are designed to encourage pedestrian uses and typically have amenities that slow vehicle travel
speeds (e.g., short-distance pedestrian crossings that restrict vehicle mobility). The “street typology” is
defined in the General Plan Mobility Element and determines which travel modes are subject to the
MMLOS D standard, as summarized in Table 14. For example, the vehicular mode of travel is subject to
the MMLOS D standard on the following street typologies: freeways, arterial streets, arterial connector
streets and Industrial streets.
Table 14: Street Typology and MMLOS Standard
STREET TYPOLOLOGY Modes subject to the MMLOS D Standard
Vehicular Transit Pedestrian Bicycle
Freeways Yes Yes No No
Arterial Streets Yes Yes No No
Identity Streets No No Yes Yes
Village Streets No No Yes Yes
Arterial Connector Streets Yes No Yes Yes
Neighborhood Connector Streets No No Yes Yes
Coastal Streets No No Yes Yes
School Streets No No Yes Yes
Employment/Transit Connector Streets No Yes Yes Yes
Industrial Streets Yes Yes No No
Local/Neighborhood Streets No No Yes Yes
All Streets Located Within Half-Mile of a Transit Center No Yes Yes Yes
Bicycle/Pedestrian Pathways No No Yes Yes
Methods to Measure Level of Service (LOS) for Different Transportation Modes
How vehicular LOS is measured
The city monitors facilities that are subject to the vehicular LOS standard according to that street’s
typology as defined in Table 14. This section of the report summarizes the vehicular LOS methodology
used for monitoring purposes. For the fiscal year (FY) 2022-23 monitoring report all the street facilities
required to meet the vehicular LOS standard were monitored including the arterial, arterial connector,
and industrial street typologies.
The city evaluates the roadway network at the “facility” level according to Chapter 16 of the Highway
Capacity Manual. A facility is defined as one direction of travel along a length of road that has similar
travel and geometric characteristics, and it typically extends between multiple signalized intersections.
13 Table 3-1 and Figure 3-1 are found in the General Plan Mobility Element and are summarized in Table 14 of this
report.
June 25, 2024 Item #10 Page 27 of 44
Each facility has an associated capacity that is defined in the Highway Capacity Manual as “the ability of a
transportation facility or service to meet the quantity of travel demanded of it.” For Growth Management
Plan monitoring purposes, travel demand on a roadway is measured by the volume of vehicles using the
facility during the peak hours of operation. A volume threshold is established for each LOS grade according
to the Highway Capacity Manual. The vehicular LOS is determined by comparing the traffic volume against
these thresholds. For example, a LOS D is recorded when a traffic volume exceeds the LOS C threshold but
is below the LOS D threshold.
A street “facility” is comprised of smaller and contiguous “segments” that typically extend between two
adjacent signalized intersections. Per the Highway Capacity Manual, an entire facility is reported as failing
if the volume along any one of its segments exceeds its capacity, which defines LOS F. When a facility has
been monitored and found to operate at LOS D, each segment of that facility will be evaluated the
following monitoring cycle and the LOS will be reported as follows:
a. If the volume of any one segment of the facility exceeds the reported capacity for that
segment, the facility will be reported as LOS F; or
b. If none of the segment volumes exceeds its reported capacity for that segment, the facility
will be reported as LOS D (or the new level if it has changed).
As noted above, travel demand is assumed to equal the traffic volume measured during the peak hour of
operation. Vehicular LOS is determined based on one mid-block traffic count collected for each facility (or
segment) being evaluated. The data is collected while school is in session in either the spring or fall. The
morning and afternoon (a.m./p.m.) peak hours’ LOS is reported for each facility or segment. Each street
evaluated will have separate LOS results reported for the a.m. and p.m. peak hour conditions with
independent grades reported for each direction of travel. This approach to data collection is consistent
with industry standards.
How Pedestrian, Bicycle and Transit Service MMLOS is measured
The General Plan Mobility Element calls for the use of a MMLOS methodology to provide a metric for
evaluating bicycle, pedestrian and transit modes of travel. In 2015, a method for evaluating bicycle and
pedestrian LOS was first developed as part of the General Plan Environmental Impact Report (EIR); this
EIR method was applied on a broad, program level to evaluate service to pedestrian, bicycle and transit
users. When consultants applied the EIR’s method during the preparation of impact studies of proposed
development projects, limitations were discovered in terms of the study area, directional travel and
potential inconsistent interpretations of how the method should be applied.
Accordingly, in 2018 city staff began developing a more robust MMLOS calculation method for the City
Council to consider. The method is intended to calculate MMLOS for each mode and identify a broader
range of improvements that could be implemented to ensure the minimum operating standard would be
met. As noted in General Plan Mobility Element Policy 3-P.3, the purpose of the MMLOS methodology is
to provide a means for evaluating impacts of individual development projects, as well as monitoring the
LOS for individual streets to ensure that they are meeting the specified standard by street type. The
proposed MMLOS methodology for evaluating bicycle, pedestrian and transit LOS has not been approved
by City Council.
The FY 2022-23 Growth Management Program Monitoring Report is being presented to City Council with
the status of the Vehicular LOS Standard, but not the status of the other modes because the proposed
June 25, 2024 Item #10 Page 28 of 44
draft MMLOS methodology for those modes is still being vetted and has not been approved by City
Council. Staff will present the FY2022-23 draft MMLOS analysis, including the proposed draft methodology
developed by the Traffic Safety and Mobility Commission subcommittee, and the draft findings and
recommendations, to City Council as a separate item later this year. This approach will ensure that the
City Council and stakeholders can fully understand the proposed methodology. Additionally, it facilitates
a focused discussion on any potential policy adjustments needed to align with the objectives of the City’s
General Plan Vision and Mobility Element.
Exemptions to the LOS D Standard
General Plan Mobility Element Policy 3-P.9 requires the city to develop and maintain a list of street
facilities where specified modes of travel are exempt from the LOS standard (LOS-exempt street facilities),
as approved by the City Council.
Regarding vehicular LOS standards, the City Council has the authority to exempt a street facility from the
vehicular LOS standard if the street facility meets one or more of the following criteria from General Plan
Mobility Element Policy 3-P.9:
a. Acquiring the rights of way is not feasible; or
b. The proposed improvements would significantly impact the environment in an unacceptable way
and mitigation would not contribute to the nine core values of the Carlsbad Community Vision;
or
c. The proposed improvements would result in unacceptable impacts to other community values or
General Plan policies; or
d. The proposed improvements would require more than three through travel lanes in each
direction.
General Plan Mobility Element Policy 3-P.11 requires new development that adds vehicular traffic to
street facilities that are exempt from the vehicle LOS D standard to implement:
• Transportation Demand Management (TDM) strategies that reduce the reliance on single-
occupant automobiles and assist in achieving the city’s livable streets vision; and
• Transportation System Management (TSM) strategies that improve traffic signal coordination and
improve transit service.
Each of the previously exempt street facilities were monitored this cycle and evaluated against the
vehicular LOS standard. The results of this evaluation are summarized in Table 15 below. No changes have
occurred since the adoption of these resolutions that would warrant lifting exemptions for these street
facilities.
June 25, 2024 Item #10 Page 29 of 44
Table 14: Vehicle LOS Exempt Street Facilities
Street Facility From To LOS
(AM/PM)
Meets LOS
Standard?
Date of
Exemption
1. La Costa Avenue Interstate-5 El Camino Real B/C Yes
Exempted
with
adoption of
the
General
Plan
Mobility
Element on
Sept. 22,
2015
2. La Costa Avenue El Camino Real Interstate-5 C/B Yes
3. El Camino Real Palomar Airport Road Camino Vida Roble D/C Yes
4. El Camino Real Camino Vida Roble Poinsettia Lane C/C Yes
5. El Camino Real Poinsettia Lane Aviara
Parkway/Alga Road
C/C Yes
6. El Camino Real Aviara Parkway/Alga
Road
La Costa Avenue F/C No
7. El Camino Real La Costa Avenue Aviara
Parkway/Alga Road
C/C Yes
8. El Camino Real Aviara Parkway/Alga
Road
Poinsettia Lane C/C Yes
9. El Camino Real Poinsettia Lane Camino Vida Roble C/C Yes
10. El Camino Real Camino Vida Roble Palomar Airport
Road
C/C Yes
11. Palomar Airport Road Avenida Encinas Paseo del Norte F/F No
12. Palomar Airport Road Paseo del Norte Armada Drive D/C Yes
13. Palomar Airport Road Armada Drive College Blvd/Aviara
Parkway
C/C Yes
14. Palomar Airport Road College Blvd/Aviara
Parkway
Armada Drive C/C Yes
15. Palomar Airport Road Armada Drive Paseo del Norte C/D Yes
16. Palomar Airport Road Paseo del Norte Avenida Encinas F/F No
17. Palomar Airport Road El Camino Real El Fuerte Street B/C Yes
18. Palomar Airport Road El Fuerte Street Melrose Drive B/C Yes
19. Palomar Airport Road Melrose Drive El Fuerte Street C/C Yes
20. Palomar Airport Road El Fuerte Street El Camino Real C/C Yes
21. El Camino Real Oceanside city limits Marron Road F/E No
Dec. 17,
2019
22. El Camino Real Marron Road Oceanside city
limits
E/E No
23. Melrose Drive Vista city limits Palomar Airport
Road
F/E No
24. El Camino Real Cannon Road College Boulevard C/B Yes
Jun. 9,
2020
25. El Camino Real College Boulevard Cannon Road C/F No
26. Cannon Road El Camino Real College Boulevard D/E No
27. Cannon Road College Boulevard El Camino Real D/D Yes
28. El Camino Real Tamarack Avenue Cannon Road C/C Yes Nov. 3,
2020
29. College Boulevard Carlsbad Village Drive Oceanside City
Limits
C/E No
Jan. 12,
2021* 30. Cannon Road Avenida Encinas Paseo del Norte F/E No
31. Cannon Road Paseo del Norte Avenida Encinas E/F No
32. Aviara Parkway/Alga Road Manzanita Street El Camino Real F/F No July 12,
2022 33. Aviara Parkway/Alga Road El Camino Real Manzanita Street F/F No
*On January 12, 2021 City Council also exempted the remaining facility of Palomar Airport Road between Avenida Encinas to
Paseo del Norte.
June 25, 2024 Item #10 Page 30 of 44
FY 2022-23 Facility Adequacy Analysis
The following vehicular LOS and MMLOS results are based on the data reported in the City of Carlsbad
Roadway Level of Service Analysis Report (March 2024).
Vehicular LOS
The vehicular LOS grades reflect traffic data gathered in fall of 2023. The traffic data represents typical
weekday traffic conditions. Counts were collected at each midblock location for three consecutive
weekdays. For each roadway segment, the highest one-hour AM and one-hour PM volume of the three
days were determined for each direction of travel.
The LOS results for the vehicular mode are illustrated in Figure 5. All the deficient roadway facilities
identified above were previously determined by City Council to be deficient and exempt per General Plan
Mobility Policy 3-P.10.
Buildout Facility Adequacy Analysis
The 2015 General Plan EIR evaluated how buildout of the land uses planned by the General Plan will
impact the vehicle, pedestrian, bicycle and transit levels of service, and identified that additional
circulation facilities may need to be constructed to meet the GMP performance standard at buildout. The
following summary provides the results of that evaluation. Analysis of how the Housing Element rezone
program (approved January 30, 2024) affects the Circulation performance standard at buildout is included
in Exhibit 11 of the Planning Commission Staff Report, dated October 18, 2023, for the Housing Element
Implementation and Public Safety Element Update.
Vehicular Level of Service at Buildout (estimated as of June 30, 2023)
• Additional future road segments (extensions of College Boulevard and Camino Junipero) needed
to accommodate the city’s future growth were identified as part of the General Plan update. The
General Plan Mobility Element identifies these needed future road segments as “Planned City of
Carlsbad Street Capacity Improvements.”
• The General Plan also called out the need to implement the scheduled Interstate-5 North Coast
Project and Interstate-5/Interstate-78 Interchange Improvement Project that are needed to
accommodate future growth.
• The CIP funds projects that will upgrade the LOS including several roadway widenings along El
Camino Real near College Boulevard (northbound), La Costa Avenue (southbound) and Cassia
Road (northbound).
• The General Plan EIR identifies TDM and TSM as mitigation measures for roadway sections that
have been determined to be LOS-exempt.
Next Steps
City staff will present a comprehensive analysis of the Multimodal Level of Service (MMLOS) monitoring
results to both the City Council and the Traffic Safety & Mobility Commission. The presentation will
encompass detailed findings across various modes of travel, including considerations for pedestrians,
bicyclists, and transit users. Following a thorough evaluation of these results, staff may propose updates
to the City's MMLOS policies. Additionally, staff might recommend revisions to the existing methodologies
used to evaluate each mode of travel. These adjustments will aim to enhance the accuracy and
effectiveness of MMLOS assessments, ensuring they more accurately reflect the diverse needs of the city’s
transportation network.
June 25, 2024 Item #10 Page 31 of 44
Figure 5: Vehicular Level of Service (LOS) Results
June 25, 2024 Item #10 Page 32 of 44
FIRE
Performance Standard
No more than 1,500 dwelling units outside of a five-minute response time.
FY 2022-23 Facility Adequacy Analysis
As of June 30, 2023, the city’s fire facilities comply with the performance standard. There are no more
than 1,500 dwelling units outside of a five-minute response distance from any of the city’s seven fire
stations.
The intent of the performance standard, as applied to fire facilities, is to establish the distribution of
station locations, based upon response distances. At the time the performance standard was developed,
scientific fire behavior information and recognized best practices supported the position that a response
time of five minutes would result in effective fire incident intervention. The performance standard
provides no other mechanism for the installation of additional fire stations. It states that up to 1,500
dwelling units could exist outside the five-minute reach of the closest fire station for an indeterminate
length of time without violating the standard. The five-minute response distance measure was selected
exclusively as a means of geographically positioning fire stations throughout the city. Therefore, the
standard is applied as a means of measuring compliance with locating fire facilities, not the performance
of the Fire Department in meeting service responsibilities.
To determine if the standard is met for FY 2022-23, the city refers to the response time analysis conducted
for buildout of the number and location of dwellings planned by the General Plan, which is more dwellings
than currently exist. See “buildout” section below, which concludes that the existing fire stations are
adequate to meet the standard at buildout (i.e., adequate to serve more dwellings than currently exist).
Buildout Facility Adequacy Analysis
At buildout (estimated June 30, 2023), the established threshold of more than 1,500 units that exist
outside of a five-minute response distance will not be exceeded for any of the fire stations.
To determine if fire facilities comply with the Fire performance standard at buildout, the city’s Geographic
Information System Department mapped a five-minute response time from each fire station, based on
the drivetime attributes of each roadway, and identified the number of estimated dwelling units at
buildout that are outside the five-minute drivetime.
Table 16: Number of Dwellings Outside Five Minute Response Time (as of June 30, 2023)
Fire Station Number Total number of dwelling units outside of five minutes
1,3 & 4 (aggregated) 1,198
2 0
5 3
6 16
7 0
Analysis of how the Housing Element rezone program (approved January 30, 2024) affects the Fire
performance standard at buildout is included in Exhibit 11 of the Planning Commission Staff Report, dated
October 18, 2023, for the Housing Element Implementation and Public Safety Element Update.
June 25, 2024 Item #10 Page 33 of 44
OPEN SPACE
Performance Standard
Fifteen percent of the total land area in the zone [Local Facility Management Zone] exclusive of
environmentally constrained non-developable land must be set aside for permanent open space and
must be available concurrent with development.
Note: Pursuant to the Citywide Facilities and Improvements Plan, the Open Space standard is
applicable in Local Facilities Management Zones 11 – 15 and 17 – 25. The standard does not apply in
Zones 1 – 10 and 16 because these zones were either fully built out or had previously approved
master plans which would provide sufficient open space at full build out. For more information, see
the “Background Summary” below.
FY 2022-23 Facility Adequacy Analysis
As of June 30, 2023, adequate open space has been provided concurrent with new development to comply
with the performance standard. Local Facility Management Plans have been adopted for all Local Facility
Management Zones where the standard applies (Zones 11–15 and 17–25). Each Local Facility
Management Plan (LFMP) identifies how the open space standard will be met within the zone. Within the
applicable zones, approved development projects have been, and future development projects will be
required to be, consistent with the open space required for the applicable Local Facility Management
Zone.
Buildout Facility Adequacy Analysis
All Local Facilities Management Zones, except for Zone 22, have provided the required growth
management open space as identified in the applicable Local Facility Management Plans, which address
required open space through buildout of the zones. Future projects in Zone 22 must provide their
proportionate share of required open space in compliance with the standard.
Analysis of how the Housing Element rezone program (approved January 30, 2024) affects the Open Space
performance standard at buildout is included in Exhibit 11 of the Planning Commission Staff Report, dated
October 18, 2023, for the Housing Element Implementation and Public Safety Element Update.
Background
The history of the open space standard helps to clarify its applicability today. It should be noted that the
open space provided to meet the open space standard does not represent all the open space in Carlsbad.
Open space to the meet standard is provided within the applicable Local Facility Management Zones and
is in addition to constrained open space, such as protected habitat and slopes greater than 40 percent.
The city utilizes other methods to protect all the open space resources and amenities throughout the city,
including the Habitat Management Plan (protects the city’s natural open space preserve system), Growth
Management Parks standard (parks are a source of recreational open space in the city), and the Trails
Master Plan (trails are another source of recreational open space).
June 25, 2024 Item #10 Page 34 of 44
Citizens Committee for the Review of the Land Use Element (1985)
In 1985, a citizen’s committee made recommendations to the City Council regarding changes to the city’s
General Plan Land Use Element. The committee’s recommendations were used as the basis for developing
the growth management facility standards. The committee recommended that future open space would
be provided by future master planned areas (15 percent of the master plan area), as required by the
Zoning Ordinance at that time (and today).
Public Facility Standards (July 1986) and Citywide Facilities and Improvements Plan (Sept. 1986)
In 1986, the City Council adopted the Growth Management Ordinance (Carlsbad Municipal Code Chapter
21.90) and the public facility standards for the Growth Management Program. The Citywide Facilities and
Improvements Plan specified that the open space standard applies in some Local Facility Management
Zones (Zones 11–15 and 17–25), but not others (Zones 1–10 and 16) because those zones were
determined to have already been developed or to have already met the standard. (i.e., subject to
previously adopted master and/or specific plans). Some previously adopted master and/or specific plans
found that full build-out under the plans would provide sufficient open space required at the time these
plans were approved, specifically, 15% of all areas (regardless of any constraints such as slope).
Accordingly, the CFIP found these zones did not need to meet the later-adopted open space performance
standard of 15% of non-constrained land. The CFIP exemption for these zones was recognized in the
individual Local Facility Management Plans decades ago. This methodology is consistent with traditional
land use methodology which applies new standards prospectively. (See 2020/2021 Growth Management
Program Monitoring Report p. 27; Friends of H Street v. City of Sacramento (1993) 20 Cal.App.4th 152,
169 [California’s planning statutes “address future growth, and do not require local governments to bring
existing neighborhoods and streets into compliance with the general plan.”].)
The following are some key facts during the development of the open space standard:
• As part of the development of the Growth Management Program, the city identified areas that
were, at the time, “urbanized” (developed areas) “urbanizing” (some development or some level
of planning completed, such as an existing master plan) and “future urbanizing” (very little to no
development and no existing master plan).
• A comparison of the Local Facilities Management Zones map and the 1986 Development Status
Map shows that the zones where the open space standard is applicable (Zones 11 – 15 and 17 –
25) align, for the most part, with the areas identified in 1986 as “future urbanizing,” which is
where future master plans would be required (e.g., Aviara, Bressi Ranch and Quarry Creek master
plans) and is consistent with the 1985 committee recommendation for master plans to provide
additional future open space.
o The “urbanized” areas were already developed, and the “urbanizing” areas had previously
approved development or master plans. Although the open space standard was not applied
to the “urbanizing” areas, the existing approved master plans within these areas provided
open space as required by city regulations in place at the time. Prior to the Growth
Management Program and the open space standard, the city’s zoning ordinance required 15
percent of the total area of any master plan to be designated as open space. This 15 percent
standard differs from the Growth Management open space standard because it applies to the
total land area of a master plan and does not exclude environmentally constrained non-
developable land.
June 25, 2024 Item #10 Page 35 of 44
Note: OS standard applies to gray areas
Figure 6
Local Facility Management Zones
(adopted 1986) 1986 Development Status Map
Where Open Space Standard
Applies
(adopted 1986)
Common Questions About the Open Space Standard
Is there a 40 percent open space requirement?
It is a misconception that there is a standard that requires the city to provide 40 percent open space.
There is no requirement or standard that requires 40 percent open space per individual projects or on a
citywide basis.
Neither Proposition E nor the Citywide Facilities and Improvements Plan (CFIP) performance standards
required 40 percent open space. Proposition E states “emphasis shall be given to ensuring good traffic
circulation, schools, parks, libraries, open space, and recreational amenities.” The CFIP open space
standard states “Fifteen percent of the total land area in the zone, exclusive of environmentally
constrained non-developable land…concurrent with development.” The CFIP also states that Local
Facilities Management Zones 1-10 and 16 “are already developed or meet or exceed the requirement”
and are not subject to the CFIP open space standard. This methodology predates Proposition E, and was
included in the CFIP, adopted by the City Council on September 23, 1986, by Resolution 8797.
A July 8, 1986, City Council staff report on the facility standards states: “compliance with this [open space]
standard should result in approximately 35 to 40% of the total land area in the city being open space when
the city is fully built out.” A couple years later, a June 27, 1988, staff report to an open space committee,
stated that “staff has estimated that approximately 10,000 acres or 38.5% of the total land area in the city
is projected to be set aside for open space uses.”
The shorthand estimate of 40% was simply derived by adding the 25 percent estimated constrained lands
to the 15 percent GMP open space set-aside. However, this shorthand calculation did not consider that
the standard only applied to 14 of the 25 Local Facility Management Zones (CFIP, p. 46), rather than the
entire city. The reference to 40 percent open space was an estimate, not a standard or goal. Today, 38
percent of Carlsbad is dedicated as open space.
June 25, 2024 Item #10 Page 36 of 44
Why doesn’t the open space standard apply to Local Facilities Management Zone 9?
Local Facilities Management Zone 9 (Zone 9) is a good example of one of the “urbanizing” areas in 1986
where the open space standard was not applied. Zone 9 includes part of the Ponto area and the majority
of the zone is subject to the Poinsettia Shores Master Plan. This is an area where the city has received
community comments stating that the zone does not meet the open space standard and more open space
is needed. In 1986 the City Council determined that the open space needs for Zone 9 had been met and
therefore the open space standard does not apply to Zone 9.
Zone 9 was an “urbanizing” area when the Growth Management Program was being developed. A master
plan was approved for the area (Batiquitos Lagoon Educational Park Master Plan). The master plan met
the open space standard required at the time (Zoning Ordinance), which is 15 percent of the total area of
the master plan.
The following is a summary of actions related to Zone 9 that relate to the open space planned in that area:
• Oct. 1, 1985 – Batiquitos Lagoon Educational Park Master Plan approved by City Council and, as
required by the zoning ordinance at the time, was required to provide a minimum 15 percent of
the total master plan area as open space.
• May 6, 1986 – City Council staff report on development of the Growth Management Program:
o City council directed staff, working in conjunction with the developer of Zone 9, to finalize a
pilot local facility management program to serve as a format model for programs for the other
zones. The Batiquitos Lagoon Educational Park Master Plan for Zone 9 had been approved the
year before and it was a recent development plan to use as a model.
• June 24, 1986 – Growth Management Ordinance approved (Zoning Ordinance Chapter 21.90):
o Section 21.90.030(g) allowed development of phase I of the Batiquitos Lagoon Educational
Park Master Plan to proceed prior to approval of a Local Facility Management Plan for Zone
9, subject to certain conditions including that the developer agree to participate in the
restoration of a significant lagoon and wetland resource area and make any open space
dedications of property necessary to accomplish the restoration. The master plan developer
did make the open space land dedications that were needed for the restoration of Batiquitos
Lagoon.
• Sept. 16, 1986 – City Council approves the Citywide Facilities and Improvements Plan, including
the open space standard with the clarification that the standard is not applicable in Zones 1-10
and 16.
• July 11, 1989 – City Council approves the Local Facilities Management Plan for Zone 9. Other than
noting the existing open space within the zone, open space was not further analyzed in the plan,
as the open space standard does not apply to Zone 9.
• Jan. 18, 1994 – City Council adopts an ordinance approving Poinsettia Shores Master Plan, which
replaced the Batiquitos Lagoon Educational Park Master Plan. The related Planning Commission
staff report (Oct. 20, 1993) evaluates open space in the master plan as follows:
“The Poinsettia Shores Master Plan will not adjust or modify any existing General Plan designated
open space areas or boundaries. Of the project's 162.8 total acres, approximately 34.8 acres are
natural lagoon/wetland habitat which have Open Space General Plan designations (planning areas
"I", "K", and "L") and have already been dedicated in fee title to the State of California, State Lands
June 25, 2024 Item #10 Page 37 of 44
Commissions in accordance with previous BLEP [Batiquitos Lagoon Educational Park] approvals.
The master plan has additional open space totaling approximately 11 acres comprised of a
community recreation center (planning area "M") and open space areas consisting of blufftop and
roadway setbacks. The total master plan open space (approximately 46 acres) represents 28% of
the entire master plan area. This exceeds the [Zoning Ordinance] requirement of at least 15% of
the master plan area (24.4 acres) to be set aside as open space. As outlined in the Citywide
Facilities Improvement Plan and the Zone 9 Local Facility Management Plan, this master plan has
complied with all open space requirements. The project is also consistent with the Open Space
and Conservation Resource Management Plan and incorporates master plan trails and links with
the Citywide Trails System as required. The master plan's frontage on the east side of Carlsbad
Boulevard (planning areas "G" and "H") is the location for linkage with the Citywide Trails System.
These planning areas will be required to provide for the trail link within the required 40-foot
structural setback from Carlsbad Boulevard. … On August 26, 1993, the master plan's open space
program was reviewed by the City's Open Space Advisory Committee and unanimously
supported…”
While the open space standard is not applicable to Zone 9, open space has been provided for the area,
including private recreation areas, trail linkages and a significant natural open space dedication that
helped in the restoration of Batiquitos Lagoon1.
1 City of Carlsbad Planning Commission Staff Report dated Oct. 20, 1993, for MP 175(D)/GPA 91-05/LCPA 91-02/LFMP 87-09(A)
Poinsettia Shores Master Plan.
June 25, 2024 Item #10 Page 38 of 44
SCHOOLS
Performance Standard
School capacity to meet projected enrollment within the Local Facility Management Zone (LFMZ) as
determined by the appropriate school district must be provided prior to projected occupancy.
Note: public school facilities are not planned, funded, or constructed by the city.
FY 2022-23 Facility Adequacy Analysis
All new residential development is required to verify that school capacity can meet the projected
enrollment from the school district serving the development. As of June 30, 2023, all school districts
serving Carlsbad have verified they have capacity to serve development in the city.
Buildout Facility Adequacy Analysis
Based on Chapter 3.11 of the 2015 General Plan Environmental Impact Report, for all school districts at
all grade levels, capacity is expected to be sufficient for the buildout student population with no need for
additional schools.
Analysis of how the Housing Element rezone program (approved January 30, 2024) affects the Schools
performance standard at buildout is included in Exhibit 11 of the Planning Commission Staff Report, dated
October 18, 2023, for the Housing Element Implementation and Public Safety Element Update.
June 25, 2024 Item #10 Page 39 of 44
SEWER COLLECTION SERVICES Performance Standard
Trunk-line capacity to meet demand, as determined by the appropriate sewer districts, must be
provided concurrent with development.
FY 2022-23 Facility Adequacy Analysis
The evaluation of conformance with the performance standard requires sewer master plan updates be
conducted on an interval that is commensurate with development activity. As part of the updates, sewer
flow monitoring is necessary to evaluate whether the sewer flow generation factors used to estimate
sewer flows and system capacity adequately reflect actual conditions or require revision. The city
conducts sewer master plan updates on a 5-year interval to evaluate trunk line capacity and requires
sewer studies during discretionary project review for sewer system sizing.
Sewer collection system improvements are provided on a project-by-project basis concurrent with
development. Currently, the City of Carlsbad’s sewer service area pipelines comply with the performance
standard. The sewer agencies that provide sewer collection systems within the city include: Carlsbad,
Leucadia Wastewater District and Vallecitos Water District. Each agency indicates that they currently have
adequate conveyance capacity in place to meet Carlsbad’s sewer collection demands.
The City of Carlsbad is served by the following six major sewer interceptor systems in four of these
interceptor systems, wastewater flow capacity is shared with other agencies as listed in Table 17. For
both the Vista/Carlsbad Interceptor and the Buena Interceptor, Carlsbad’s capacity rights increase in the
downstream direction as they flow to the Encina Water Pollution Control Facility. Capacity rights increase
from 3.3% to 50% for the Vista/Carlsbad Interceptor and from 18% to 35% in the Buena Interceptor. This
system of interceptors provides adequate capacity to transport wastewater to EWPCF.
Table 17: Carlsbad Sewer Interceptors
1 Million gallons per day (MGD)
2 Buena Sanitation District and the City of Carlsbad are negotiating the transfer of this facility to the City of Carlsbad upon
City of Vista’s commissioning of their Buena Outfall Force Main, Phase III project.
3 The downstream sections (NB8 and NB9) of the North Batiquitos Sewer, often referred to as Ponto Sewer and originally
termed the Occidental Sewer
4Flows conveyed via Vista Carlsbad Interceptor to EWPCF
Interceptor System Sewer Districts Served Carlsbad Capacity Rights1 FY 2022-23
Average Daily Flows
Vista/Carlsbad
Interceptor
City of Carlsbad
City of Vista
Ranges from
1.0 MGD up to 41.8 MGD (3.3% - 50%) 3.20 MGD4
Buena Interceptor2 City of Carlsbad
Buena Sanitation Dist.
Ranges from
1.2 MGD up to 3.6 MGD (18% - 35%) 0.59 MGD
Vallecitos
Interceptor
City of Carlsbad
Buena Sanitation Dist.
Vallecitos Water Dist.
5 MGD (24%) 1.62 MGD
Occidental Sewer3
City of Carlsbad
City of Encinitas
Leucadia Wastewater Dist.
8.5 MGD (40%) 0.24 MGD
June 25, 2024 Item #10 Page 40 of 44
Buildout Facility Adequacy Analysis
The City of Carlsbad 2019 Sewer Master Plan Update evaluated the sewer infrastructure needs of the
Carlsbad sewer service area and identified facilities required to accommodate future sewer flows at
buildout. The master plan identified the Vista/Carlsbad Interceptor and Buena Interceptor as requiring
improvements to accommodate build-out demand (see below). Sewer trunk main adequacy is estimated
by comparing wastewater flow projections to the capacity of the sewer system using a computer model.
Sewer flow monitoring is used to assess actual flows and to evaluate the need for sewer capacity
improvements.
Collection system improvements to meet buildout conditions are identified at four locations: Faraday
Avenue, Poinsettia Avenue, Pio Pico and Foxtail Loop. These projects are programmed in the Capital
Improvement Program.
The adequacy of major sewer facilities for buildout conditions is summarized as follows:
Vista/Carlsbad Interceptor: The City’s 2019 Sewer Master Plan Update indicates that portions of the
Vista/Carlsbad (VC) Interceptor do not satisfy buildout system flows. Hydraulic model results indicate
that the 36-inch diameter gravity mains of Reach VC-3 are insufficient to convey buildout flows. Most
of reach VC-3 consists of 36-inch diameter gravity main and is scheduled for upsizing to 42 inches as
a future Capital Improvement Program project to meet buildout flows.
Buena Interceptor: The Buena Interceptor is currently shared by Vista and Carlsbad and, although
the city’s wastewater flows are not projected to exceed its capacity rights, the combined flows of
Buena Sanitation District and City of Carlsbad during peak wet weather periods exceed the design
capacity criterion. As a result, Buena Sanitation District has constructed a parallel trunk sewer which
will allow Buena Sanitation District flow to be diverted to the parallel trunk sewer. Construction was
completed in 2021, however Buena Sanitation District has not yet regularly diverted flow to this
sewer. When they do, the City of Carlsbad will be the only agency with flows remaining in the existing
Buena Interceptor and peak wet weather flow at buildout conditions would reach 7.3 MGD or
approximately 69 percent of pipe capacity.
Analysis of how the Housing Element rezone program (approved January 30, 2024) affects the Sewer
Collection Services performance standard at buildout is included in Exhibit 11 of the Planning Commission
Staff Report, dated October 18, 2023, for the Housing Element Implementation and Public Safety Element
Update.
In summer 2024, Carlsbad will initiate the next Sewer Master Plan Update, which will include projections
for land use, zoning, population, and development type for the next 20-year period. These criteria will
serve as the basis for flow projections and related sewer system improvements for the study period.
North Agua Hedionda
Interceptor
City of Carlsbad 6 MGD (100%) 1.27 MGD
South Agua
Hedionda
Interceptor
City of Carlsbad 4.7 MGD (100%) 0.91 MGD
June 25, 2024 Item #10 Page 41 of 44
WATER DISTRIBUTION SERVICES
Performance Standard
Line capacity to meet demand as determined by the appropriate water district must be provided
concurrent with development. A minimum of 10-day average storage capacity must be provided prior
to any development.
FY 2022-23 Facility Adequacy Analysis
Carlsbad’s water distribution is provided by three agencies including the Carlsbad Municipal Water District
(CMWD), which is a subsidiary district of the City of Carlsbad, serving 32.32 square miles (82.7 percent of
the city), Olivenhain Municipal Water District (OMWD) serving 5.28 square miles (13.5 percent of the city),
and Vallecitos Water District (VWD) serving 1.48 square miles (3.8 percent of the city). These districts
indicate that they have adequate pipeline and storage capacity to meet the water distribution
performance standard.
Water distribution demand requirements are estimated using a computer model to simulate the following
water distribution scenarios: 1) average daily demand; 2) maximum day demand plus a fire event; and 3)
peak hour demand. This computer model was calibrated using actual flow measurements collected in the
field to verify it sufficiently represents the actual water system.
Existing (2014 baseline year) and buildout (2040) daily demand as calculated in the CMWD 2019 Potable
Water Master Plan are 24.1 MGD and 29.6 MGD, respectively. These were based on average daily
demands of 15.1 MGD and 18.5 MGD and a peaking factor of 1.6. Within the CMWD service area, the
actual existing average daily potable water demand has been much less than this for the previous five
years as shown in Table 18:
Table 18: Water Distribution Average Daily Demand
Fiscal Year MGD
2018-19 12.41
2019-20 11.9
2020-21 12.8
2021-22 12.5
2022-23 11.4
Water conservation by CMWD customers has resulted in an overall reduction in per capita consumption.
Factors leading to this reduction include (1) an expansion of CMWD’s recycled water system beginning in
2008, (2) in 2009, a campaign was initiated to reduce customer consumption by the wholesale water
agencies, (3) implementation of a new tiered water rate structure to encourage water conservation, and
(4) voluntary and mandatory conservation measures in 2015 in response to drought conditions.
Based on the water model analysis prepared for the CMWD 2019 Potable Water Master Plan, future
pipelines and water system facilities were identified to ensure water system improvements are
constructed to accommodate future customers. In addition, funds for the construction of future facilities
are included in the Capital Improvement Program. Therefore, the future water infrastructure is
programmed to be in place at the time of need to ensure compliance with the performance standard.
1 Corrected demand for 2018-19 based on potable water sales data.
June 25, 2024 Item #10 Page 42 of 44
The 10-day storage requirement is part of the water distribution performance standard and a planning
criterion to accommodate pipeline maintenance recommended by the San Diego County Water Authority.
To meet the requirement, CMWD needs approximately 130 MG of storage capacity based on the average
water demand and 185 MG for buildout conditions. CMWD has a total storage capacity of 242.5 MG
which consists of 195 MG of storage capacity at Maerkle Dam and 47.5 MG of storage capacity in various
storage tanks throughout the distribution system as shown in Table 19.
Table 19: Storage Tanks and Capacity
Facility Name Year Built Capacity (MG)
Santa Fe II Tank 1986 9
La Costa Tank 1985 6
Maerkle Tank 1991 10
TAP Tank 1985 6
D-3 Tank 1995 8.5
Ellery Tank 1972 5
Elm Tank 1972 1.5
Skyline Tank 1972 1.5
Maerkle Reservoir 1962 195
CMWD also has interagency agreements with OMWD, VWD and Oceanside to provide additional supply
if needed. In 2004, the OMWD completed construction of a water treatment facility at the San Diego
County Water Authority Emergency Storage Reservoir, which provides the storage necessary to meet the
10-day storage criterion for OMWD. VWD’s average day demand is 13.3 MGD with an existing storage
capacity of 120.5 MG. Through interagency sharing arrangements, VWD can obtain additional water
supplies to meet a 10-day restriction on imported water supply.
Buildout Facility Adequacy Analysis
As proposed land development projects are reviewed by the city, the Water Master Plans from CMWD,
OMWD, and VWD are consulted to check pipeline sizes and facility capacities to verify adequacy to
support the water needs of the project and city. To comply with water master plan requirements, land
development projects may be required to construct a master plan water project concurrent with
construction of the development project.
The CMWD 2019 Potable Water Master Plan identifies facilities necessary to meet water demands for
buildout within its service area. These consist of new pipelines and pipeline rehabilitation projects that
are programmed into the Capital Improvement Program, some of which may be constructed concurrently
with new development projects in the northeastern portion of the city.
The 2019 Potable Water Master Plan identified that no additional storage is required to meet the future
storage requirements, due in part to conservation measures and expansion of CMWD’s recycled water
system.
Analysis of how the Housing Element rezone program (approved January 30, 2024) affects the Water
Distribution Services performance standard at buildout is included in Exhibit 11 of the Planning
Commission Staff Report, dated October 18, 2023, for the Housing Element Implementation and Public
Safety Element Update.
June 25, 2024 Item #10 Page 43 of 44
Exhibit 2
City Council Memorandum, dated April 18, 2024
(on file in the Office of the City Clerk)
June 25, 2024 Item #10 Page 44 of 44
From:Council Internet Email
To:City Clerk
Subject:FW: 6/25/2024 Item #10: FY 2022-23 GMP Monitoring Report - legally deficient
Date:Monday, June 24, 2024 8:53:18 AM
From: Steve Linke <splinke@gmail.com>
Sent: Monday, June 24, 2024 2:01 AM
To: Council Internet Email <council@carlsbadca.gov>
Subject: 6/25/2024 Item #10: FY 2022-23 GMP Monitoring Report - legally deficient
Carlsbad City Council:
You are being asked to adopt a resolution finding that the Fiscal Year 2022-23 Growth
Management Program (GMP) Monitoring Report "satisfies the city's monitoring
requirements." This finding does not reflect reality. This is the eighth consecutive
annual GMP Monitoring Report, starting with the initial Fiscal Year 2015-16 report, that
has failed to present the required monitoring of pedestrian, bicycle, and transit
multimodal level of service (MMLOS). This report DOES NOT SATISFY THE CITY'S
LEGAL MONITORING REQUIREMENTS and should be rejected!
Year after year, staff makes the same empty promise that the MMLOS monitoring will be
presented "within a year" or "later this year" as a supplemental report. How long are they
going to be allowed to continue doing this? It is a clear violation of the GMP.
Two years ago (7/12/2022 Item #15), I appeared before you as Vice Chair of the traffic
commission after we voted to urge council to take action to compel staff to do MMLOS
monitoring. However, even though this was a known topic for the council meeting, I was
rebuffed by the City Attorney, because MMLOS was not included within the agenda item
prepared by staff. Councilmember Acosta cited the minutes from the traffic commission
meeting, in which Transportation Director Frank said his department was working
diligently on MMLOS, and that he expected completion within 6 to 12 months, but here
we are two more years later--still with no monitoring.
Here is a brief history with actual text related to MMLOS monitoring extracted from the
last eight GMP Monitoring Reports.
FY 2015-16
Measuring the performance of non-vehicle modes of travel is a new requirement for the
All Receive - Agenda Item #____ For the Information of the: CITY COUNCIL
Date: ______ CA____ CC____ CM____ ACM____ DCM (3)____
10
6/24/24 x xxxx
city...Following the adoption of the General Plan and the new MMLOS standard, city staff
immediately began the process of revising the MMLOS method...The revised MMLOS
method is expected to be completed within next 12 months; therefore, this report does
not include [MMLOS] for the pedestrian, bicycle and transit travel modes.
FY 2016-17
This report does not include circulation facility adequacy analysis...New traffic and
mobility monitoring methodologies are being defined in the Evaluation and Monitoring
(E&M) Manual that was under development at the time this report was being prepared.
The E&M Manual is expected to be completed in the Summer of 2018...monitoring
results are expected to be available shortly after the E&M Manual is finalized.
FY 2017-18
Linke note: No MMLOS data was reported.
FY 2018-19
Staff will initiate a task order with a consultant to update and revise the pedestrian,
bicycle and transit MMLOS methodologies...Once the refined MMLOS Tool has been
applied to the bicycle and pedestrian travel modes (and possibly to the transit travel
mode) of the FY 2018-19 street typologies, staff will report those MMLOS results to the
City Council later this year.
FY 2019-20
Staff will finalize the updates to the pedestrian, bicycle and transit MMLOS
methodologies...Once City Council has approved the refined MMLOS Tool, staff will
apply it to the city streets monitored in FY 2019-20 and present the MMLOS results to
City Council later this year.
FY 2020-21
[S]taff will update the MMLOS methodologies, apply the revised MMLOS Tool on the
street typologies for the FY 2020-21 GMP Monitoring Report, and then return to the
Traffic & Mobility Commission to present the updated MMLOS monitoring results...
The Traffic and Mobility Commission considered this item on June 6, 2022...[and voted
to]...Appoint Vice-Chair Linke to represent the Traffic & Mobility Commission at the City
Council meeting to speak to the commission’s concerns for the need for multimodal
level of service monitoring.
Linke note: This topic was then not included on the council agenda, so the City Attorney
would not allow any action to be taken, nor did council vote to put it on a future agenda.
FY 2021-22
Staff will continue to work with the Traffic & Mobility Commission to finalize the update
and revise the pedestrian, bicycle and transit MMLOS methodologies and report the
MMLOS results...The status of the pedestrian, bicycle and transit travel modes will be
reported separately in Summer 2023...
FY 2022-23
The FY 2022-23 Growth Management Program Monitoring Report is being presented to
City Council with the status of the Vehicular LOS Standard, but not the status of the
other modes because the proposed draft MMLOS methodology for those modes is still
being vetted and has not been approved by City Council. Staff will present the FY2022-
23 draft MMLOS analysis, including the proposed draft methodology developed by the
Traffic Safety and Mobility Commission subcommittee, and the draft findings and
recommendations, to City Council as a separate item later this year.
Despite all of the above promises over the last eight years--no MMLOS has ever been
reported. A few weeks ago, I read excerpts from the October 2023 Superior Court Judge's
order on a GMP enforcement lawsuit against the city, which read, in part:
The city has, in practice, taken the position that if…roads and intersections
become too congested to meet the…[Growth Management] performance
standard…then [they] can modify the…standard and/or choose to exempt
any [streets] that do not meet [it]. The court doubts that this is what the
citizens had in mind when they voted to approve [Growth Management]...
The court believes that the city is not adhering to the spirit of Growth
Management…From the court's perspective, the city has implemented a
purported growth management plan that is largely illusory because the city
simply changes the plan or exempts itself from compliance whenever it
cannot comply.
The lack of enforcement of the MMLOS monitoring requirement was not really a topic in
that trial, but it is certainly consistent with the city's attitude that it can just ignore any
rules or policies that it does not care to follow or enforce. It's all illusory.
Best regards,
Steve Linke
Carlsbad
splinke@gmail.com
CAUTION: Do not open attachments or click on links unless you recognize the sender and
know the content is safe.
FY 2022-23 Growth Management
Program Monitoring Report
Eric Lardy, City Planner
Community Development Department
June 25, 2024
1
INTRODUCTION
•Annual report required by Municipal Code
•Zoning Code Section 21.90.130(d)
•Provide status on Performance standards
to ensure public facilities are provided
concurrent with growth
•State Laws and Resolutions suspended
portions of Growth Management Program
2
PUBLIC FACILITY STATUS
Public Facility FY 2022-23
compliance Public Facility FY 2022-23
compliance
Admin Yes Circulation (vehicle)Yes
Library Yes Drainage Yes
Fire Yes Sewer Yes
Schools Yes Water Yes
Parks Yes Wastewater Yes
Open Space Yes
3
RECOMMENDED ACTION
•Support staff’s recommendation to:
–Receive and file the Fiscal Year 2022-23
Growth Management Program
Monitoring Report, prepared pursuit to
Carlsbad Municipal Code (CMC 21.9.130)
4
FY 2022-23 Growth Management
Program Monitoring Report
Eric Lardy, City Planner
Community Development Department
June 25, 2024
5
CIRCULATION:
MULTIMODAL LEVEL OF SERVICE
(MMLOS)
•MMLOS still being vetted and has not been approved by City Council
•Staff to present the FY 2022-23 draft MMLOS analysis,
findings, and recommendations to City Council later
this year
•Ensure City Council and stakeholders fully understand the proposed MMLOS methodology
•Facilitate discussions on potential revisions to the MMLOS methodology and policies within the General Plan Mobility Element and Growth Management Plan
6
GROWTH MANAGEMENT
CITIZENS COMMITTEE
•Advisory citizens committee formed March 2022
•Mission to identify key elements of new plan to
management growth
•Committee recommendations presented to City
Council in July 2023
•Recommendations include revisions to current
facility standards
•Staff preparing implementation program for City
Council consideration
7
IMPACT OF STATE LAW
•SB 166 and SB 330
•Prohibits residential growth moratoriums
•Prohibits residential growth caps
•GMP utilizes both as limits to help ensure
the provision of adequate public facilities
•Per HCD, these limits are unenforceable
8
IMPACT OF STATE LAW
•Gov. Code 65583(a)(3)
•Requires Housing Element Sites Inventory
that achieves RHNA
•Must accommodate RHNA at all times throughout the housing cycle
•Per HCD, GMP caps cannot prevent consistency with inventory
•City Council Resolution Nos. 2020-208 and 2021-074
9
DWELLING UNIT STATUS – FY 2022-23
Quadrant Existing units
As of June 30, 2023 Prop E Caps
NW 12,781 15,370
NE 7,460 9,042
SW 10,274 12,859
SE 16,488 17,328
Total 47,003 54,599
10
PARKS STATUS - FY 2022-23
Quadrant Existing Inventory
Park Acres
Current Park Acres
Required by Standard
Buildout
Park Acres Required
NW 131.7 96.3 117.6
NE 68.7 56.4 67.7
SW 93.6 76 90.1
SE 138.3 122.6 129.6
Total 432.4 351.2 404.9
11
CURRENT STANDARD
Fifteen percent of the total land area in the
zone [Local Facility Management Zone]
exclusive of environmentally constrained
non-developable land must be set aside for
permanent open space and must be
available concurrent with development.
OPEN SPACE “GOAL”
#Category % of Total
City Land
1 Protection of natural
Resources 29.5%
2 Managed production of
resources 1.3%
3 Outdoor recreation 4.7%
4 Aesthetic, cultural and
educational purposes 2.4%
CURRENT OPEN SPACE TOTAL 38 %
SEPARATE OPEN SPACE CATEGORIES
#Category
1 Protection of natural resources
2 Managed production of resources
3 Outdoor recreation
4 Aesthetic, cultural and educational purposes
WHY DOESN’T STANDARD
APPLY TO ALL ZONES?
•City Council determination in 1986
•Standard applied to areas where
future master plans anticipated
•Not applied to developed areas
•Not applied where development or
master plan already approved