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HomeMy WebLinkAboutPCD/GPC 13; CITY OF CARLSBAD; Planning Comm Determ/Gen Plan Consis (PCD/GPC)PUBLIC FACILITIES ELEMENT OF THE GENERAL PLAN FOR THE CITY OF CARLSBAD I I. Introduction The City of Carlsbad is obligated by State law to adopt and implement a comprehensive general plan. In order to provide a complete and comprehensive plan for development of the community in accord with the General Plan it is essential that provisions be made for adequacy of public facilities. II. Purpose A substantial impact will be created on existing public facilities, including schools, as new subdivisions and other de- velopments occur in the now undeveloped portions of the Carlsbad planning area. In addition, such development will create the need for many new public facilities. The subdivision approvals and zone changes and other approvals necessary to such development must be accomplished in accord with the General Plan. It is a basic element of the General Plan that areas planned for residen- tial use will not be put to such a use nor zone changes or sub- division approvals considered until the City can be assured that all 'necessary public facilities for the area to be developed can and will be available concurrent with need. The quality of the subdivision and zoning ordinances and the manner of their admin- istration will greatly affect the character of the future city. In order to implement this General Plan, it will be necessary to carefully administer the subdivision and zoning processes to insure that all necessary public services are made available concurrent with need. • The existence of adequate public facilities and services must be established prior to any discretionary actions by the city of Carlsbad, including, but not limited to, the enactment and amendment of the zoning ordinance, the issuance of zoning variances the issuance of conditional use permits, and the approval of tentative subdivision maps. III. Goal To provide a comprehensive public services and facilities and public building program for the citizens of the City of Carls nowand in the future so as to insure that all necessary public facilities will be available concurrent with need in connection with the development of the City pursuant to the balance of the General Plan. Iv. Policy Before giving approval to zoning, rezoning, development or redevelopment proposals, the public health and safety and the gen- eral welfare of the community and all its citizens require that the proponent of any such actions shall present evidence satis- factory to the City Council that all necessary services and facil- ities will be available concurrent with need. 1 2 4 5 6 7 8 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 I TABLE OF CONTENTS I,. INTRODUCTION A. State, Law-Publi:c Safety- Element 2 B. Risk. Evaluation C. enarai Plan Relationships 6 D. Goals and Objective of the Public Safety Element 7 II. EVALUATION OF SAFETY HAZARDS IN CARLSBAD 8 A Natural Razards 9 B. Man-Made Hazards 11 rir. POLICIES AND ACTION PROGRAMS 14 A. Fire Hazards 15 B. Flood Hazards 18 C. Crime Prevention 19 D. Health and Safety Hazards 20 E. Emergency Services 23 IV. APPENDICES A. Glossary of Terms A-i B. Inundation Map B-i IC I. INTRODUCTION Carlsbad residents are subject to a number of hazards which could have a significant adverse impact on life and property. The purpose of the Public Safety Element is to introduce safety considerations into the planning and decision-making processes in order to reduce the risk of injury, loss of life and property damage associated with the hazards identified in the Element. The major areas addressed are: a) Fire Hazards b) Flood Hazards c) Crime Prevention d) Health and Safety Hazards e) Emergency Services Utilization of this Element and implementation of the proposed Action Programs should help reduce the risks to which local residents and their property are now exposed, or could be subject to in the future. However, it should be recognized that the scope of the Element is broad and the availability of data in many of the subject fields is limited. For these reasons, the Public Safety Element should not be considered as the final word in safety planning, but, rather, it should be seen as a foundation to be strengthened and built upon in the future. -2- A. State Law - Public Safety Element Government Code Section 65302.1 requires a Public Safety Element in all City and County general plans, as follows: The general plan shall also include .... a safety element for the protection of the community from fires and geologic hazards including features necessary for such protection as evacuation routes, peak load water supply requirements, minimum road widths, clearances around structures, and geologic hazard mapping in areas of known geologic hazards. -3- B. Risk Evaluation Natural and man-made hazards of various types and degrees will always be with us. The risks they present need not be. In cases where damage from these hazards is a possibility, a certain degree of risk is involved. Of course, the greater the possibility of damage, the greater the risk. Most individuals have established the normal level of risk they are willing to accept. A skydiver, for example, has chosen to set his acceptable risk level somewhat higher than participants of most other sports. The State guidelines for the preparation of the Safety Element suggest that an "acceptable risk" level be established as a part of the Element. The guidelines define "acceptable risk" as: "The level of risk below which no specific action by local government is deemed to be necessary." Establishing the acceptable risk level should not be the job of the planner, engineer, or other professional. Rather, it is the job of interested citizens with input from the professional. The final decision to be made in setting the level must come from the City Council as our elected representative. In making this determination, it should be kept in mind that any attempt to develop the appropriate planning response to potential hazard involves a judgment, either explicit or implicit, of how much risk is acceptable. There is no such thing as a perfectly hazard-free environment. -4- The City's responsibility is to provide a framework in which a communitywide, as opposed to an individual, response to the question can be meaningful. The first of several essential steps is the recognition of the presence of a hazard. Much of the planning of the past has proceeded without enough knowledge of the natural forces at play in a given area. The following guidelines shall be considered in determining the acceptable level of risk for the hazards specified in the Public Safety Element: 1. Voluntary vs. Involuntary Risk - Buildings and other land uses normally requiring occupancy or use on an involuntary basis should have a different level of risk than those for voluntary use. Many public and semi-public buildings and land use activities involve involuntary useage (i.e., hospitals, nursing and convalescent homes, mental institutions, playgrounds, schools, etc.). The level of acceptable risk for these involuntary occupancies should be very low. In contrast, the location of private structures in known high hazard areas should have a higher level of acceptable risk because their occupancy is voluntary. Although the risk level can be some- what higher, the level should be carefully considered due to public agency response costs resulting from emergencies occurring in high hazard areas. 2. High Occupancy vs. Low Occupancy Risk - Buildings of high occupancy rates should have a different level of risk than buildings -5- associated with low occupancy rates. Generally, a high occupancy building (i.e., large office building, auditorium, theater, church, large motel, large shopping center, etc.) exposes more people to a given hazard than a low occupancy building (i.e., warehouse, single-family dwelling, etc.). Therefore, high occupancy buildings and land uses should be required to have a lower risk exposure than those of low occupancy. 3. Cost of Reducing Risk - In general, a reasonable level of acceptable risk should be determined based on the cost of its achievement. Minimizing risk frequently results in higher costs. Therefore, determining the level of risk becomes a matter of balancing the costs involved with the lowest risk affordable. The level of acceptable risk represents the point at which the public is no longer willing to pay for further reduction of the risk. 4. Evaluating Existing Risks - The determination of acceptable risk is not only applicable to future planning decisions, but also to the evaluation of risks associated with existing buildings and land uses. High risks may be lowered to a level of acceptability by means of physical alteration. For instance, a structural hazard abatement program which could remodel fire hazardous buildings, relocate and/or demolish existing structures, or change use of structure, (e.g. from high to low occupancy or involuntary to voluntary occupancy). C. General Plan RelationshiDs Effectiveness of the complete General Plan depends upon the understanding of the interrelationship among the plan elements. Particularly strong relation- ships exist between the Public Safety Element and the Geologic and Seismic Safety, Open Space and Conservation, and Land Use Elements. The Public Safety Element and the Geologic and Seismic Safety Element have the strongest relationship. They have similar goals, overlapping policies, and in many cases, require a similar approach to reduce injury, loss of life and property. Conservation is a major consideration of the Public Safety Element, as many of the policies and action programs lead to the preservation of natural vegetation and animal habitats through the reduction of brush fires. Similarly, the Open Space and Conservation Element, particularly the water, soil and minerals sections, considers several public safety issues either directly or indirectly. The Land Use Element can aid in the achievement of the goals of the Public Safety Element. This Element has included the consideration of certain hazard- ous areas in the classification of land uses and densities. Through restrictions on the development of hazardous areas, identified by careful investigations as proposed in the Public Safety Element, the Land Use Elemei it will supplement the policies and action programs of this Element. The ongoing relationship among the plan elements is fundamental to the General Plan's objectives. Future action programs are dependent on the recognition of the need for continual coordination. -7- D. Goals and Objective of the Public Safety Element The term "goal", as used in this Element, is an aim or purpose which is general and timeless. A goal does not lend itself to measurement. The decisions and activities of the City of Carlsbad pertaining to public safety will be guided by these goals: 1. Minimize injury, loss of life and damage to property resulting from fire, flood, crime or hazardous use disaster occurrence. 2. Maximize public safety factors in the planning process. 3. Optimize organization and delivery of emergency services upon occurrence of fire, flood, crime or hazardous use disaster. The objective of the Public Safety Element is to increase public safety by reducing the effects of various types of hazards. The policies and programs presented have been formulated utilizing the above goals. Progress made toward the achievement of these goals should result in indirect benefits such as reducing property damage and social dislocation resulting from hazardous occurrences. The safety hazards considered in this Element are related to fire, flood, crime and health hazards. Although the focus of the Element is on prevention, the City has recognized emergency response as an important part of improving safety. A section on emergency services has therefore been included in the Element. II. EVALUATION OF SAFETY HAZARDS IN CARLSBAD Awareness and knowledge of natural and man-made hazards in Carlsbad will enable the City to adopt policies and actions which will alleviate potential disasters and help prepare, mobilize and employ public and private resources to meet needs when a disaster occurs. Within the City there are a number of natural and man-made hazards which are recognized as potential sources of disaster incidents. The following evaluations of natural and man-made safety hazards are taken from the list of UW_26 Natural Disaster Readiness Outlines contained in the "Emergency Plan" for the City of Carlsbad prepared in conjunction with the Unified San Diego County Emergency Services Organization (USDCESO). sea A. Natural Hazards Natural safety hazards such as earthquakes and their secondary seismic effects, landslides, erosion and other geological hazards, with the exception of flooding, have been identified and evaluated in detail in the Geologic and Seismic Safety Element. Each has a high probability of occurrence and the potential for disaster is also rated high. The Geologic and Seismic Safety Element provides Carlsbad with guidelines for the identification and evaluation of geotechnical hazards and gives examples of investigations that should be conducted in relation to particular geotechnical problems that exist in certain areas of the City. Other natural safety hazards recognized in Carlsbad are natural fires, flooding, severe fog and storms. 1. Natural Fires - The probability of occurrence for natural fires is rated as very high, by the USDCESO. Extreme weather conditions, such as high temperature, low humidity and/or high velocity winds could cause a fire of major proportions that could have disasterous effects upon much of the community. Practically all of the vacant lands in the Carlsbad planning area are covered by grass and brush. Continuing drying heat and the absence of adequate protective forces could result in large losses of property. 2. Flooding.- The probability of flooding in the Carlsbad planning area is rated as high by the USDCESO. During a prolonged period of heavy rain, flooding can be anticipated along the three recognized flood plains (Buena Vista Creek, Agua Hedionda Creek and San Marcos Creek) -10- and along other major creeks and drainage channels. There is also the possibility of dam failure inundation from Calavera Dam and/or Squire's Dam in the case of seismic activity or sabotage. 3. Severe Fog - Severe fog has a high probability of occurrence from September through March. It can be anticipated that severe traffic congestion with multiple vehicular accidents could occur on major traffic routes through Carlsbad when this condition is present. 4. Storms - Adverse weather conditions such as hail storms, wind storms, and even hurricanes represent a potential threat to Carlsbad, but have a low to very low probability of occurrence. High winds and hail could cause extensive damage to buildings and crops within the City and utilities of all types may be disrupted. -11- B. Man-Made Hazards Hazards produced by man vary as greatly as man's technology. Potential threats to safety can come from explosions, transportation accidents, chemical and nuclear accidents, crime, or even war. The principle man-made safety hazards which the USDCESO has prepared natural disaster readiness outlines for are: 1. Chemical Accidents - Many of the chemicals used in today's society are very injurious and can easily produce a major disaster. High- ways, manufacturing plants, warehouses, and railroad right-of-ways are all possible areas that could be adversely effected. The probability of occurrence for chemical accidents is rated as low, according to the USDCESO. 2. Explosions - Sources of explosions and their magnitude can vary greatly. They can be connected with industrial areas, pipelines, chemical and petroleum production and storage areas and transport accidents. Such incidents could represent a major safety hazard to many who live or work in these areas. The probability of occurrence is low in Carlsbad. 3. Power Blackouts - Large area power losses can be anticipated in the future. Possible adverse results of a power blackout would be: lack of adequate power to run hospital operations; failure of sewage treatment pumps resulting in sewage overflows; failure of traffic signals and elevators; emergency medical problems for patients and -12- nursing homes dependent on electrical power; severe limitation of gasoline for public comsumption. The probability of occurrence for a power blackout is evaluated as low at this time. 4. Radiation Hazards - Because of the increased uses of radioactive substances, hazards connected with radiation have increased greatly. The probability of a radiation disaster is rated as high. Probable geographical areas that would most likely be affected in and around Carlsbad are main highways, industrial areas, hospitals, research labs, institutions, transport terminals and power plants using nuclear fuel. Small area contamination is much more likely than contamination of large areas, but consequences would be severe. 5. Transport Accidents - Transport accidents can occur on rail lines, within airport flight paths, on freeways and highways and at sea. Such accidents can include many of the other man-made hazards such as explosions, radiation hazards, chemical accidents, oil spills, etc. The probability of occurrence is evaluated as high. Natural safety hazards such as fog or rain greatly increase the disaster potential of transport accidents. 6. Water Shortage or Contamination - The probability of occurrence of water shortage or contamination is low, according to USDCESO. Water shortage would most severely affect fire suppression capabilities, but could also adversely affect normal industry, business and hospital operations. Water contamination caused by chemical accident or sabotage could cause a wide-spread health emergency. -13- 7. Air Pollution - A severe air pollution alert could cause County- wide respiratory casualties, especially if such an alert occurred in conjunction with a severe fog. The probability of occurrence of such an alert is low. 8. Man-Made Fires - Man-made fires may include single or multiple arson fires or they may be unintentional or accidental fires. The probability of occurrence for man-made fires is low. 9. Crime and Civil Disorder - The probability of occurrence of a major civil disorder is low. The incidence of crimes against persons has increased greatly over the past few years. These crimes are increasing at a much faster rate than the City's population increase. New efforts of counteractive approaches and strategies include the utilization of "defensible space" and improved security hard- ware at the openings of individual buildings. -14- III. POLICIES AND ACTION PROGRAMS The City of Carlsbad recognizes all natural and man-made hazards evaluated in Section II of this Element and that efforts can be undertaken to prevent or mitigate the consequences of the known safety hazards within the community. The probability of occurrence of many of the hazards can be greatly reduced by introducing safety considerations early into the planning process. The impact of others, although difficult to prevent, can be greatly reduced by proper emergency preparedness. -15-. A. Fire Hazards Policy 1: The City shall seek to reduce fire hazards to an acceptable level of risk. Action Program 1.1: Advocate and support revisions in the State Penal Code to impose criminal liability on property owners for structure fires resulting from identified and uncorrected fire hazards. Action Program 1.2: Advocate and support State legislation which would provide tax incentives to encourage the repair or demolition of structures which could be considered fire hazards. This legislation should also allow for the nonassessment of major fire prevention improvements made to structures under Fire Department supervision; including sprinkler systems, early warning fire detection systems, etc. Action Program 1.3: Develop formal programs that provide for adequate fire inspection of structures within the City. Action Program 1.4: Encourage the International Conference of Building Officials to continue to make changes in the Uniform Building Code that act to improve structures from a fire safety stand- point. -16- Action Program 1.5: Adopt a Master Plan for Fire Protection Services. This Plan should include such things as facility locations, manpower and equipment standards, enforcement policies, etc. Action Program 1.6: Develop and adopt City ordinances that: a) Define "fire hazard areas" and "fire hazardous structures". b) Require roofing material to meet specific fire safety standards in all fire hazard areas. Action Program 1.7: The City shall: a) Conduct an inventory and evaluation of fire hazardous structures to include identification of building occupancy type, value and age. b) Establish priorities for the renovation, demolition, or necessary occupancy reduction of designated fire hazardous buildings. Action Program 1.8: Coordinate and integrate fire prevention programs with the County fire services coordinator when such action would be in the best interest of the City. Action Program 1.9: Work toward the establishment of a centralized and automated fire water distribution control system. -17- Policy: The City will consider in land use decisions, site con- straints in terms of fire hazards. Within designated areas where population or building densities may be inappropriate to the hazards present, measures will be taken to mitigate the risk of life and property loss. Action Program 2.1: Identify and classify fire hazard areas of varying severity and specify the conditions under which development and use of these areas should occur. Action Program 2.2: Review and update existing land division regulations, zoning ordinance, and other planning implementation regulations as they relate to the Public Safety Element. Action Program 2.3: Expland the City's data base on fire hazards in- cluding the history of past fires, potential fire, hazardous conditions and new techniques in fire suppression and prevention, and related disciplines. Also utilize other available data bases such as the State's recently initiated California Fire Incident Reporting System (CFIRS) program. Policy 3: The City will support the improvement of the delivery of fire protection services through functional cooperation of fire aqencies. B. Flood Hazards Policy 1: The City will establish standards and criteria to reduce flood hazards and implement them by adopting new codes and ordinances or strengthening existing ones. Policy 2: The City will continue to pursue flood control programs through such means as: application of the grading ordinance, the flood plain overlay zone, and the recommendations of the Open Space and Conservation and the Geologic and Seismic Safety Elements. Action Program 2.1: Establish programs and schedules necessary for the construction of storm drain systems in the City where such systems are non-existent or inadequate. Policy 3: The City will seek the cooperation and coordination of all jurisdictions and agencies involved in the mitigation of flood hazards such as the San Diego County Flood Control District. -19- C. Crime Prevention Policy 1: Encourage and support continued research and the use of new design concepts and technological improvements for the prevention of crime. Policy 2: Encourage crime prevention through the planning process by establishing specific design criteria and standards to be used in the review of land use development. Action Program 2.1: Authorize and encourage representatives of the Police Department to participate in interdepartmental conferences to review specific land use development proposals. Action Program 2.2: Maintain and update guidelines for the utilization of street and public building lighting systems that conserve energy as well as help in crime prevention. -20- D. Health and Safety Hazards Policy 1: The City will continue to pursue airport safety programs within the Palomar Airport flight path through such means as enforcement of the "Non-Residential Reserve" program defined in the Land Use Element, support of the recommendations contained in the Palomar Airport Land Use Plan prepared by the Comprehensive Planning Organization, and by requiring site development review of affected projects. Policy 2: The City will maintain and periodically update standard design criteria for the design of public works improve- ments in the City of Carlsbad. Action Program 2.1: Maintain and update the City's Standard Design Criteria as appropriate information becomes available. These criteria should reflect minimum standards for street designs and peak load water supply and fire flow requirements. Policy 3: The City will support the work of the San Diego Air Quality Planning Team in its preparation of the San Diego Regional Air Quality Strategy. Policy 4: The City will continue to pursue health safety measures through the application of the City's Zoning Ordinance and through cooperation with the County's Department of Public Health. -21- Policy 5: The City will develop and maintain safety criteria related to the public hazards presented in this Element. Where it has no authority, the City will encourage and support other agencies in the development of strict safety standards for the protection of all the citizens of Carlsbad. Policy 6: The City will utilize health safety considerations in the planning process. Action Program 6.1: Develop and adopt new - ordinances or amendments to existing ordinances and other land use regulations that will mandate the review, evaluation, and restriction of land uses that may be subject to undue risk, These regulations should include requirements specifically relating to geologic, seismic, flood, and fire hazards into subdivision, grading, zoning and other ordinances where needed. Action Program 6.2: In the development of a public or private project, the potential of significant geologic, seismic, soils and hydrologic problems should be resolved at the earliest stage of project approval rather than after a project has become fully committed. Studies should be made of geologic and other health and safety considerations in all Environmental Impact Reports. Action Program 6.3: The Capital Improvement Program for the City should include capital improvements deemed necessary for the mitigation -22- and control of health and safety hazards which are determined to be unacceptable in relation to the risks involved. 5*! E. Emergency Services Policy 1: The City will encourage and support a comprehensive emergency medical services system which coordinates regional resources. Action Program 1.1: Work with the County Office of Emergency Services in their preparation of: a) A coordinated regional resource utilization plan. b) County-wide ambulance standards for general operation, personnel, training, equipment, and area of response. c) An ongoing Poison Information Center. Policy 2: The City shall encourage and support continued research and use of new technology to achieve an optimal level of emergency mr1ir1 cprv4rpcz -24- Action Program 2.1: Encourage and support the establishment and continual improvement of a County-wide emergency telephone communications system (9-1-1) in order that there be a minimal time lag between the occurrence of an incident and the dispatching of emergency units. Policy 3: The City will encourage and support measures which are necessary for the upgrading of ambulance services and training of emergency medical personnel. Action Program 3.1: Encourage the Office of Emergency Medical Services to coordinate with all educational institutions which offer Emergency Medical Technician training to achieve uniform training standards for the delivery of emergency medical services. Policy 4: The City will maintain and periodically update the City of Carlsbad Emergency Plan. Action Program 4.1: Maintain and update emergency contingency plans as appropriate information becomes available. These plans will refine the overall City Emergency Plan to include specific emergency service requirements and activities for potential disasters such as flooding due to dam failure or tsunamis. Policy 5: The City will continue to support and expand public informa- tion programs related to the public hazards presented in this Element. Where it has no authority to direct, the City will encourage and support public safety programs. -A-1- Appendix A: Glossary of Terms Acceptable Risk - The level of risk below which no specific action by local government is deemed to be necessary. Avoidable Risk - Risk not necessary to take because individual or public goals can be achieved at the same or less total "cost " by other means without taking the risk. Defensible Space - Concept of urban space designed to inhibit crime by utilizing the proprietary concerns of residents. Key ingredients in designing defensible space include: improving the natural capability of residents to visually survey the public areas of their residential environment; enhancing spheres of territorial influence within which residents can easily adopt proprietary attitude; and enhancing safety through the strategic geographic locations of intensively used community facilities. Fire Hazard - Any condition or action which may increase the potential of fire to a greater degree than that customarily recognized as normal by official agencies responsible for fire prevention or suppression; or which may obstruct, delay, hinder or interfere with the operations of the fire agency or the egress of occupants in the event of fire. Fire Hazardous Areas - Any land covered with grass, grain, brush or forest or land situated close enough to such areas that are seriously exposed to flying brands, situated on slopes or isolated in such a manner that a fire would be difficult to suppress or would result in substantial fire or erosion damage. NIVA Fire Prevention - The function of approving building plans; inspecting buildings, their contents, and their fire protection equipment to eliminate or minimize hazardous conditions or operations; public education; and investigating the causes of fires to serve as a guide for future fire prevention priorities. Fire Protection Services - Any official agency charged with the responsibility of protecting life and/or property through such operations which may be necessary to extinguish or control any fire, perform any rescue operation, investigate suspected or reported fires, gas leaks, or other hazardous conditions or situations. High Occupancy - An occupant load (capacity) of 300 persons or more. Unacceptable Risk - Level of risk above which specific action by government is deemed to be necessary to protect life and property. EXHIBIT 1 to, Resolution Nci'3 66 il CITY OF CARLSBAD GENERAL PLAN CIRCULATION ELEMENT • (HNAL DRAFT) '¼ • • •• May, 1975 • • • Prepared By CITY STAFF • and • , • • •• LAMPWN AND ASSOCIATES V TABLE OF CONTENTS I. 'INTRODUCTION A. STATE LAW - CIRCULATION ELEMENT 1 B. SCOPE AND NATURE OF THE CIRCULATION V ELEMENT .. . 1 C. RELATIONSHIP TO OTHER ELEMENTS 1 H. GOALS . V V V 2 V • III. POLICY . V •V • 2 IV. MOBILITY • V • 3 • .. A. NEEDS • V 3 B. MODES OF TRANSPORTATION 3 V V • V. CIRCHLATION PLAN 6 • . V A. GUIDELINES • : ••• 6. B. STREET FUNCTJONS & STANDARDS VI. ENVIRONMENTAL IMPACT CONSIDERATIONS V V • 1 V 0 • V V CIRCULATION ELEMENT I. INTRODUCTION . . . The primary function of the Circulation System is to provide service to the land uses expressed in the General Plan. Traffic facilities are. but one element in the overall fabric of the community, and their environmental effect is all too often. detrimental. A well-conceived circulation plan will designate a system of streets and highways which will provideadequate links within and between the region and the City, as well as between the components of the Land Use Element, and will meet the transporta- ti-on objectives of the community. These objectives, in turn, assst and contribute to -the achievement of the overall economic, .physical,-and social goals of the community. The circulation system is a primary determinant of the pattern bf human settlement. It has a major impact on the areas and activities which it serves, on community cohesion, and on the quality of human' - life. Economic activities normally require circulation for materials, products, ideasor •employees, and thus the viability of the communitys economy is directly affected by the Circulation Element. The circula- tion system is one of the chief generators -of physical settlement • -patterns, and its location, design and constituent modes have major impacts on air quality, plant and animal habitats,' community appearance and other environmental components. . A. STATE LAW C1RCULAT!ON ELEMENT - Section 65302(b) of' the Government .Code requires a Ciculation El -ement of all city and county general plans, as follows: A circulation element consisting of the general locations' • and extent of existing and proposed major- thoroughfares, transportation routes, terminals and facilities, all correlated with the Land Use Element of the Plan. •B. SCOPE AND NATURE OF THE CIRCULATION ELEMENT. 'The Circulation Element of the Carlsbad Gene rl Plan. (1) Jdentifies the needs and issues concerning transportation in and around Carlsbad, (2) states t-he goal.s and policies based on the total circulat ion needs f the community, (3) describes the mobility needs and the various • modes '.f transportation, (4) presents guidelines for the proposed circulation plan (5) depicts functions and standards for the location, design and levels of service of the Street facilities, and (6) contains a map showing the proposed Circulation Plan and a graph showing the Movdment-Access Functions of streets. C.' RELATIONSHIP TO OTHER ELEMENTS Although the. Circutat ion Element-rnust include input from all other General Plan Elements, it is most .closely related to and has been - I 2 • Carefully' coordinated with the Land Use Element. All circulation • facilities have been designed around the General Plan's proposed land use patterns and these, in turn, have also been kept in scale with the circulation system. In Carlsbad, the Circulation Element is aimed primarily at providhg' for the community needs and improving and eliminating points of congestion within the system. Proposed. streets or highways outside the City in currentl-y undeveloped areas are not intended to encourage • or influence the direction of future growth but, rather, to provide the needed facilities when such growth occurs, in harmony with the Land Use Element and other related elements of the General Plan. The 'Cli-culation Element has been coordinated closely with the Scenic Highways Element. These two elements include inherent differences related to transportation. However, they also both depend greatly on the adjacent land uses for their, efficiency and value, to the community. 'General circulation in Carlsbad.and scenic highway' systems have been designed to comçflement each other. II. GOALS Provide a comprehensive circulation system to serve the present and future needs of Carlsbad and the greater San .Diego County area. This system will require a balance among travel mQdes based on safety, convenience, attractiveness, costs, social impacts and travel needs, of the citizens of Carlsbad. . II!. rOLICY . S •S • • A. '.Improve operational efficiencies of streets by using modern design standards and the latest available technology.. Include provisions for emergency and public service vehicles. B. Construct each addition to the circulation system so that it will provide a usable link in the total system. C. Minimize disruptive effects on human life caused by the construction • . and expansion of transportation facilities .and utility services. •D, Provide bikeways for school routes, commuter routes and recreation'àl uses. Also, make provLstons for bikeways in virtually all new major, secoica'y and scenic roadways. Coordinate implementation of bkeways with Parks and Recreation element. C. Encourage and assist in the planning and• development of a • regional mass transit system with other appropriate agencies. • F. Provide adequate traffic safety measures at all intersections involving vehicular, pedestrian, and/or railroad traffic. G. Coordinate the circulation plan with the development or the • cenic route program -(covered exclusively in the Scenic High- ways Element) for the preservation and enhancement of the scenic qualities of selected corridors. • . IV. MOBILITY A. Needs ithough there will be additional population growth, the Land Use lement indicates that the Carlsbad area will continue to be predomin- antly loi density in nature, with higher densities along the coast. New residential development can be expected to come in the form of low-rise apartments, condominiums, or townhouses, as well as tradi- tional singleTfamily homes. Many of these, especially in the hill- side areas, will be clustered or a part of planned unit residential developments. The basic'mobility needs of the future aro generally agreed to be: 1. Personal: The individual and family needs for transportation to and between areas of employment, shopping, education church and medical facilities. 2. Recreational: The need of the residents and visitors for access to points of interest and recreational areas. 3. Commercial: The needs of retailers to transport goods to their places of business and to deliver merchandise to homes or other purchasers. 4. Industrial: The need of the industrialist to bring raw materials to his. facility and to transport the finished products within and beyond Carlsbad. 0 B. 1. Modes of Transportation Freeways: Controlled-access freeways, the San Diego Freeway (Interstate 5) and Vista Freeway, (State Highway 78), constitute the principal, regional system and form the backbone of the traffic •network. The location, design and construction of the freeway system is a responsibility of the California State Department of Transportati on. 2. Streets Street standards presented in the Circulation Element • for highways identified on the Circulation Element Map should • prove .adequate to serve anticipated volumes of traffic. However, unusually heavy traffic demands may require that parking lanes be • removed along some highways in the already developed portion of the City, pccularly in commercial and industrial areas. This • alternsiive appears realistic in light of the fact that the pri- mary purpose of arterial'-highways is to move traffic. In a few cases, roadside development excludes the possibility of further • street widening and normally creates additional demands for access. By removing parking and providing left turn lanes, it is possible to increase highway carrying capacities of -arterial surface streets and highway's by approximately twenty-five percent. • Railroads: An average of six passenger trains and six freight 'trains of the Santa .Fe Railroad daily traverse the City of Carls- bad. • 4 Although there is no passenger depot currently in use in Carlsbad, there is periodic discussion that provisions be made to restore the old Santa Fe depot and provide for future development as a commuter station-. - Transit Service: A recommended bus transit plan for North County is being implemented so that over 70 percent of the study area population will be within a quarter mile walking distance of--a bus line. This plan includes three levels of improved transit service--local, intercommunity and regional service. To 'insure efficient and economical operation,, the plan recommends that the entire North County Transit System be managed and operat- ed by the Oceanside Transportation System. Each North County jurisdiction may contract with' the City of Oceanside for the type and level of local service it desires, plus its shai"e of the inter- community service. Park and ride facilities shall be planned when warranted. 0 5. Air Travel: Pal'omar Airport is presently operating as. a general service airport near the City of Carlsbad with a predominant amount of its-current 210,000 annual operations being single • engine aircraft. The airport is primarily used for recreational and business 'purposes. With the forecasted increase in the • neighboring population, a doubling of-aircraft operations is expected, as this type of facility is dependent on the suburban population. The aircraft utilizing the airport are primarily single and twin engine planes. . • Pedestrians: Th'er,e are ways to make walking more pleasant 3rd .safer. One way 1s the separation of pedestrian and vehicular traffic in areas such as malls or enclosed shopping centers. • Parking structures decrease th& distance from car to store, thus • making the trip more enjoyable. In the commercial areas, pedestrian. moVement can be improved through other means such as providing additional parking in, strategic locations, increasing sidewalk widths and adding land- scaping or other types of visual barriers between people and vehicular traffic. The construition of parks increases pedes- trian movement and enjoyment. Such parks are useful as visual relief areas and rest. stops or other purposes such as lunch time get-togethers, or conversation and meeting places. - 7. Equestrians: Equestrian trails should take advantage of natural areas of scenic, educational, or unique value. Ecologically significant areas, as pointed out in the Open Space and Conserva- tion, and Parks and' Recreation Elements, often provide excellent opportunities for the development of equestrian and hiking trails. Utilities easements and right of way also may be potential trail routes, as are railroad right of ways. Bicyclists: It will be -necessary and desirable to develop a comprehensive bikeway System which includes bot-h the -recreation and transportation aspects. of bicycle use.' The growing use of the bicycle, particularly for short andintermediatetrips, is proving to be a viable altrnative to the automobile. If properPy planned -routes are provided the bicycle can help reduce traffic concestion (traffic volumes5 and air pollution. .. . .. P Varipus terns pertaining to bicycle facilities are used in bicycle planning. ,General'ly, the terms "bikeway" and "bicycle route" are used to denote any facilityspecifically designated for bicycle travel. Bicycleroutes can basically be divided into three class!- fications: I. Shared R6ute: a part of the roadway which is identified . by "Bike Route" guide signing only. There are no special lane markings, and bicycle traffic shares the roadway with motor vehicles. . S ii. Bicycle Lane: a part of the roadway in which the lane is designated bysigns and painted.-markings on the pavement. This route is also to be shared with moving motor vehicles. iii. Bicycle Path: an exclusive or semi-exclusive right of way 'for use of bicycles separated from roadway. This route may parallel ,sidewalks, Lut should be physically separated from pedestrian movement where possible. (Crossflows .by pedestrians añd'motorlsts are minirnizèd.whenever possible.) On the "Bicycle. Routes" map, (page 1 14) bicycle corridors are shown • rather than specific locations and classifications. As the City develops, it will be necessary to prepare more specific plans for indvidual bicycle routes. In. the meantime, the following course Of action for establishing bike routes,within the City should be implemented: • . a. Virtu11y all the arterials (prime, major and secondary) on theii'culat ion system should incorporate bike routes within or near their rights of way. This can be accomplished • by either constructing a separate bike path-paralleling the roadway (minimum eight feet wide for two-way bike traffic), - or by painting a bike, lane (minimum five feet wide) on 'each side of the arterial, in place of the on-street parking.. If parking is to be allowed, additional roadway width will have to be supplied. However, for safety, parking should be discouraged where bike routes are proposed. b. If parking were .eliminated on some of the existing arterials, bicycle 'lanes and/or left turn pockets could be painted. •' '. c. Separate bike trails (eight feet minimümwidth) could beconstructed aloflg various utility easements, and could be designed within planned communities and new developments. d. The bicycle routes for the City include those depicted in San Diego County's "1990 General Plan - Circulation Element - Bicycle Network".. The roads which include these routes are Carlsbad Boulevard, El. Camino Real, Palomar Air- port Road and Rancho Santa Fe Road. . Coordinate the development of bike routes with the Park and Recreation element of the General Plan. f. Connect exiting cultural ,and educational facilities 6 by bicycle routes and provide routes for future facilities. g. Utilize State and Federal monies for acquisition and construction of bicycle' routes. h. Locate bicycle routes along designated scenic highways whenever possible. I. All bicycle routes shall be designed in accordance with the "Bike Route Standards", Section 7-1000 of the State of California Highway Design Manual. • V. CIRCULATION PLAN . Introduction ,. .• The Circulation Element consists of a narrative (text) and.maps (page 13and lLi). Since all of these constitute the Circulaton Element, one should not. be amended without considering the other. The local circulation plan should serve.as.an integral part of the broâder regional transportation network, including a balanàe between various alternate modes of transportation such as highways, mass ..ransit, air, rail and water facilities that will satisfy local and • regional transportation needs and the needs of various age and socio- economic groups. .. . Guidelines • • • 1. New freeways pnd major streets should not bisect or isolate indi- vidual communities, neighborhoods, the City and business areas, parks or other homogeneous areas. . • 21 Coordinate the distribution, character and intensity of all land • uses with the, Land Use Element to preclude the increased levels of traffic which would be generated beyond the capacity of the • existing or planned street system until such time as adequate • facilities can be provided. • Route major thoroughfares and plan. road construction schedules so that development' pressure on undeveloped areas is minimized. I; •Minimi.ze freeway and prime arterialaccess to encourage their use as throughways rather than an access to adjacent pi-operties. • • • . • • • I • • . • • 7 . Minimize private driveway access onto both major and secondary arterial roads. 6. Design roads so as to minimize conflicting traffic movements such as turning, curb parking, uncontrolled access and frequent stops. 7. Safe, adequate, and attractively landscaped off-street parking facilities should be provided in residential, commercial, in- dustrial,. institutional and public areas. 8. Assure sufficient off-street parking with all new developments and encourage joint public-private efforts to improve parking and circulation conditions in existing developed areas. 9. Provide adequate sidewalks and other pedestrian ways. All new construction, including any -future redevelopment, should consider • the amount and design of pedestrian spaces En. relation to the land uses and parking facilities available. A concerted effort • should be made by the City, business establishments, and other interests to coordinate parking, loading, pedestrian-and vehicular movement in the Central Business District and other activity centers. 10. Minimize the number of intersections wherever possible. ir. Secondary arterials should form T-intersections with major arterials,whenever possible to provide for maximum capacity and 'to reduce the number of potential conflicts. . 12. fiscourage and minimize the use of residential neighborhood streets as thoroughfares. • a. Designate *truck routes for the use of commerëial and industrial traffic. . b. Prevent neighborhood through traffic by routing traffic to peripheral collectors or larger streets. c. Streets in residential neighborhoods should move the traffic • efficiently to and from homes in that neighborhood and not generate additional unrelated traffic because of its avail- ability as a "short-cut". 13. Construct roads following the natural contours to minimize ctits and fill-, avQid rid street patterns; •IJ-. P;ign roads .to enhance scenic areas; encourage roadside and median landscaping. • 1.5. Separate pedestrian, bicycle and vehicular traffic where possible. Also, establish a separate system of hiking trails, bicycle paths and equestrian trails from which motorized vehicles would be banned. 16. Protect existing railroad rights-of-wy as a land resource. 170 Provide railroad grade separations for safety and the reduction of the negative impact of noise on adjacent 'land uses. • 18. Provide' rovid adequate street safety ligttin. . . B, Street Functions & Standards Past practice- has been to establish arbitrary standards for right-of- way widths, pavement sections, parkway width, etc., for the various :Iassifications of streets. However, expeience has shown that better results can be gained from the consideration of established standards as being guides as to what is reasonable or desirable rather than as inflexible rules. Right-of-way requirements and necessary street widths are directly related to the function a roadway is to serve, to the type of abutting development, to the traffic volumes anticipated to be crried, and to the possible provision of facilities for other purpo.ses such as bikeways. The following is a description of the functions and standards of the various categories of streets into which Carlsbad t s circulation system has been divided: 1. Local Streets: The principal-purpose of a local street is to pro-' .vide vehicular, pedestrian and bicycle access to property abutting the public right of way, and moving traffic is only a secondary function of the local Street. Since land service is its primary purpose, the local Street should not carry through traffic; and buses and heavy trucks should be excluded except where the local street is in a commercial or industrial area of the City. • Cross secti:ons'of local streets vary with building practices, abut- ting land uses, parking requirements, planting of Street trees, and other considerations. Where both sides of the Street are served qually, t.he common right of way width for a local street is 60 feet with a pavement width 36 feet in single-famil residential areas w-ith scattered parking. In multi-family areas where there is more or less continuous parking throughout the day and night, a minimum • 0f..L10 feet of pavement is requirod in order that room for two hiov- • i'ng lanes of traffic be available. In commercial areas, a minimum • pavement wid.th of hO feet is considered necessary as well, while in industrial-areas consideration' of the predominant type of trucking and whether or not maneuvering of trailers must be providd for will dictate the width of pavement to be provided. When pavement Widths exceed hO feet on local streets, right of way • must be increased above 60 feet correspondingly. . . The overall system design of local streets ,can greatly affect traf-. fic since unduly long streets build up traffic volumes and cross • streets and intersections with acute angles are. likely to cause • accidents. Good practice precludes carrying local streets into • arterials since such intersections create unnecessary friction points • and cause accidents and related congestion on the arterials. A far iter approach is to bring local streets into collectors which then 'feed into arterials. . • - 2: •Collector Streets: The' collector street is intended to serve as the connecting link to handle traffic between local streets and the • secondary and major arterials. Additionally, collector streets provide access to abutting property and will include those streets which provide for traffic movements within a relatively small area such as' a residential neighborhood. Generally speakinq, traffic • using the collector streets will have an origin ora destination wi.thin the local area. • ' 9 Collector streets are anticipated to carry traffic volumes of up to 5,000 vehicles per day. A collector Street will normally have one moving lane in each direction and may provide for on-street parking; therefore, .a minimum pavement width of 40 feet is re- commended, which, can be accommodated within a.60 foot right of way. In areas of the City where collectors, or sections of collectors are anticipated to carry traffic volumes greater than 5,000 .vehicles per day, pavement widths and rights of way may * be increased to facilitate the additional traffic. Collector streets are not illustrated on the circulation element map since they are only locally important and are related to the design con- cepts utilized within a neighborhood. 3. . Secondary Arterials: The main function of a secondary arteial is to conduct traffic from collector streets to and from major arterials or Freeways. Land access is only a minor function of a secondary arterial and, therefore, parking should be discouraged and residential- buildings should not have driveways entering a secondary arterial. Additionally, it is good practice to avoid. situations where secondary arterials cross major arterials to form a continuous system, since this might result in a tendency for traffic to use the secondary arterial in lieu of a maj•br arterial for long trips. Traffic volumes in the range of 5,000 -. 20,000 .vehicles a day should be accommodated by secondary streets. Secondary arterials usually have two moving lanes and one parking lane for each direc- tion of flow and, therefore, require a pavement wdh of 64 feet which requires a right of way of 84 feet. Where necessary, a secondary arterial can fulfill the role of a major-arterial through the expedient of prohibiting on-street parking and establish- ment of a central median divider, eitherraisedor.painted. lj • Major. Arterials: The function of the major arterial is to provide • for the movement of traffic. The major arterial carries traffic - gathered from'collector streets and secondary arterials through- out the community to other collector streets and secondary arteri- als or to the freeways within or surrouding the community. Land access and parking should be provided by other classifications of streets. Traditionally, however, this separat,ion between the movement of traffic and the need to serve .adjacërit land uses has not been well recgnized. To encourage this recognition and to move traffic efficiently and safely, adequate medians should be - provided and the number of driveways and cross street intersections should beminimized, on-street parking shbuld be eliminated where- ever possible, and off-street parking for adjacent development should be provided. Traffic volumes in excess of 20,000 vehicles a day necessitate the construction of major arterial streCts to carry such volumes safelyand efficiently. Major -arterials will generally have Four ianes of moving traffic and, depending upon adjacent development and service needs, may or may not have parking lanes. Where parking lanes are provided, major arteria1swill have an 82-Foot wide curb separation 0 ithin 102 f9ot right.of iay.. An. 18 foot median divider my be provided. - 10 A divided arterial provides an outstanding opportunity to improve the appearance of the streetand of the community by attractively landscaping the dividing median. 5. Prime Major Arterials: The primary and.most important function of prime major arterials is to move large volumes of vehicles - including automobiles, trucks and buses; and, as its name implies, it should handle longer through trips. The facility will be able to carry traffic volumes Tn excess of 40 3.000. vehicles per day. Prime major arterials will be able to be expanded to six lanes or moving traffic. This facility may be designed with a curb separation withi-n a 126 foot right of way. Also included is an 18 foot median divider. 6. Freeways: The term ufreewayl! means a.n access-free, high speed road with grade separated Interchanges; and it has only one function- to carry traffic. It is intended to expedite movement .between relatively distant areas in a community, metropolitan area, or region. The freeway 1sa major visual .element in the City and ,in cut, at-grade, or on fill, it constitutes a major barrier separating land uses on one side from those on the other. Planning, design, and construction of freeways in California are usually undertaken by the State Department of Transportation and, as a result, fall Outside the jurisdiction of a city. Nonetheless, the City :hould play an important role in the selection of freeway routes, in the determination of the number of lanes required to carry projected traffic loads, and encouraging the installation and maintenance of attractive landscaping so that the freeway right of way can become integrated with and be an attractive part of the community visual scene. The Street cross section standards discussed above are suggestions which will provide the quality of traffic flow and capacity that future traffic volumes will require. All intersections of major and second- ary arterials will require signalization at an early date and the provision of left turn lanes will-subs.tantially increase capacity. Another concept which should be considered with respect- to the inter- section of major and secondary arterials is the acquisition of addi- tional right of way and construction of widened pavements at the approaches to intersectFons so that separate turning lanes, both for left and tight turns, can be installed with the resultant material increase in traffic carrying capacity. - The above recommendations illustrate reasonable and desirable standards, but it should be recognized that compromises are sometimes necessary in order to maintain a practical approach and to accommodate the variations which are a part of community growth. he accompanying chart (page .12) illustrates flie rel.ationshfp between the: niovment and access Junctions of the various components of a circulation system. The majpr thrust of the chart is to show that, as the movement function or volume o1 traffic handled increases, the amount of local access (driveways and number ofintcrscOtions). should be reduced. . . - 11 r xce pt where street rights of way already ex.ist, the alignments of reëts shown on the circulation system map (page 13) are general fly, and the-map is not intended-to portray a specific location. Precise alignments can only be developed after complete and detailed design studies have been undertaken. VI. ENVIRONMENTAL IMPACT CONSIDERATIONS . Two types of environmental impacts are generally attributed to trans- portation systems. One is the actual phys.ical impacts created by the instllatio.n and/or usage of the system itself. The other is the potential growth-inducing impact created by improved accessibility. The physical impacts of installation are priiarily linked to the exist- ing environment that would be disturbed or eliminated within the pro- posed right-of-ways. Environmental factors that should be considered at this stage of the system's development include, but are not limited to, .topography, flora, fauna, soil stability, archaeology, hydrology, and seismic hazards. Because of the general nature of this Element, these types of impacts cannot be adequately evaluated. The physical impacts normally attributed to the usage of the different systems include, but are not limited to, air pollution and noise. The extent of these impacts, that is, the amount of usage, is primarily determined by the intensity of the surrounding land use. The effects of these impacts also depend on what the surrounding land uses are. These land uses are governed largely by the Land Use Element of the General Plan. The final impact generally attributed to transport systems is growth inducement. There is no question that increased accessibility to an .area' increases the potentiality, of development in that area. However, this fact does not necessarily imply an adverse impact. The Lahd Use Element of the General Plan designates today's concept of the ultimcte land use pattern of the City. Programs are offerred within the Element that would guide the City in attaining that end product 'In the most efficient and beneficial manner. Therefore, areas that are prime for development, for all, of the different reasons, can be influenced by this factor of increased accessibility. Obviously, then, transport 'systems within areas not ready for development can be deterred until the appropriate time.' . .. . As mentioned here, and earlier in this Element, there is a very strong relationship between the Circulation and Land Use Elements of the General, Plan. The Land Use Element was developed over many months 'with maximum citizen input. Numerous alte'rnative plans were developed and evaluated. Each alternative land use pattern wa's coordinated with an appropriate circu,lation plan. This Element represents the final circulation plan developed as a result of the adopted Land Use Plan. As a"result of the necessity of an Ongoing review process to keep the General Plan current, the following polities are hereby established: (1) Upon completion ard adoption of all the mandatory Elements of the General Plan, the City shall prepare a coniprehnsivc environ- mental impact report for the entire General Plan and process it according to the pro visions of the City 'oi Carlsbad Environmental Protection Ordinncc of 1972 and the CaliforniaEnvironmentaI Quality Act. 16. (2) The Cit y shall require pecifJc environmental reviei, according to the provisions of the City ofCarlsbad Environmental Protection Ordinance of 1972.and the California Environmental Quality Act, prior to the construction of any of the- trar(sport systems recommended in this Element. . . C) 0 C aasc.ra,:wi4c . -u T- - - frE4.#gSl11Tfl II r t IlL fIt•ii!flTfl fl • O crr c'r rrrrj TrPt!p Z L. g*%L•::.. OPEN SFACF FUNCTIONS • : • ---.- n-i.irij M . • MANAGED RESOURCE ;t1 L HEALTH, WELFARE ( PRODUCTION J\ . AND WELL-BEING ; SK 14 w Ix : i L- 04 0 .J ?• .- % a. ca 0.. C.. C: < < . 1 .-. • :, : 0 0 0 : 14 < 1 TECHNIQUES 94 94 ACQUISITION OF FEE _______ _• __E_ — - - _. I iI_ OIUPC(S ii - — 0 — — &0 LOQI0l0 Ji •_j.Q PLPCSL FOR ALJI 0 0 0 0 1C) 0 () C) jJ SIThLIF 0 lo 0:0 :o 0 0 q 0 0 0 10 0 0 - 0 101 O0 . 01, 0: 0 0 0 __ —_— 0 0 0 0 O C) 0 1 1 0 1 0 1 01 01oo C) O0 QcL. 0 010 C) — •TMLL€Q..: S j — () C) C) (flO JO OIUO - - t.CJIS!TV)N OF LESS V i• 1___L..-__._._ .scNxcc;sEr'. EP — C) S~ QQ 0!0 V 0 00 k.- - .QJQ ..Q. c _Q_ o 0 0 00 0 0 0 0 •, QPOTOPUCH j I . 0 ..,...•J.. 0 C) - . - rOVZ:NA;i,:S DELI) OThVLONT RIGiiTS 1() 50 0 - 0 - — • SUBDXVISIO:i ORDI ACS REQUIKi,.( LAUD Z'ICAitCt I ,lUILUiG PIIISICAS.. ACTSPPES — ( ( — ("t FLOOD PtJt,. 0 0 0 0 (3 0 0 0 C) () C) AGRICULTURE 0 to 0 -04E) 0 0 0 0 0 0 0 COSATL0 OFLN SPM.E C) C) 0 C) 0 C) O 0 Q 0 TAX INCENTIVES .LA Co. ATi.).. ACT CM'1TA. x .r.vx;s xlcM!: rix n1Tn Q (j () I 0 ( 0 I I () I:;IlLT1C. FROM I',AT IOU — ---a - — -- -- — .a — — - — ---4 .- 9 4. SITE Airport CASiE NO. PDIGPC 13 VLO 'Orr APPLIICANT City of -Carlsbad VICINITY MAP Loll CAT I (D IT It I - CITY OF CARLSBAD GENERAL PLAN LAND USE ELEMENT October 15, 1974 Prepared By CITY STAFF and I City of Carlsbad Planning Commission LAWMAN AND ASSOCIATES Case N0.sez Exhibit No- ----- s.-- Date J,LcL7&' t_ r I May 14, 1974 Honorable Members Planning Commission and City Council City of Carlsbad Since late September 1973, many interested citizens have worked diligently to aid the City of Carlsbad in the revision of the ex- isting General Plan and in the reconciliation of land uses as re- quired under AB 1301. As you well know, land use planning is a constantly changing part of our life. The first Carlsbad Plan was prepared by Gordon Whitnall and Associates in 1958 and at that time Carlsbad's city boundaries encompassed 5261 acres or 8.22 square miles. Utilizing the Whitnall Report as a base, the plan was updated in 1965 with the assistance of DMJM. The City boundaries then were 20,647 acres or 32.3 square miles. The plan presented by the Land Use Committee encompasses 23,026 acres or 36 square miles. The changing size of the City has been a major factor in the need for revision. The boundaries are well established and the impact of annexations no longer the prime consideration in determining land use. The next phase would be the refinement and updating of those specific developments as they impact the total community. The Land Use Element and accompanying map relate to the total development of the community and this development can be translated to population. Any such translation must be accomplished carefully and in proper comparison with the land area available. The Committee expended considerable amount of time analyzing the population den- sities of outstanding communities in California for the purpose of establishing criteria for Carlsbad. It is anticipated that the major- ity of population growth will occur south of Palomar Airport Road. Appreciation is expressed to the Committee members for their interest, diligence and patience during the preparation of this plan. As might be expected, there were disagreements between members over specific issues. However, each person participated with the same goal maintaining Carlsbad as an excellent community in which to live, work and play. Respectfully submitted, aux, Jim Anderson Mignon Bowen Katiejean Capps Mary Casler W. Allan Kelly Perry Lamb Phil Lukei Don McClelland Cleona O'Bryant Gus Scurlock Jane Skotnicki 0 1200 ELM AVENUE TELEPHONE: CARLSBAD, CALIFORNIA 92008 (714) 729-1181 City of Carfihab June 24, 1974 TO THE PUBLIC OFFICIALS AND CITIZENS OF CARLSBAD:. On behalf of the Citizen's Land-Use Committee, I am pleased to sub- mit to you the updated Land-Use Element of the General Plan for the City of Carlsbad. The members of this Committee have worked inten- sively with the Planning Staff since mid-1973 to develop these docu- ments for your consideration. The final documents have been thoroughly reviewed by this Committee and we feel that their adoption and implementation will help guide future land-use decisions so that Carlsbad will remain as the finest balanced community and most desirable place to live in San Diego County. Sincerely, kAql~ x Chairman JM/vb ti I TABLE OF CONTENTS PAGE I. INTRODUCTION 1 A. STATE LAW - LAND USE ELEMENT 2 B. INTENT AND CHARACTER OF THE LAND USE ELEMENT 3 C. RELATIONSHIP TO OTHER ELEMENTS 5 II. GOALS 6 III. POLICIES 7 IV. THE PLAN 8 A. THE 16 YEAR HORIZON - 1990 8 B. DESCRIPTION OF THE PLAN 10 1. SATURATION PLAN 10 2. CITY FORM 10 3. GROWTH MONITORING PLAN 11 4. URBAN LAND RESERVE PROGRAM 13 5. IMPLEMENTATION 14 C. CLASSIFICATION 21 1. RESIDENTIAL 22 2. COMMERCIAL 24 3. PROFESSIONAL AND RELATED COMMERCIAL 27 4. PLANNED INDUSTRIAL 27 5. GOVERNMENTAL FACILITIES 28 6. PUBLIC UTILITIES 28 7. SCHOOLS 28 8. OPEN SPACE 28 9. NON-RESIDENTIAL RESERVE 28 10. URBAN RESERVE 29 TABLE OF CONTENTS (continued) 11. SPECIAL TREATMENT AREA 31 12. COMBINATION DISTRICT 32 D. CONSISTENCY 32 E. BOUNDARY DEFINITION 32 V. LAND USE GUIDELINES 33 A. GENERAL GUIDELINES 33 B. RESIDENTIAL GUIDELINES 34 C. COMMERCIAL GUIDELINES 35 D. INDUSTRIAL GUIDELINES 37 E. URBAN RESERVE GUIDELINES 38 F. LAGOON GUIDELINES 39 G. DEVELOPMENT GUIDELINES - UTILITIES AND PUBLIC SERVICES 39 H. DEVELOPMENT GUIDELINES - QUALITY OF SITE DESIGN 40 I. DENSITY TRANSFER GUIDELINES 41 J. SPECIAL TREATMENT AREA GUIDELINES 42 VI. ENVIRONMENTAL IMPACT CONSIDERATIONS 43 ENVIRONMENTAL IMPACTS OF THE PROJECT 44 • r 1 LAND USE ELEMENT 1. INTRODUCTION What we do with land is of great concern to everyone. Even on the City level, the destiny of a quarter acre of beach property can bring forth an incredible variety of viewpoints. Indeed, each fraction of an acre becomes more important as our urbanizing City increases in population and at the same time demands more space. Questions of land use and land use policy place a heavy responsi- bility on the decision maker, for he must consider not only the neighborhood, community, City and even the region at the current point in time, but also what effect the use will have on the future development of the area. Since the beginning of this century, government has become increas- ingly aware of the need to develop mechanisms for making decisions on land -- decisions which will consider both the most effective use of land at any one time and also relate to an overall "future" toward which the community would like to move. One of the important mechanisms which has developed is the General Plan. This document portrays the community's desired future through a series of goal statements, develops guidelines for achieving that future and suggests methods of implementation. The various "elements" which constitute the plan are related to each other by a series of policies which guide the decision maker in establishing positions on the key issues facing the City. These policies and guidelines repre- sent the commitment the decision maker feels will lead the City toward achieving its goals. What the Land Use Element states, then, must be seen in light of the entire General Plan of which it is a part and the General Plan must be seen, in California, in light of the State legislation con- cerning it. Much confusion has resulted from the fact that the planning enabling legislation, established in 1927, allows a wide plan by local jurisdictions. All too often, localities have adopted the Land Use Element of the General Plan, with little consideration for other important community needs, such as housing and open space. In recent years, the State has sought to stress these other needs by mandating them as elements of the General Plan. The Land Use Element is basically concerned with how and where people live, work, play and shop. The Land Use Element involves providing sufficient land for all the needs of the people over a long-term period, while at the same time preserving the quality of our natural environment. Thus, it also involves the establishment of the proper relationship between the living areas and the non-residential land uses. A. STATE LAW - LAND USE ELEMENT Government Code Section 65302(a) requires a Land Use Element of all City and County General Plans, as follows: A Land Use Element which designates the proposed general distribution and general location and extent of the uses of the land for housing, business, industry, open space, including agriculture, natural resources, recreation and enjoyment of scenic beauty, education, public buildings and grounds, solid and liquid waste disposal facilities and other categories of public and private uses of the land. The Land Use Element shall include a statement of the standards of population density and building intensity recommended for the various districts and other territory covered by the plan which are subject to flooding and shall be reviewed annually with respect to such areas. I 3 B. INTENT AND CHARACTER OF THE LAND USE ELEMENT The preparation of the Land Use Element involved (1) gathering input from citizens and City Officials, (2) identifying land use issues, (3) establishing land use goals and policies, (4) describing land uses and land use intensities, (5) developing guidelines for physical development, (6) describing the land use pattern and (7) developing an outline for implementation. The Land Use Element is designed to provide a policy framework within which decisions, both private and public, can be made concerning the physical development of the City. It defines the geographic urban and rural areas in which these decisions are to be applied and designates the major uses of land. The plan provides a long-range projection into the future and is not meant to be inflexible. While the ends are specified, the means to achieve those ends in terms of costs, priorities and schedules require refinements that are, of necessity, short-range practical considerations. Methodology must be developed to monitor the rate of growth by using the capacity of the City to absorb said growth as a constant factor. The present land use allocations depicted in the Land Use Element may be continually changing and, therefore, review and revision of the element and the preparation of specific plans is a necessary and continuous process. Although the Land Use Element for Carlsbad provides an orderly balance of both public and private land uses throughout the community, it is primarily based upon the concept of preserving and protecting the existing environ- mental features and natural resources which are indigenous to the planning area. The Land Use Plan provides for an ultimate holding capacity of 108,323 d.u.'s for the planning area of approximately 25,000 acres, with a population range between 154,118 to 281,640. The expected mid-range population of 208,291 is based on a range of variable residential densities for single family and multiple family development within the community. A major principle in allocating residential land uses is to provide for a variety of housing types and density ranges to meet the diverse requirements of the citizenry, yet still create a cohesive urban form. Accessory land uses, necessary to serve the residential population, should include open space and recreation areas, as well as commercial and industrial locations. Each of the recommended land use designations on the plan have been con- sidered in light of existing land use and circulation patterns in addition to being subjected to in-depth review and scrutiny by a committee of concerned citizens. The General Plan provides a framework within which to define the future urban and economic form of the community. The physical character of a community should be compatible with the more broadly defined goals of the citizenry. The land use goals and guidelines are consistent with the fact that Carlsbad is likely to emerge as one of the finestbalanced communities in San Diego County. The guidelines provide for continued commercial and industrial development, but in a form and location consistent with the existing residential character of the community. 12 5 C. RELATIONSHIP TO OTHER ELEMENTS In differing degrees all of the elements of the General Plan contain policies or proposals which relate to the Land Use Element. The Land Use and Circulation Elements are almost inseparably related. The nature, routing and design of circulation facilities are among the major determinants of the form of human settlement and of the uses of land. Conversely, land uses create demand for circulation facilities. The Safety and Geologic Hazards Elements provide information and policies regarding natural and man-made hazards which have been recognized in the Land Use Element. Together with the Open Space Element, they define lands to be reserved in a natural state and other lands for urban purposes. Considered along with the Conservation Element they define criteria and standards and identify programs needed to control the impact of man's activities on the natural environment. The Noise Element also provides data on areas not suited for certain types of development. The Land Use Element, with its statement of population projections and densities also sets the parameters for the Parks and Recreation, Housing and Public Facilities Elements. The Circulation Element designates the major roads proposed to serve the expected land uses. The Land Use Plan only shows the approximate location of these roads. For precise definitions, one must refer to the Circulation Element. For the open space and parks requirements of the Land Use Plan, one must refer to the Open Space, Conservation and Parks and Recreation Elements. The plans contained in these elements must be overlayed with the Land Use Plan to establish those areas that should be preserved and developed to meet those requirements. Figure 1 designates the "Prime Open Space and Conservation Areas" of the City as adopted by the Open Space and Conservation Elements. For the public health and safety considerations of the Land Use Plan, one is referred to the Geologic Hazard, Noise and Public Safety Elements. Develop- ment permitted by the Land Use Plan must also reflect these other considerations. The social and economic considerations of the Land Use Plan are found in the Housing and Public Facilities Elements. To the extent that conflicts are created between the Land Use Element and site development zoning or plans or other elements of the General Plan, the policies of the Land Use Element shall prevail. II. GOALS: A. Preserve and enhance the environment, character and image of the City as a desirable residential, beach and open space-oriented Community. B. Create a pleasing and unique downtown area designed to attract the tourist and to provide the necessary amenities to the permanent residents of the area. C. Promote the economic viability of the agricultural and horticul- tural industries. D. Develop an industrial base of light, pollution-free industries of such magnitude as will provide a reasonable tax base and oppor- tunities for employment of local citizens. E. Generate the development of commercial enterprises that support local industries, population and tourist trade. F. Protect and conserve natural' resources, fragile ecological areas, unique natural assets and historically significant features of the Community. G. Provide for an orderly balance of both public and private land uses within convenient and compatible locations throughout the City and ensure that all such uses - type, amount design and arrangement - serve to protect and enhance the environment, character and image of the City. H. Encourage development only in those areas which can best support a change in land use without impact. III. POLICIES A. Permit the development of land only after adequate provision for services such as transportation, water, sewerage, utilities and public facilities. B. Arrange land uses so that they preserve community identity and are orderly, functionally efficient, healthful, convenient to the public and aesthetically pleasing. C. Discourage strip commercial development. D. Locate major commercial and industrial centers in areas which are easily accessible to major transportation facilities. E. Encourage planned industrial parks as the preferred method of accommodating industrial uses. F. Consider those zone requests for local commercial land use within the areas designated for residential use, only upon approval of a site development plan and determination of the following: 1. The adequacy and appropriateness of the proposal itself and impact on surrounding land uses. 2. Consistency with the guidelines contained in the General Plan. 3. Detailed site locations established through the specific planning process; and 4. Conflicts between the Land Use Plan and Zoning shall be resolved by the Planning Commission. G. Develop programs which would correlate rate of growth with service capabilities of the City. H. Consider proposals for medium-rise structures, up to and including six stories, only upon the determination of the following: 1. The public will receive substantial benefit from such an action, i.e., increased open space, floodplain preservation, slope protection, etc.; 2. There will be no substantial detrimental impact on the adjoining properties; and, 3. The approval of a site development plan. I. Specific Plans should be utilized to implement the intent of this Element in regard to Urban Land Reserves, Non-Residential Reserves and Special Treatment Areas. 7 7- J. Develop and retain open space in all categories of land use. K. Encourage the types of commercial and industrial activities which will supply the City with a broad economic base, provide for the social need and reflect all environmental constraints. L. Implementation of this element shall consider the social, economic and physical impacts on the Communtty. It .11 IV. THE PLAN The Land Use Element consists of both a narrative (text) and graphic portrayal (map) of the land use proposals for Carlsbad. Since both of these constitute the Land Use Element, one should nOt be amended without considering the other. The goals preceding this section serve to explain the rationale for the various proposals and guidelines of the Land Use Element. Wherever possible, these goals and guidelines have been transposed into the land use proposals and features which are indicated on the Land Use Element Map and/or other- wise described in this text. A. THE 16 YEAR HORIZON - - 1990 The Land Use Plan designates more land for urban use than would be required to accommodate the projected 1990 population. To avoid "leap-frog" development that would put an unnecessary strain on the service capabilities of the City, interim programs must be developed to guide short-range growth based on efficient controlled growth policies. The best method available to accomplish this is by the use of "specific plans". Specific Plans are defined by State law as "detailed regulations, conditions, programs and proposed legislation which shall be necessary or convenient for the systematic implementation of each element of the General Plan" and "need not apply to the entire area covered by the General Plan". Subjects covered in a specific plan may include: (a) The location of housing, business, industry, open space, agriculture, recreation facilities, educational facilities, churches and related religious facilities, public buildings and grounds, solid and liquid waste disposal facilities, together with regulations establishing height, bulk and setback limits for each buildings facilities including the location of areas such as flood plains or excessively steep or unstable terrain, where no building will be permitted in the absence of adequate precautionary measures being taken to reduce the level of risk to that comparable with adjoining and surrounding areas. (b) The location and extent of existing or proposed streets and roads, their names or numbers, the tentative proposed widths with reference to prospective standards for their construction and maintenance, and the location and standards of construction, maintenance and use of all other transportation facilities whether public or private. (c) Standards for population density and building density, including lot size, permissible types of construction, and provisions for water supply, sewage disposal, storm water drain- age and the disposal of solid waste. (d) Standards for the conservation, development and utilization of natural resources, including underground and surface waters, forests vegetation and soils, rivers, creeks and streams and fish and wildlife resources. Such standards shall include, where applicable, procedures for flood control, for prevention and control of pollution of rivers, streams, creeks and other waters, regulation of land use in stream channels and other areas which may have a significant effect on fish, wildlife, and other natural resources of the area, the prevention, control and correction of soil erosion caused by subdivision roads or any other sources, and the protection of watershed areas. (e) The implementation of all applicable provisions of the Open-Space Element. (f) Such other measures as may be necessary or convenient to insure the execution of the General Plan. There are four concepts in particular, discussed in this Element, that ideally lend themselves to a specific plan program. One, the planned community over- lay, already has means of implementation through the City's Planned Community Ordinance. With this tool, development can be sensitive to the open space, conservation, recreation and public health requirements of the City, while still achieving the density allocations of the Land Use Plan. Figure II designates those areas suitable for Planned Community development. The other three, Non-Residential Reserves, Urban Land Reserves and Special Treatment Areas, can best be implemented by the use of specific plans. 10 B. DESCRIPTION OF THE PLAN 1. Saturation Plan The "Land Use Plan" represents the expected land uses in the City at some future period of time, at total saturation. The designated land uses are based on existing trends and current planning practices. Tables I and II give the quantitative breakdown of each land use category represented on the Land Use Plan. Table I projects a maximum population of 256,165 people at total saturation and a projected population of 208,291. However, since saturation is based at some infinite period of time, projections based on established bench-mark periods of time are much more realistic. Table III gives projects based on controlled existing trends, compiled by the San Diego Comprehensive Planning Organization. These projects are short-range in nature and better fit into the idea of a continual update program for the Land Use Element and the concept of Urban Land Reserves. These figures are not intended to be recommendations but are included as informa- tion only. As already pointed out, the Land Use Element has a strong relationship to the other elements of the General Plan and to the established planning programs of the City. To the extent that conflicts are created between the Land Use Element and site development zoning or plans. or other elements of the General Plan, the policies of the Land Use Element shall prevail. 2. City Form After analysis of the "Land Use Plan", it becomes evident that the City is developing as a bi-nodal community, separated by the non-residential corridor running east-west along Palomar Airport Road. Both sectors can be further broken down into sub-areas. This pattern of growth is commonly referred to as the "multiple-nuclei" concept. North Carlsbad is developing as two separate residential communities (Nuclei): a) The first community is the older, more established section of Carlsbad, generally west of El Camino Real and north of Aqua Hedionda Lagoon. b) A second community is developing as a result of Planned Community Master Planning in the northeast quadrant of the city. South Carlsbad is also developing as two separate communities: a) The southeast quadrant is rapidly being-developed with the La Costa area acting as the prime generator. b) The southwest quadrant is developing because of the avail- ability of services along Interstate 5, proximity to the ocean and easy accessibility. As a consequence of Carlsbad's bi-nodal development, it is essential that a program be established which can monitor growth and relate it to the City's ability to provide service. 11 3. Growth Monitoring Plan As already pointed out, the transition period between what the City is today and what the ultimate, desired character of the City will be is most critical. An area of primary concern is the capability of the City to adequately serve growth as it occurs. One of the inherent problems with the "multiple-nuclei" development concept (see previous section) is the difficulty of providing for the efficient expansion of public utilities and services. Because of this, methodology must be developed to monitor the City's growth and compare this growth with the City's capability to serve that growth. This monitoring system will require regular attention to two essential procedures. These are Forecasting and Comparison. a) Forecasting: Periodically updated surveys of the "in-place", "approved" and "planned" capacity of the City's various services should be made. It is important that these surveys be supplemented by a comprehensive projection of sources and uses of capital improvement funds. The calculation of a "maximum theoretical demand" for each service (based on City-recognized population projections) will be essential in planning and scheduling capital improvements allocations. It is fundamental to this General Plan that the City's growth must be managed in relationship to the City's capability to provide essential services. b) Comparison: The changing demand for City services which results from actual and approved changes in land use should be regularly evaluated. These effects should then be compared with the City's "in-place", "approved" and "planned" services. Excesses of or shortages of service capacity should thereby be identified. As a result of the service demand/availability comparison, it may be logical for the City to develop a program which would release property for development only at such time as service can be reasjy provided. Charting techniques should be developed and systematically used which facilitate the graphic or tabular display of both forecast and com- parison data. (See examples next page.) 4. Urban Land Reserve Program The Urban Land Rerve.Program should be designed to be used with the Growth Monitoring Program for establishing areas which will logically be subjectlo urban pressures through time. The concept of the Urban Land Reserve Program would be to provide property owners the opportunity to "land bank" their holdings with the support of the City. A property owner would propose a Master Plan of growth for his property which would outline the following phases of development: (1) That area which could be reasonably expected to develop in 5 years. (2) That area which would develop in more than 5 years but less than 10 years. (3) That area which would develop in more than 10 years but less than 15 years. (4) That area which would develop after 15 years or more. The Master Plan would indicate for each category: expected land use, current land use and land use predicated on Agricultural production. The second part of the Urban Land Reserve Plan is to apply the concept of the Williamson Act. A contract "Master Plan by Ordinance" would be entered into by the property owner and the City which would define use of Land with respect to time and zoning. The contract would theoretically enable the property owner to request a property tax reduction by assessing land at its project value with respect to time. If the intent of the State law which requires assessment of land based on ability to generate "a rent" is to be met, the enforceable restriction, "a contract", would allow the assessed value of land to be predicated on land use now, instead of the highest and best use. In effect, the proposed Urban Land Reserve program would provide the City with a good idea of where and when development could occur and at the same time allow the City to develop reasonable capital improvement programs to meet that demand. Additionally, the Urban Land Reserve program would provide the City the ability to preserve Agricultural uses, open spaces now and not prematurely commit lands to urbanization. 13 14 5. Implementation It is recommended that the following five programs be initiated in order to implement the goals and objectives outlined in this Element: a) Public Facilities Element and Capital Improvement Program: The City should develop a Public Facilities Element of the General Plan and a concurrent Capital Improvement Program that would assess and plan for the City's public service responsibilities (i.e., sewer, water, public safety, libraries, parks and recreation, etc.) b) Mandated Review: The City should require a major review of the Land Use Element every 3 years. The review would consist of an evaluation of the existing Element as it relates to future development and subsequent growth patterns. The three year period approximates the time it takes a developer to put together a program, receive City approvals, build it, and achieve occupancy. Additionally, the 3 year period considers City receipt of tax revenues generated by the development. c) Urban Land Reserve: The City should develop an Urban Land Reserve Program consisting of two parts: 1) Non-Residential Reserve: Those lands that have been impacted or will be impacted by the development or expansion of Palomar Airport require special treatment. The potential land uses within this designation include commercial, industrial, agricultural, recreational, governmental and utility uses. For a City of approxi- mately 37 square miles, 4,000 acres of non-residential acreage is an excessive amount of land that would normally be provided for in a balanced community. Therefore, criteria must be developed to judge the validity of each land use request in this area. 2) Urban Land Reserve: The City should develop a program whereby they would encourage that certain lands not be developed within 5, 10 or 15 years. The proposed time periods coincide with the City's ability to provide public services within the context of capital improve- ment programming. Contractual provisions could be utilized whereby the land-owner would receive tax assessment relief if his land is included in the designated Land Reserve area. d) Growth Monitoring Program: The City should develop a Growth Monitoring Program that would give the City the ability to measure its public service requirements against the rate of physical growth. This information would be used when considering developmental requests and allow the City to set its own direction for growth and establish priorities for capital improvements funding. 15 e) Specific Plans: The City should develop Specific Plans r those areas of the City that are designated in this Element as Special Treatment areas. This approach would allow the City to work with landowners and citizens to develop definite development programs for those key areas of the City that affect the character of the entire community. (6) Sewer Availability. Due to the events largely beyond the control of the City of Carlsbad, the City has no capacity rights in the Encina Sewage Treatment Plant available for new development. In effect, sewer facilities are not available for any development to be constructed within the City of Carlsbad. This unavailability is expected to continue for the foreseeable future. As a result of a lack of sewer facilities, the City Council has determined that it is necessary to con- dition further development of the City pursuant to this land use element on the provision of adequate sewer facilities. All of the designated land uses contained in this element shall be inoperative until such time as the City Council determines that sewer facilities are available to serve the property. The availability of sewer service will be determined by the City Council in accordance with such a Sewer Allocation Plan as the City Council may adopt. Outstanding developmental approvals shall not be exercised and new developmental approvals shall not be given unless the proposed project qualifies under a sewer allocation system. Notwithstanding anything to the contrary in the general plan, developments may not occur in the City of Carlsbad regardless of the land use designation or other approvals which may have been obtained unless the City Council gives its approvals for such development in accordance with such a Sewer Allocation Plan as the City Council may adopt. 21 C. CLASSIFICATION The following are the land use classifications for application to the Land Use Plan: RESIDENTIAL Low Density Low-Medium Density Medium Density Medium-High Density High Density COMMERCIAL Intensive Regional Shopping Extensive Regional Shopping Regional Service Commercial Community Commercial Neighborhood Commercial Travel Services Commercial Recreation Commercial Central Business District PROFESSIONAL AND RELATED COMMERCIAL PLANNED INDUSTRIAL GOVERNMENTAL FACILITIES PUBLIC UTILITIES SCHOOLS Elementary Junior High High School Continuation Private OPEN SPACE NON-RESIDENTIAL RESERVE URBAN RESERVE SPECIAL TREATMENT AREA COMBINATION DISTRICT AND UNIQUE AND SPECIAL USES UNIQUE AND SPECIAL USES 22 The following are the standards of population density and building intensity to be applied to the land use classifications: 1. Residential Density is the unit of measure used to compare and describe the intensity of residential land use. Different categories of density constitute policy statements used in establishing the public facility requirements for each area. Density allocations are not intended to designate building type. Refer to "Special Treatment Area Guidelines" for possible deviation from density allocations in the downtown area. Five ranges of density have been incorporated into the General Plan. Each of these categories is implemented by one or more zone classifi- cations which contain the specific site development standards. All urban residential classifications may include neighborhood commercial uses, generally less than 5 acres, as well as all public facilities and open spaces, as legitimate supporting facilities and services, when they are located in accordance with the policies and criteria for determining consistency. Field crops and horticulture are not indicated on the plan map, and such uses may be included within any residential classification subject to proper zoning controls. Clustering of residential units in Planned Residential Developments will not be precluded by the various residential classifications. (a) Low Density: Low Density residential classification - rural, recreational or agricultural - characterized by single- family dwellings on parcels one-half acre or larger, or cluster- type and innovative housing development at an overall density not to exceed one and one-half dwelling units per gross acre. Within this classification, a variety of housing types, including townhouses, condominiums, apartments, mobile homes, and single- family units may be allowed by compliance with development standards required by applicable ordinance provisions and guide- lines specified in this General Plan, which recognize the slope of the natural terrain, percentage of site remaining in natural state, access, parking, geologic hazards, grading, utilities, fire protection, erosion control, ecological significance, scenic qualities and other prime open space and conservation considerations. (b) Low-Medium Density: Urban low-medium density residential areas characterized usually by single-family homes and planned residential development - 0 to 4 dwelling units per gross acre. A variety of overall housing types may be allowed as long as the overall density does not exceed 4 dwelling units per gross acre. (c) Medium Density: Urban medium density residential areas characterized by small lot single-family homes or townhouses, duplexes, triplexes and low density apartment developments - 4 to 10 dwelling units per gross acre. (d) Medium-High Density: Urban multiple residential areas characterized by low rise condominium or apartment developments - 10 to 20 dwelling units per gross acre. 23 (e) High Density: High density residential classification characterized by low and medium rise condominium and apartment development, 20 to 30 dwelling units per gross acre. EXPLANATORY NOTE ON RESIDENTIAL DENSITY: Using density ranges rather than specifying types of residential development (e.g., single-family or multiple-family units at a specific number of units per acre) allows flexibility in using zoning and specific plans to implement the Land Use Element, and promotes cluster development where it is desirable. One portion of a project may be developed at high density, and the remainder at very low density, or all development may occur at relatively high density with the remaining open space dedicated for use of persons in the subdivision or for all residents of the community. All densities are based on the gross acre. EXPLANATORY NOTE ON DENSITY RANGES: The densities established for the low and low-medium density residential classifications simply designate the maximum number of dwelling units per gross acre that would be permitted if all other requirements are met. In those exceptional cases where the base zone is consistent with the land use designation but would permit a slightly higher yield than that recommended in the low and low-medium density residential classifica- tions, the City may find that the project is consistent with this element if it is compatible with the objectives, policies, general land uses and programs expressed herein and does not exceed twenty five (25) percent of the maximum allocation. The density ranges established for the medium, medium-high and high density residential categories are NOT meant as "minimums" and "maximums" The lower figure for each of these categories represents a "guaranteed" density and the higher figure represents a potential maximum that could be located in each area if certain criteria are met. The criteria shall be reviewed on a project-by-project basis and shall include such things as slope of land, soil stability, compatibility with surrounding land uses, flood plain protection, adequacy of public facilities, on-site amenities and preservation of unique and desirable natural resources. In other words, the density allocation for any project starts at the low end and, if a higher density is desired, the proposed development must prove itself worthy of the higher designation. DENSITY RESTRICTIONS: Density ranges and cluster development are best aoolied to larcier Darcels of land. There are many small or sub- standard lots in the City that, because of their size, cannot meet the purpose and intent of these concepts. For this reason, the following density restrictions shall apply to all lots with less than fifteen thousand square feet of land area. PARCEL SIZE 2500 - 5000 sq. ft. 5000+ - 7500 sq. ft. MAXIMUM DENSITY 2. D.U.'s or General Plan density, whichever is less 4 D.U.'s or General Plan density, whichever is less 24 7500+ - 15,000 sq. ft 8 D.U.'s or General Plan density, whichever is less Over 15,000 sq. ft. General Plan Density 2. Commercial Commercial land uses designated in the Land Use Plan are: Regional Retail Commercial, Regional Service Commercial, Community Commercial, Neighborhood Commercial, Travel Service Commercial, Recreation Commercial and Central Business District Commercial. It is to be noted that all of the possible locations for Neighborhood Commercial uses are not indicated on the map of the Land Use Element. This is because local neighborhood commercial areas are generally of a relatively small size and are supportive of (thus can be located in) almost all other land use categories. The commercial classifications recommended in this Land Use Element relate to the level of commercial activity taking place and to the size of market area more than to acreage in commercial use. (a) Intensive Regional Commercial: These establishments offer such goods as clothing and household items, and reach their highest form as the 'planned shopping center". Such centers should have orderly and functional store arrangement and adequate and convenient off-street parking. Regional shopping centers have a market radius ranging up to 5 or more miles and serve a population of 20,000 to 80,000 families. Because of their large market area and high traffic volume, these areas require access to the entire region. The intersection of two primary streets is generally required. A department store is typically the major magnet of a regional shopping center, while other stores supplement and compliment the various department store lines. A group of convenience stores, service facilities, business and professional offices are often associated with the center. Some of these may be incorporated in the center itself, or arranged at the periphery in the immediate area. A regional center draws other business establishments because it draws people. As a result, regional centers often function as the local shopping and community business area for adjacent residential neighborhoods. The minimum acreage of a regional center site averages 40 acres, not including space for expansion. Depending on the amount of local, community and other regional-level functions provided, the total commercial area could range from 80 to 90 acres. The "discount store", as it has evolved in recent years, usually houses shopping, convenience and service departments, and functions similarly to a regional shopping center. The larger discount stores (75,000 sq. ft. or more) take on most, if not all, charac- teristics of the regional center and should accordingly be considered a regional facility. (b) Extensive Regional Commercial: These commercial areas include a wide range of establishments dealing in large, low volume, high cost items such as furniture, automobiles (new and used), 25 lumber and building materials, boats, mobile homes, farm machinery and garden supplies. Extensive shopping establishments are similar in market and population requirements to intensive shopping establishments, but, because of the cost of the items sold and the infrequency of purchase, customers are willing to travel greater distances to compare price and quality. In response to the wide range of items sold and the varied physical and transportation requirements involved, these establishments are rarely suited to planned shopping centers (except for house- hold furnishings such as furniture and appliances) and seek locations accessible to a large population because they have a relatively low patron frequency. Intersections of primary streets, or near these intersections along a major arterial, meet their access needs. Their location should be near developments with similar physical characteristics, suitably separated from residential areas. Because of wide variety in their development, extensive storage and display needs, and need to associate with other business, wholesale and distribution activities, these establishments cannot be organized into independent functional shopping centers. The general space requirements for extensive shopping needs is one acre per 1,000 families. (c) Regional Service Commercial: These commercial areas provide irepair and consumer services to residential areas and to other business establishments. Their characteristics often appear to be industrial in nature. As family purchasing power increases, the importance of this segment of the economy grows. The regional service sub-group includes service contractors (plumbing, heating, air-conditioning, electrical, housing repairs and maintenance), laundries and dry-cleaning plants, frozen food storage and custom food processing, major household and commercial applicance repair and major automobile and truck overhaul or body repair. Many of these activities are compatible with business activities of a less intense nature, and are often accessory to retail sales activity, such as a service department of an appliance store. Because these establishments have low patronage and offer a large site requirement, they generally seek independent locations with low land costs and good accessibilities. They should be separated from residential areas by physical barriers and by a proper orien- tation and spacing of structures and storage yards. Appropriate locations are along a major arterial or near the intersection of arterial streets. When locating these establishments, it is important to prevent detrimental effects on adjacent land and to ensure proper access to the street system. One acre per 2500 families is the estimated space need for these establishments, but this may increase in the future if the growth trend in this segment of the economy continues. (d) Community Commercial: This category designates land for commercial centers which provide a wide range of facilities for retail trade, convenience goods, services and professional office uses. In addition to supermarkets, restaurants, movie theaters and banks, it includes areas of larger retail volume than that of neighborhood commercial. Financial, insurance, real estate and personal and professional services and wholesale trade are compatible with these business centers. KR Community Commercial establishments usually serve a market area up to one and one-half mile radius, containing from 5,000 to 15,000 families. Usually they are closely related to residential development and often combine with "local shopping centers". Easy access to a relatively large area and population is required. The intersection of arterial streets is a common location for these establishments, and an area of 6 to 12 acres is usually needed. (e) Neighborhood Commercial: There are two types of neighborhood (r local) commercial establishments: Neighborhood convenience shopping and neighborhood shopping. These commercial establish- ments assume two types of physical groupings: (1) The small convenience cluster, and (2) the neighborhood shopping center; the basic difference between the two is scale of operation. Neighborhood convenience establishments may exist as a group of small stores and service shops in a planned shopping center or as a single facility. Typical establishments within this sub- group are grocery stores, drug stores, beauty and barber shops and laundromats. Establishments of this kind serve the immediate surrounding residential area and draw a high percentage of walk-in patrons, although a certain amount of automobile traffic can be expected because of the low population densities common in newer areas. Often the convenience center is isolated from other business activity, but in close proximity to such community facilities as schools, parks and recreation areas. Usually these clusters require from 2 to 3 acres. Local shopping areas are larger groupings of stores and shops of the local convenience type. Frequently occurring at the periphery of a residential area at the intersection of collectors or arterials, they serve two to four adjacent residential areas (local convenience clusters serve one residential area) and may contain supermarkets, drug stores, a hardware store, specialty stores, personal services, and business and professional offices. A local shopping group usually requires 5 to 10 acres for development. (f) Travel Service Commercial: Travel Service areas, including motels, highway-oriented service stations, and restaurants, serve business and industrial areas as well as the traveling public. These establishments should be accessible to interregional traffic, but they need not have direct roadway access as long as their location is easily identifiable. While many patrons pass through the City and stop only overnight, these establishments also serve as the residence of people visiting the area for business or pleasure. Their space requirements relate to the needs of the entire northern San Diego County area. The space requirement for a specific location is dependent on the amount and type of transient traffic and the needs and extensiveness of nearby business and industrial areas. A site of five or more acres is required to provide a full range of travel services and 27 facilities. Two important factors in developing travel service areas are: (1) maintaining a functional street system through access control, and; (2) preventing detrimental effects on or by adjacent land uses. (g) Recreational Commercial: This category provides for commercial uses that are primarily recreational in nature. These uses include activities such as golf course club houses and pro shops, tennis facilities, horse stables, boat launching facilities, motels, restaurants and, if the recreation area is part of a larger planned community, residential uses with densities compatible with surrounding uses. (h) Central Business District Commercial: The Central Business District is located in the heart of "old" Carlsbad and is commonly referred to as the "downtown" or "inner city". Existing activities include such things as retail stores, offices, financial institu- tions, restaurants and service facilities. There are vacant lots and residential uses intermixed throughout the area. A thorough analysis of the problems of the CBD and follow-up recommendations for corrective action were completed in 1971 and are contained in two documents prepared by Duncan and Jones titled "Preliminary Analysis of Problems and Issues - The Inner City" and "A framework for Remedial Action - The Inner City". Specific Planning programs need to be developed as a joint effort between the City, Chamber of Commerce and the downtown merchants, in order to revitalize this area. 3. Professional and Related Commercial This classification designates areas which are compatible and environ- mentally suited to office and professional uses, including compatible and supportive related commercial uses. This land use could be placed along major arterials without creating adverse conditions which are associated with strip development, and can be used as buffers between commercial areas and residential uses. 4. Planned Industrial The Land Use Map designates those areas currently used for, proposed as, or adjacent to industrial development, including manufacturing, ware- housing, storage, research and development, and utility uses. Agri- cultural and outdoor recreation uses on lots of one acre or more are considered to be a proper interim use for industrially designated areas. 5. Governmental Facilities This classification of land use designates areas currently being used for governmental functions including Civic Center, maintenance yards and fire stations. As they develop, additional facilities such as branch libraries, auditoriums and community centers may be included in this category. IN 6. Public Utilities The General Plan contemplates that primary public utility facilities will be located in areas that are classified "U" (Public Utilities). This category of land use designates areas, both existing and proposed, either being used or which may be considered for use for public or quasi-public functions. Sites delineated with precise boundaries represent existing sites or sites which have been precisely fixed by General Plan Amendment for primary functions such as the generation of electrical energy, treatment of waste water, public agency maintenance storage and operating facilities, or other primary utility functions designed to serve all or a substantial portion of the community. Sites identified with a circular "U" designation indicate that the City is studying or may in the future evaluate the location of a satellite waste water treatment facility in an area which could be located within a one kilometer radius of the designation. Specific siting for such facilities shall be accomplished only by a change of zone, specific plan adoption, or master plan approval for developments in the Planned Community zone or other similar actions adopted by ordinance which in any case shall be approved only after fuly noticed public hearings. 7. Schools This land use classification represents both existing and proposed school sites necessary to serve the ultimate planning area. The sites are designated as elementary, junior high, high school, continuation school or private school facilities. Sites delineated with precise boundaries represent existing sites and sites shown with a circular symbol represent proposed sites to be confirmed by the respective school districts at time of development. 8. Open Space (a) Secured Open Space: The plan map indicates the general location of secured or committed open space - primarily open areas secured by the City's acquisition of fee interest or acquisition of development rights (e.g. scenic, conservation, open space, or recreation easements, covenants, deed restrictions, public access easements, required land dedication, etc.). (b) Unsecured Prime Open Space Overlay: The map titled 'Prime Open Space and Conservation Areas" (identified in the Open Space and Conservation Elements) indicates the general location of valuable, unique or representative examples of natural, ecologic, scenic or cultural resources, and geologic hazard areas. These areas include but are not limited to flood plain and water resources, hillside and soil resources, and agricultural resources. It is intended that a special management approach be taken in these areas in order to protect and preserve those resources so designated in the adopted Open Space and Conservation Elements of the Carlsbad General Plan. 9. Non-Residential Reserve This classification of land use designates areas held in reserve for non-residential uses such as agricultural, industrial, recreational commercial, governmental and utility uses. The burden of proof to 29 reclassify and develop the land lies with the developer or owner. Based on location criteria and on analysis of physical and man-made factors in the area, one large area shown on the Land Use Element map is recommended for non-residential use. Although this acreage far exceeds the demand for a particular use anticipated in the foreseeable future, it is designated for long-range development because it possesses the following set of factors: (a) Physical identity (it would not interfere with the development or functioning of adjoining land use areas). (b) Available major surface and air transportation facilities. (c) Adequate space for future non-residential development and expansion. (d) Because of airport activities much of the land is undesirable for residential uses. The advisability of maintaining this amount of non-residential space at this location, in advance of an established need, must await a regional analysis study and the test of future events. Agricultural and other interim, non-residential land uses should be encouraged in this area until its ultimate land use character can be definitely established. 10. Urban Reserve The urban reserve overlay (Figure III) designates areas that may remain as open space for an undetermined period of time, with long range uses indicated on the Land Use Plan. The land reserves are areas where development is not expected nor encouraged to occur in the immediate future. The territory is where critical planning decisions of a major proportion have to be made within the next five to ten years - decisions which could affect or preclude options for a rational pattern of growth and development for Carlsbad. The objectives of identifying such areas include the temporary preservation of open space" to control development patterns, discourage urban sprawl, channel growth into desirable areas, manage the rate of growth to achieve optimal coor- dination of utilities and public facilities expenditures, and reserve land (land bank) for future (possibly unforeseen at this time) technological, governmental, commercial and industrial land uses. 31 Explanatory Note on Timing Development: The classification of Urban Reserve over an area is a development strategy that can be implemented through zoning. A local government can "time development" by designating zones for immediate conversion, i.e., those located proximate to existing developed areas, and "holding zones" or "land banks" still remote from developed areas, which should be held in abeyance. Such regulations impose restraints only for a period of time as opposed to the permanent restrictions on development. Regulations which control the timing and location of development are a legitimate concern of government because urban sprawl has adverse affects on both the residents of these new developments and the public at large. Wasteful use of land means less open space and fewer of its attendant benefits. The scattered nature of unplanned development is costly because extension of services across vacant land adds to the cost of installation. Residents of sprawling suburbs incur the expense and inconvenience of more cars, and more travel time, and they lose the old-fashioned sense of community. For the farmer who wishes to continue farming, the intrusion of scattered urban uses means higher taxes and the incompatibility of urban uses. Innovative techniques have been adopted in communities throughout the country facing these problems. (See the discussion of techniques and criteria in the "Open Space Zoning Handbook" prepared by the Assembly Select Committee on Open Space Lands--California Legislature.) 11. Special Treatment Area The Land Use Plan designates particular areas that, because of existing conditions, warrant special treatment when considering future land uses. These areas include: (a) The "Inner City" area as defined by the two reports prepared by Duncan and Jones in 1971, titled "Preliminary Analysis of Problems and Issues - The Inner City" and "A Framework for Remedial Action - The Inner City" and surrounding area. (b) The Palomar Airport Influence Referral Area as defined by the Preliminary Plan prepared by Wilsey and Ham for the Comprehensive Planning Organization in 1974, titled "Comprehensive Land Use Plan - Palomar Airport". (c) The area north of Palomar Airport Road, on the easterly boundary of the planning area, currently being impacted by the Carlsbad Race- way. Cd) The three areas currently being considered by the County as potential Regional Park sites. (e) The rock and mineral extraction areas within the City. (f ).The proposed communi-ty core area located in Southeast Car.l sbad. Other areas that are specifically impacted by such things as noise and geologic hazards are delineated in their respective elements of the General Plan. 32 12. Combination District Some areas of the City are suitable for more than one of the aforementioned classifications. These areas are normally transitional in nature and lie between two or more incompatible land uses. The Land Use Plan designates these areas by cross-hatching them with the appropriate colors assigned to each land use category. A proposed use falling under either category and defined within an approved Specific Pla n for the area would be consistent with the Land Use Element. 13. Unique and Special Uses Within each land use designation, there is the potential for certain land uses that possess unique and special characteristics. These uses may include, but are not limited to, cemetaries, churches, golf courses, mobile home parks, recreational vehicle parks, public and quasi-public accessory buildings and facilities, and hospitals. These types of uses cannot be automatically placed within any particular Land Use category and must be reviewed on an Individual site basis. Criteria for this review should include the following: a) The proposed use is necessary and desirable for the City; b) The proposed use will be in accord with all of the Elements of the General Plan; c) The proposed use is not detrimental to existing or planned uses in the same vicinity; d) The proposed 9tte is adequate in size and shape to accommodate the proposed use and any future expansion that may be necessary; e) The street system serving the proposed use is adequate to properly handle all traffic generated by the proposed use with minimum disruption to existing area. D. CONSISTENCY Recent changes in State laws have established new requirements for government regulations of land use and development. Specifically the Government and Business and Professions Codes have been modified so that the administra- tion of zoning and subdivision ordinances now requires consistency with the adopted General Plan. The provisions of these codes were changed by Assembly Bill 1301 (1971 legislative session) and Assembly Bill 1725 (1972 legislative session) to require that all cities and counties approve only those zone changes or land division maps that are found to be consistent with the adopted City General Plan. In addition, this legislation requires consistency between existing zoning ordinances and the Land Use Element. Therefore, the City must make its zoning ordinance and General Plan compatible and insure that future development proposals are consistent with the adopted City General Plan. As a definition of consistency, the City will adhere to the language contained in Assembly Bill 1725 as follows: 32-A 11A zoning ordinance shall be consistent with a City or County General Plan only if.. .(il) the various land uses authorized by the ordinances are compatible with the objectives, policies, general land uses and programs specified in such plan. These are the policies and criteria of this plan for accomplishing this State requirement. 1. A land use proposal or zone, which if implemented would contribute to achieving the objectives established for the area by the General Plan, would clearly be consistent; 2. A land use proposal or zone, which if implemented would prevent the achievement of the objectives established for the area by the General Plan, would clearly be inconsistent; and 3:, If a proposed land use zone is not obviously consistent or incon- sistent, then the Planning Commission and City Council must make a determination as to whether the proposed land use or zone, if implemented, would be compatible with the development of the surroun- ding area in the manner contemplated by the General Plan. E. BOUNDARY DEFINITION It is the intent of the City General Plan Map to show the general outlines of various land use allocations. The boundaries are not intended to be precise, and a reasonable transition of uses is not precluded by the plan map boundaries. When uncertainty does exist as to the precise boundary lines of various land uses identified on the map, such lines shall be interpreted in the following manner. 33 (a) Where boundaries appear to follow the center line of a street or highway, boundaries shall be construed to follow such lines. (b) Where boundaries appear to follow ownership boundary lines, boundaries shall be construed to follow such lines. (c) Where boundaries appear to follow topographic features such as valleys or ridgelines, boundaries shall be construed to follow such features. (d) Where boundaries appear to reflect environmental and resource management considerations, boundaries shall be construed in a manner which is consistent with the considerations that the boundary reflects. If the application of the above guidelines does not resolve the uncertainty or if the Planning Director or the affected property owner considered the result to be inappropriate, the matter may be referred to the Planning Commission for decision. The Planning Commission shall resolve the un- certainty in accord with all of the provisions of applicable Specific and General Plans. The decision of the Planning Commission may be appealed to the Council in accord with the usual procedures. V. LAND USE GUIDELINES The purpose of these guidelines is to provide guidance and direction in the preparation of specific plans and programs and in the handling of daily affairs in order to constantly strive toward the goals of the City. General guidelines for land use as well as specific guidelines for residential, commercial and industrial land uses are presented. Guidelines for open space and conservation, circulation, parks and recreation are cited in other sections of the General Plan. A. GENERAL GUIDELINES 1. Through the development and arrangement of various land use com- ponents, create a distinctive sense of place and identity for each community and neighborhood of the City. 2. The community's visual form, as well as that of the neighborhoods within, should be pleasing to the eye, rich in variety, highly identifiable and legible and reflect cultural and environmental values of the residents. 3 Establish development standards for all land use categories that will preserve natural features and characteristics, especially those within rural, coastal and/or hillside areas. 4 Buildings used for large public assembly, including, but not limited to schools, theaters, auditoriums and high density residential development, should be limited to those areas which are relatively 34 safe from unexpected seismic activity and hazardous geological conditions. 7. In cooperation with the School District, the City should require the development of park sites adjacent to school properties and continue the requirement of housing developers to provide an appropriate area of their site for active open space, park and recreational use. 8. Provide for a sufficient diversity of land uses so that schools, parks and recreational areas, churches and neighborhood shopping centers are available in close proximity to each resident of the City. 9. Endeavor to maintain suitable and adequate sites for commercial and industrial facilities which are determined to be income producing developments. 10. Develop and maintain suitable and adequate landscaping, under- grounding, sign control, site and building design, parking and per- formance standards to insure that all existing and future commercial and industrial developments are compatible with surrounding land uses. 11. Develop a system of public facilities adequate for the projected population. 12. Make zoning consistent with the general plan. B. RESIDENTIAL GUIDELINES 1. Retain the present predominance of single-family residences through- out the community; while providing a variety of housing types in the communities within the City, including townhouses, condominiums, apartments, mobile homes, modular and prefabricated housing. 2. Encourage a variety of residential accommodations and amenities in the downtown area so as to increase the advantages of "close in" living and convenient shopping in the commercial core. 3. Limit medium and higher density residential developments to those areas where they are compatible with the adjacent land uses, and where adequate and convenient commercial services and public support systems such as streets, parking, park, schools and utilities are, or will be, adequate to serve them. 4. Restrict the highest residential densities to areas in or near the core commercial area and beach. 5. Channel large-scale development of apartments into areas which are most appropriate from the standpoint of convenience, access and replacement needs. 6. Preserve the neighborhood atmosphere and identity of existing residential areas. 7. Achieve a variety and choice of housing in all economic ranges throughout the City. 8. Offer safe, healthful, attractive residential areas with a wide range of housing types, styles and price levels in a variety of locations. 9. Encourage cluster-type housing and other innovative housing design that provides adequate open areas around these developments. 10. Coordinate provision of peripheral open areas in adjoining residential developments to maximize the benefit of the open space. 11. Locate multi-family uses near commercial centers. This would provide housing in close proximity to these facilities to the highest number of people possible. These residential developments should have adequate open space where located adjacent to commercial or industrial development. 12. Higher density residential uses should be in close proximity to open space, community facilities, and other amenities. 13. Encourage orderly residential development, expand utility systems with a minimum of expense to the taxpayer, and avoid"leapfrog" subdivisions. 14. Consider high and medium high density residential areas only where existing or proposed public facilities can accommodate the increased population. 15. Hillside areas should only accommodate densities that are com- patible to slope preservation. 16. Densities and intensity should decrease as the slopes in the hill- side areas increase. 17. Introduce programs to revitalize all areas which are deteriorating or have a high potential of becoming deteriorated. 18. Encourage the provision of low and moderate income dwelling units to meet the objectives of the City's Housing Element. C. COMMERCIAL GUIDELINES 1. Provide safe, convenient, attractive commercial facilities in keeping with growth rates. 2. Provide within the downtown core commercial area an organized system of land uses to be grouped in a community setting, rather than sprawl or strip commercial setting. Such uses should include adminis- trative and professional offices, business services, retail outlets and governmental offices. 3. Provide within the commercial area of the downtown core a variety of space and locations for specialty, unique and attractive type shops with a strong pedestrian orientation, thus, better enabling the area to attract a wide range of community oriented type uses which would otherwise locate elsewhere. 4. Provide a variety of commercial and tourist recreational activity in the downtown core commercial area, especially close to the beach, in connection with special entertainment facilities, restaurants and other uses which will foster the community concept. 35 4 36 5. Limit the type and amount of commercial uses to those which can feasibly be supported by the trade area and to those which are con- sistent and compatible with the prime concept and image of the community as a desirable residential, open space community. 6. Commercial recreation or destination tourist facilities, in particular, should be carefully controlled so as to protect the residential character of the community and the opportunity of local residents to enjoy (in a safe, attractive and convenient manner) the continued use of the beach and local transportation and parking facilities. 7. Each community should have easy access to a shopping center or centers. The shopping center should serve to establish the identity of the community. 8. The community commercial centers should be accessible by bicycle and pedestrian trails as -well as automobiles, with emphasis on the bicycle and pedestrian trails in the immediate neighborhood. 9. As in the neighborhood center, the community commercial center should encompass landscaped courtyards, pedestrian ways, bicycle trails, landscaped parking lots, and the use of harmonious architecture in the construction of buildings. 10. In addition to the downtown" core commercial area of the City and the regional shopping areas, commercial facilities should be located within identified communities in order to insure convenience access. Locating commercial facilities in communities and large planned residential developments as activity focal points and providing non- vehicular transportation corridors to them will assure their physical integration within the community. 11. Each community should contain or be conveniently linked by non- vehicular transportation corridors to at least one important rec- reational or cultural facility. 12. Limit future regional commercial development to the existing Regional Shopping Center, the downtown core commercial area, and the regional facility located Southeast of the intersection of the San Diego Freeway and Cannon Road. 13. Design and construct all commercial areas with sufficient off- street parking and loading facilities. 14. Encourage cleanup, landscaping, beautification, utility under- grounding, and additional parking in the downtown core commercial area. 15. Encourage the types of commercial activities which will supply the City with a broad economic base. 16. Utilize existing commercial land in the downtown core commercial area as much as possible before creating additional community commercial zoning. 37 17. The neighborhood (or local) commercial areas provide for convenience facilities and goods to serve the needs of the immediate neighborhood. All uses within this classification must be oriented to the immediate nieghborhood and compatible with adjacent patterns of development. Until such time as precise locations for neighborhood commercial facilities are developed through the creation of specific plans, the following guidelines should assist in distributing local commercial zoning: (a) Encourage the development of neighborhood commercial activities in centers with common planning, design and facilities (such as parking, ingress and egress). (b) Wherever possible, locate neighborhood commercial develop- ment at intersections of primary and secondary streets; where- ever neighborhood commercial development must of necessity be located adjacent to major streets, ingress and egress should be from the lesser of the intersecting arterials. (c) Locate neighborhood commercial development so that where- ever possible it is centrally located within its service area. Cd) Locate neighborhood commercial sites at an optimal distance from regional and community commercial centers. (e) Neighborhood commercial centers should be generally located one mile apart. (f) While there is no absolute standard for the number of local commercial acres needed to adequately service a given number of people, there should generally be one acre of neighborhood commercial development per 1,000 population of the service area. This standard should be tempered by the character of each particular service area. (g) The area of a local commercial development should generally be four to ten acres. (h) In order to assist the Planning Commission in determining the adequacy and appropriateness of neighborhood commercial develop- ment, justification in the form of a statistical analysis of the market service area of a proposed neighborhood commercial develop- ment should be provided by the developer at the time of zoning. Ci) Excessive undeveloped commercial zoning should be regularly reviewed and evaluated for its ability to serve the community. D. INDUSTRIAL GUIDELINES 1. Limit general industrial development within the community to those areas and uses which are provided with adequate transportation access and are appropriate to and compatible with the residential community. 2. Concentrate industrial uses in those areas least desirable for residential development -- in the general area of the flight path corridor of Palomar Airport. 3. Provide land for industrial development commensurate with growth rates and desirable environmental quality standards. 4. Provide for industrial sites that are large enough and level enough to permit ample space for on-site parking, appropriate land- scaping, and loading facilities as well as areas for expansion. 5. Protect areas designated for industrial use from encroachment by incompatible non-industrial uses. 6. Encourage new industrial development to be located in modern, attractive, well-designed and landscaped industrial parks. 7. Regulate industrial land uses on the basis of performance standards, including noise, emissions, traffic, etc. 8. As with other major land use areas, industrial districts should be bounded by significant physical features such as primary streets, streams and railroads to protect their integrity and promote their identity. 9. The physical development of industrial areas should recognize the need for compatibility among the industrial establishments involved and incompatible uses should not be permitted. 10. Industrial traffic should not interfere with the functioning of other land use areas. 11. The industrial activities and related services provided in an industrial area should perform functions necessary and desirable in the overall operation of the industrial area. 12. The development of an industrial area should adequately provide for internal traffic, utilities, and other operational needs, and each industrial establishment within the area should fully provide for its individual needs (employee parking, loading, storage). 13. Nuisance factors (noise, smoke, dust, odor and glare) should be controlled and not permitted to exceed the State and Federal standards. E. URBAN RESERVE GUIDELINES 1. Urban Reserves should be planned as complete units whenever possible. Piecemeal planning of reserve areas must be avoided and total, com- prehensive planning should be required in these areas before amendments to the Land Use Element are considered. 2. The extension of roads, public services and facilities into these areas prior to the adoption of a specific plan should be discouraged. I. 39 3. Plans for the Urban Reserves should be harmonious and integrated with adjacent land use and/or plans. F. LAGOON GUIDELINES Until specific plans are presented to the City that demonstrate the desirability of an alternative course of action, the City of Carlsbad should protect the public's interest in the lagoons and adjacent lands by the following: 1. Preserving Buena Vista Lagoon as a visual resource and wildlife preserve. 2. Keeping future options open for use of Aqua Hedionda Lagoon and Batiguitos Lagoon as scenic and multi-purpose recreation facilities (private and public ownership and management), and encouraging the establishment of Regional Parks. No land uses should be permitted that will diminish the opportunity to develop these Lagoons as a regional recreation facility, with the necessary complementary private land uses on adjacent lands. 3. Limiting future development adjacent to the lagoons and beach in such a manner to provide maximum physical and visual accessibility to these resources for public use and enjoyment. G. DEVELOPMENT GUIDELINES -- UTILITIES AND PUBLIC SERVICES Each application for development of property should be rated with regard to the following specific criteria: 1. Conformance with the General Plan and other municipal standards and criteria. 2. The capacity of water system to provide for the needs of the proposed development without system extensions beyond those normally installed by the developer. 3. The capacity of the sanitary sewers to dispose of the wastes of the proposed development without system extensions beyond those normally installed by the developer. 4. The capacity of the drainage facilities to adequately dispose of the surface runoff of the proposed development without system extensions beyond those normally installed by the developer. 5. The ability, of the Fire Department of the City to provide fire protection according to the established response standards of the City without the necessity of establishing a new station or requiring addition of major equipment to an existing station. 6. The capacity of the appropriate school to absorb the children expected to inhabit a proposed development without necessitating adding double sessions or other unusual scheduling or classroom overcrowding. 40 6. The capacity of the appropriate school to absorb the children expected to inhabit a proposed development without necessitating adding double sessions or other unusual scheduling or classroom overcrowding. 7. The capacity of major street linkage to provide for the needs of the proposed development without substantially altering existing traffic patterns or overloading the existing street system, and the availability of other public facilities (such as parks and playgrounds) to meet the additional, demands for vital public services without extension of services beyond those normally provided by the developer. :i DEVELOPMENT GUIDELINES -- QUALITY OF SITE DESIGN Each application for development of property should be rated with regard to the following specific criteria: 1. Site design quality which may be indicated by the harmony of the proposed buildings in terms of size, height and location, with respect to existing neighboring development. 2. Site design quality which may be indicated by the amount and character of landscaping and screening. 3. Site design quality which may be indicated by the arrangement of the site for efficiency of circulation, on-site and off- site traffic safety, privacy, etc. 4. The provision of public and/or private usable open space and/or pathways designated in the Open Space and Parks and Recreation Elements. 5. Contributions to and extensions of existing systems of foot or bicycle paths, equestrian trails, and the greenbelt provided for in other Elements of the General Plan. p. 41 I. DENSITY TRANSFER GUIDELINES Use the implementation tool of a "Density Transfer Ordinance" to manage the configuration of growth and implement the Land Use Element. Density transfer ordinances provide an incentive for a developer to do certain things that are considered desirable by the community in return for increasing permitted densities on land that is particularly suitable for development. Currently, Carlsbad utilizes such provisions in planned unit development ordinances to obtain open space; however, this technique could be extended to smaller parcels. In addition, this technique could also be utilized in conjunction with floor area ratio standards in down- town development to obtain such amenities as plazas, access corridors to public transit stations and sidewalk widenings. Such a system would give developers the option of developing at ordinary densities or at increased densities if they dedicate significant open space lands to the jurisdiction. The California Supreme Court has indicated that there is a rational connection between development and the need for open space, even if the open space is not immediately adjacent to the proposed development, so there should be few legal problems if adequate support for the provisions are evident in the planning process. An ordinance could be drafted that gave a developer several options in the way that such density bonuses could be earned. Open space around the development could be dedicated. Fees could be paid into a fund that was earmarked for open space acquisition or development. Where local planning efforts have identified open space areas that would be best protected if owned by the public, developers could also be permitted to dedicate. any of that land even if it was not immediately adjacent to the proposed development. In preparing such programs, the City of Carlsbad should consider the following: 1. The areas that may be dedicated in order to obtain density bonuses should be significant open space areas that have been carefully selected in the local open space plan. 2. The areas where densities may be increased through dedication of open space should be particularly suited to increased develop- ment and should also be specifically identified in the juris- diction's plans. 3. The ordinance should provide definite standards that relate the amount of open space dedicated with the increase in density permitted. 42 J. SPECIAL TREATMENT AREA GUIDELINES 1. A Specific Plan should be prepared for the downtown area. This Plan should be a joint effort of the City and downtown merchants and residents and should be directed at revitalizing the entire "Inner City" area. Until this Plan is completed, any proposed use that would be inconsistent with the uses designated on the Land Use Plan should be discouraged. Upon approval of a site development plan, density allocations as shown on the Land Use Plan for the "Inner City"and surrounding areas may be increased if the City finds that such an increase is consistent with the goals and objectives of the Land Use Element and with an approved Specific Plan for the "Inner city". 2. Any proposed use within the Palomar Airport impact area should be referred to the County Airport Land Use Commission for their review and comment. Any use proposed in the area designated as Non- Residential Reserve on the Land Use Plan must justify its viability over the other possible uses. A Specific Plan for the entire influence area should be prepared by the City, County of San Diego and involved property owners. 3. As urban uses encroach upon the Carlsbad Raceway, operating under a Conditional Use Permit, the City will have to decide what the ultimate land uses in this area should be. If the use of the Raceway is to be terminated, residential and non-residential land uses, consistent with the rest of the planning area should be imposed on the area. If the Raceway is to remain in operation indefinitely, proper land use buffers should be applied as shown on the Land Use Plan. A long-range Specific Plan should be developed for this area. 4. Until the feasibility of locating a Regional Park at Lake Calavera, Batiquitos Lagoon and Aqua Hedionda Lagoon is resolved, or until specific plans are presented to the City that demonstrate the desirability of an alternative course of action, the City of Carlsbad should protect the public's interest in these areas by discouraging any proposed use that would be inconsistent with the purpose and intent of the Open Space and Parks and Recreation Elements of the General Plan. 5. Areas currently used for, or have the potential of, being used for mineral or rock extraction should be identified and particular care should be utilized when considering adjoining land uses that would be incompatible to the extraction process. 6. A Specific Plan should be prepared for the proposed Community Core area located in southeast Carlsbad. Particular attention should be given to the possible land uses, their function and need, and their impact on the surrounding area and the rest of the City. 43 VI. ENVIRONMENTAL IMPACT CONSIDERATIONS The California Environmental Quality Act (CEQA) requires an evaluation of the environmental effects of all public and private projects which may have a significant impact on the environment. This requirement applies to all General Plan Elements, inasmuch as they set the framework for future land use decisions. CEQA requires the Secretary of Resources to prepare guidelines for environmental impact analysis. These E.I.R. Guidelines (as amended in December, 1973) allow the Environmental Impact Report for a General Plan element to be contained within the element text, providing that: 1. The element addresses the seven points required in the CEQA Guidelines; 2. The document contains a special section or cover sheet identifying where the General Plan addresses environmental impact con- siderations. This environmental impact analysis has a two-fold purpose. First, in meeting the CEQA requirements, it attempts to examine the environmental ramifications of the Land Use Element. Quantifiable impacts will generally be limited to those policies directly affecting residential densities and the relative proportions of land use categories. Since the whole basis for the Land Use Element is to provide an underlying policy framework over which specific land use determinations can be laid, the environmental analysis can be used only in the broadest sense: to evaluate the consistency of land use categories in their relationship to the environmental goals and policies contained in the text. The second function of this environ- mental analysis is to summarize the environmental policy guidelines contained within the text. Environmental goals are balanced with social and economic goals. It is this interplay of social, economic and environ- mental goals as contained within all the component Elements of the General Plan which should guide the environmental review process for all future development. Critical resources and aesthetic values are defined. Criterion for development in areas subject to environmental hazards are promulgated. Areas which, due to unique qualities, require special treatment are identified. In effect, the Land Use Element is its own environmental impact analysis: defining broad environmental objectives and creating a system of land uses and development guidelines which promote those environmental objectives. The Land Use Element is only an adjunct to the total General Plan, and is in no sense complete as an insular document. Environmental concerns relating to open space, seismic safety and geologic hazards, scenic corridors, housing, etc. are elaborated on within those respective elements. A truly comprehensive environmental impact report must necessarily relate the various component elements of the entire General Plan. Accordingly, it is anticip- ated that a complete E.I.R. will be prepared at such time as the various elements are adopted. 44 ENVIRONMENTAL IMPACTS OF THE PROJECT As noted before, the only immediately identifiable impacts associated with the Land Use Element are limited to: (1) Population growth, and (2) the relative proportions of land use categories (i.e., the balance between residential, open space, commercial and industrial uses). This discussion is limited to a general analysis of those two considerations. Population growth is a nebulous issue when related to a General Plan since projected populations at any given time tend to be statistically unreliable. The myriad of factors affecting the rate of growth - such as migration trends, birth rates, and construction trends - lack pre- dictability, and are therefore of limited usefulness. Consequently the Land Use Element has been structured so that any new development can not be evaluated on ultimate density alone, but must be justified in terms of certain minimum requirements (namely service availability, market demand, proximity to urbanized areas, and consistency with environmental policies). The projected populations and density allocations are based on optimum conditions and maximum growth pressures. Actual growth may be well below the projected ultimate levels, but it may not exceed it. Growth by itself does not necessarily impact the environment. It is the secondary effects associated with growth (i.e., increased congestion, increased demand for services, increased emissions, etc.) which must be mitigated. The Land Use Element not only proposes that growth be accommo- dated solely on the basis of the City's ability to absorb or adequately mitigate any adverse impacts, but goes a step further by creating a mechanism through which the growth pattern can be guided and controlled: the Urban Land Reserve and Non-Residential Reserve. These condepts attempt to compromise the City's goal of guiding orderly growth with the property owners concern for relief from excessive property taxation, and with the legal issues of controlled growth as determined by recent court cases. By precluding premature land use commitments through the voluntary co- operation of landowners, the potential for too rapid or haphazard growth is significantly reduced. The relative proportion of various land use allocations was based on the following factors: (1) Optimum population and density concentrations; (2) Service and support uses (principally commercial and public facilities) necessary to provide basic needs of the ultimate population; (3) Industrial and Commercial allocations in relation to projected work force; (4) Adequate open areas and recreational amenities to provide psychological relief, re- creation and aesthetic stimulation for the ultimate population; (5) Physical suitability of the land for a given use. The utilization of these factors creating the Land Use Map is discussed at some length in the text. It is important to note that certain intrinsic mitigations have been proposed to assure a high degree of compatibility for all proposed uses. For example, the requirement that all industrial uses be relatively pollution-free will mitigate adverse air quality impacts on residential uses. Or, the location of intensive commercial uses adjacent to major highways mitigates potential circulation and congestion impacts. In the most general sense, the physical location of various uses has been based on environmental considerations: 45 1. The buffering (through physical separation) of residential areas from adverse impacts associated with industrial, commercial, major roadways, and other potentially obnoxious uses. 2. The location and development of circulation patterns which facilitate traffic movements as well as decreasing trip length between home, work, schools and shopping facilities. 3. The creation of four nuclear residential communities within the City contributes to a sense of individual community identity, convenience, and ease of pedestrian and traffic movements. 4. The distribution of open space and recreational areas so as to provide maximum benefits for all residents. 5. The protection of the general populace in areas subject to environmental hazards. GOAL AND POLICIES The intent of the Land Use Element is to provide some general goals and policies for environmental protection which can be used in conjunction with City's Environmental Protection Ordinance in guiding decisions affecting the physical, social, and economic character of Carlsbad. The text stresses a project-by-project evaluation based on environmental impact assessment. Specifically, the goals emphasize protection of existing resources, maintenance of a desirable living environment, and protection of the citizenry from environmental hazards. While General Plan goals are by their very nature generalized when applied to specific development plans, they can be used as a subjective indicator of community values. Whereas, an E.I.R. may identify the physical impacts which may be anticipated with a project, the General Plan can measure the significance of those impacts. For instance, an E.I.R. may state that a certain project may cause con- siderable erosion of a coastal bluff. The General Plan would thereby guide a decision to require mitigations to such an impact. CITY OF CARLSBAE GENERAL PLAN OPEN SPACE AND CONSERVATION ELEMENTS Prepared By LAMPMAN AND ASSOCIATES AND CITY OF CARLSBAD PLANNING DEPARTMENT December ZO, 1973 (Formerly Dated December 5, 1973) Final Draft (Revised) A, TABLE OF CONTENTS Preface I. Introduction I A. State Law Open Space Element .1 B. State Law -- Conservation Element 3 C. State Law Open Space Zoning D. Intent and Character of the Elements 5 II. Goals and Policies 7 III. Objectives and Guidelines 9 A. Floodplain and Water Resource Management 10 B. Hillside and Soil Resource Management 11 C. Agricultural Lands 12 D. Unique and Special Resources 13 IV. Operr Space and Conservation Resource Management Plan 14 A. Descr'ipt ion and Intent of Plan 14 • ). Components of the Plan 15 2. Order of Importance 17 B. Prime Open Space and Conservation Areas 18 C. Implementation • 21 1.. Technique's 22 2. Criteria for Determining Technique 26 3. Funding Sources 28 4. Action Program 30 V. Appendix • 34 A. Definitions 31 B. Status of Open Space and conservation in Carlsbad 38 C. List of References • 47 PREFACE The Open Space and Conservation Elements of the General Plan coordinate and guide decisions related to the predominantly un- developed land and water surfaces which influenc.e and shape the formal quality of Carlsbad's physical environment. The Open Space Element serves as an official policy statement for the identification, preservation, conservation and acquisition of open space in the City. The Conservation Element is addressed to resource management -- the.planned management of a natural resource to prevent exploitation, destruction or neglect. The contents of the Open Spac.e and Conservation Elements meet the requirements of State law and provide the City of Carlsbad with a comprehensive document dealing with open space and con- servation resource management. The structure of the elements includes: Background -- Includes State open space and conservation character of the open space the City of Carlsbad. requirement:S pertaining to and describes the intent and and conservation plan for Goals and Policies -- A concise statement of the, Open Space and Conservation Goals and Policies of the City of Carlsbad. Objectives and Guidelines -- A detailed breakdown of the Open Space and Conservation Objectives and Guide- lines of the City of Carlsbad. Plan and Implementation -- Identification of prime open space and conservation resources in the City of Carlsbad and the plan and procedures to conserve, develop and utilize those resources. Appendix - Definitions, inventory of existing open space and conservation areas in Carlsbad, and a list of references I 1 INTRODUCTION A. STATE LAW -- OPEN SPACE ELEMENT 1 Under state law , cities and counties must adopt an open space plan for "...the comprehensive and long-range preservation and conservation of open-space land within its jurisdiction." "Open Space land" ts defined as '... any parcel or area of land or water which is essentially unimproved-an-d devoted to an open-space use as defined in this section and.which is designated on a local, regional or state open-space plan as any of the following: 1. Open space for the preservation of natural resources, including, but not limited to, areas required for the preservation of plant and animal life, including habi- tat for fish and wildlife species; areas required for ecologic and other scientific study purposes; rivers, streams, bays and estuaries; and coastal beaches, lake- shores, banks of rivers and streams, and watershed lands. 2. Open space used for the managed production of resources, including but not limited to, forest lands, rangeland, agricultural lands, and areas of economic importance for the production of food or fiber; areas required for recharge of ground water basins; bays, estuaries, marshes, rivers and streams which are important for the management of commercial fisheries; and a,reas containing major mineral deposits, including those in short supply. 3. Open-space for outdoor recreation, including but not limited, to, areas of outstanding scenic, historic and cultural value; areas particularly suited for park and recreation purposes, including access to lakeshores, beaches, and rivers and streams, and areas which serve as links between majorrecreation and open-space reservations, including utility ease- ments, banks of-rivers and streams, trails, and scenic highway corridors. 4. Open spaáe for public health and safety, including but not limited to, areas which require special management or regulation because of hazardous or special conditions such as earthquake fault zones, unstable soil areas, flood plains, watersheds, areas presenting high fire risks, areas required for the protection of water quality and water reservoirs and areas required for the protection and enhancement of air quality." Section 65560 t seq., California Government Code 1 The intent of the legislation is clear - cities and counties are required to prepare plans for the preservation of existing unini- • proved lands within their jurisdictions that are devoted to the uses or functions listed under the four open space catego-ries. Such plansshould consider more than zoni.ng to preserve open space. They should consider the full range of governmental actions that can affect development,. such as public acquisition,' -t-he provision of utilities and services, annexation policies, the construction of highways and other capital improvements, use of the Williamson Act, subdivision regulations, and building codes and the relation- ship between open space and housing for all segments of the popula- tion. • 2 N B. STATE LAW - CONSERVATION ELEMENT Under State law 1 ,,, cities and counties must adopt a conservation plan. In order (1.). to enhance the relationship between resi- dents and their surroundings, and (2) to guarantee the viability' of the natural and human ecosystems, the Conservation Elerrient must acknowledge and plan for the physical resources, the cultural resources, arnd •the natural processes within or around the jurisdiction. The following resource ca'tegoris must be included: .• 1. Water 2. Forests 3. Soils 4. Rivers and Other Waters 5. Harbors 6. Fisheries ' 7. Wildlife 8. Minerals 9. Other Natural Resources 4. Section 65302 (d) California Goverment Code 3 C. STATE LAW - OPEN SPACE ZONING The City is req uired -by State Law1 to develop open space zoning ordinances to implement the Open Spac-e Element of the General Plan. The intent of this document is not to prevent or designate land uses but to regulate the manipu- lation of the environment to insure that all land development (whether it be residential, commercia, industrial, recreational, or agricultural) will be more res-ponsive to local physical and biological land resources and constraints. - - 1 Section 65910, California Government Code D. INTENT AND CHARACTER OF THE E.ENENTS There is considerable overlap in the components of the Open Space and Conservation. Elements as mandated by State law. The integratibnof these elements in this General Plan is a response to the inherent complexity of nature and environ- mental planning. It is clear that the legislative mandates for the identification, preservation, and utilization of defined open .space and conservation resources cannot be in- terpreted singly or carried out independently of one another. As a result, the coordination and synthesis of the two elements was undertaken to assure an integrated framework for the investigation and planning of these resources. It is the intent of the Open Space and Conservation Elements to: 1. Ensure recognition of the social, economic and aesthetic benefits which accrue from the preser- vation of open space within an urban environment. 2. Ensure recognit'ion. of the benefits which accrue from the conservation, development and utilization of natural resources. The Open Space and Conservation Elements are not intended, and shall not be construed, as authorizing the City to exercis-e its power td adopt, amend or repeal an open space or conserva- tion zoning ordinance in a manner which will take or damage private property for public use without payment of just compensation therefora, This plan is not intended to increase or decrease the rights of any owner of property under the Constitution of the State of California or of the United States. Land to be preserved and regulated for open space and conserva- tion purposes, and areas where it is salient to regulate the possible negative impact of development, are presented as follows: 1. Objectives and guidelines are established for land and natural features to be reserved wit in communities and for regulations necessary to control possible negative impact of development on the environment. (See Chapter III) 2. Certain existing open land, natural resources and environmental features are identified as integral and necessary components of the Open Space and • Conservation Elements • (See Chapter IV) 3. The general locations of "Prime open space and conservation land, representing a framework for an open space and conservation system, are identi- fied on the map titled "Prime Open Space and Conservation Areas". This land contains outstanding • recreation, ecological, natural, and scenic re- sources, as well as hazardous areas which should not be developed or should be carefully engineered for public health and safety at the tinie of develop- ment. '(See Chapter IV) It should be re-emphasized that not all land and water features identified as components of these elements are to remain completely devoid of development. However, development that occurs on this land must be consistent with good development practices, and must be regulated to conserve and protect certain physical features and environmental resources in a manner consis- tent with the open space and conservation policies of the City. -I 6 i 1 .11. GOALS AND POLICIES A. GOALS It is the goal of the City of Carlsbad: 1. To coordinate open space uses with other land uses for mutual enhacement and creation of.aHthurnanu urban environment, which includes development and expansion of recreational land, conservation of natural and man-made amenities, and preservation of options with regard to agricultural land. 2. To preserve optimum sustainable environmental quality levels with respect to air, water, sound levels, and plant and animal life. 3. To. prevent incompatible development of areas that should be preserved or regulated for scenic, historic, conservation or, public health and safety purposes. 4. To preserve and create an open space system of aesthetic value that will maintain community identity, achieve and sense of natural spacious- ness, and provide visual relief in the cityscape. 5. To preserve an adequate amount and variety of open space for outdoor recreation which shall include, but not be limited to, parks, beaches, areas for organized sports, connecting corridors with trails, water recreation areas (beaches, lagoons, lakes) unique conservation areas for nature study, and semi-developed areas for camping. 6. To protect select wildlife through the preservation of feeding, nesting, and breeding areas. 7. To conserve and encourage the use of all forms of Vegetation needed to (a) prevent erosion, siltation and flooding, (b) protect air and water resources, and (c) protect and enhance visual resources. B. POLICIES It is the express policy of the City of Carlsbad: 1. Agricultural Lands: To regard agricultural land and prime soil as a natural resource and as a significant contrasting land use to the urbanized environment of the City. 2. Development Areas: To encourage the provision of malls, plazas, green areas, etc. in structures and the preservation and provision of parks. 3. Greenbelts: To establish greenbelts to preserve and/or create open space areas as a means of maintaining community scale and identity, separating conflicting land uses, qnd achieving a sense of natural openness as an integral part of -urban surroundings. 4. Implementation: To provide an organizational structure to systematically develop and implement comprehensive plans for open space and conservation. 5. Landforms: To protect the unique variety of landforms distinctive of the City's topography and to ensure that the development process considers and strives to preserve these landforms rather than to create an unnatural, uniform landscape. 6. Outdoor Recreation: To conserve, develop, and utilize :-areas particularly suited for outdoor recreation by preserving areas of unique scenic, historical and cultural value and developing areas especially suited for active park and recreational purposes. 7.- Preservation of Natural Resources: To preserve natural resources by: protecting fish, wildlife,- and vegetation habitats; retaining the natural character of waterways, shoreline features, hill- sides, and scenic areas; safeguarding areas for scientific and educational research; respecting the limitations of our air and water resources to absorb pollution; encouraging legislation that will assistfir preserving .these resources. 1651C 47 8. Public Health and Safety: To protect public health -and safety by preserving natural and man-made hazard areas as open space and taking special precautionary measures to protect the public safety where develop - L. is possible and permitted. 9. Taxation: To promote the development and preservation of open space and conservation systems by encouraging and supporting tax assessment.. procedures whereby property is taxed according to the use of the land. III. OBJECTIVES AND GUIDELINES In general, the designation of open space aid the determination of conservation practices are dependent on an area's natural features, the location of urban development, open space and conservation goals, some recreation demand data, and the type of environment which citizens desire and are willing to achieve. The following objectives and guidelines are consistent with the previously stated goals and policies. It should be emphasized that a change in the goals and policies of the City of Carlsbad will necessitate a corresponding change in the objectives and guidelines. A Floodplain and Water Resource Management Objective: To Conserve, develop and utilize the water resoiices within the City of Carlsbad, including, but not limited to, floodplains, shoreline, lagoons, waterways, lakes, ponds, and reservoirs. Guidelines: 1. Water resources in the City of Ca'rlsbad should be maintained' in as natural and beneficial a state as possible by (a) conserving or improvingthe appearance and ecology of those which are in a relatively untouched ocnditiori, (b) restoring, in accordance with recognized ecological principles and insofar as it is possible, those water areas which have been significantly altered, to a condition which is most bene- ficial to the public, and (c) simulating a natural condition in areas which are to be altered in the futre for purposes Of safety engineering, water conservation, or recreation. 2. Alteration of waterways, that would cause significant adverse impacts on the environment should be prohibited. 3. Where feasible, future developments should integrate natural waterways with other open space systems of- the City with a view of maximizing the benefits of them to all citizens. 4. Industrial waste, agricultural runoff, water softener dis- charges, domestic detergents, and other forms of water pollution should be controlled in the sanitation sewer system, the storm drain system, and other methods of control as defined in State, Federal, and County laws. 5. TIte i:nterim policies of the California Coastal Zone Conserva- tion Commission and resultant land use plan will be recog- nizad and t.H-e'i when evaluating development in the coastal area. SlAere 6. Proper design criteria should be utilized to protect the integrity of the water resources in the City. 10 B. Hillside and Soil Resource Management Objective: To preserve the identity of those areas of the City with unique topographic features and to estab- lish proper soil management techniques to eliminate or minimize adverse and unsafe soil conditions. Guidelines: 1. Grading for building pads and roadways should be accomplished in a manner that would maintain the appearance of natural hillsidesterver- ?o%4I6ie. 2. Soil reports, plans for erosion and sediment control measures and provisions for maintenance responsibilities should be a requirements of any approval process. 3. Density and intensity of development on hillsides should relate to the slope of the land in order to preserve the integrity of the hillside. 4. Proper design criteria should be utilized to preserve the integrity of thehillsides and soil resources of the City. 11 C. Agricultural Lands Objective: To prevent the premature elimination of prime agricultural land and preserve said lands wherever feasible. Guidelines: 1. Urban development should take place in those -..areas that..are the least .4t-tcu4...%t), p-øcLvc.twe. Z Agricultural use should be encouraged as a permissible land- use in those areas designated in this document as open space. 3. The City should support and utilize all measures available, including the Williamson Act, designed to reduce the financial burdens on agricultural land, not only to prevent premature developments, but also to promote the economic viability of lânds .micy. zoned for agricultural uses. 4. Proper design criteria should be utilized to maximize the preservation and future options of prime agricultural lands. 1. / 12 D; Unique and.Special Resources Objective: To conserve, develop. and utilize those areas of the City that provide unique nd special open space functions including, but not limited to,,visual amenities, recreational uses, landmarks, buffers between incompatible land uses, wildlife habitats and unique and desirable vegetation. Guidelines: 1. Areas that provide unio yi,ual amenities and shape the urban form should be faMtteNnpace. These areas include hillsides, hilltops, valleys, beaches, lagoons, lakes and other unique resources that provide visual and physical relief to the cityscape by creating natural contrasts to the built-up, man-made scene. 2. Open space should be used to provide neighborhood, district, and City identity and to provide separations between con- flicting land uses. 3. Use o.f the Land Conservation Act, scenic easements or open space easements should be pursued to preserve unique and special resources in the City, 4. Creeks, utility easements, and other open areas should be utilized as part of an overall master plan for parks and. recreation facilities. 5. Where feasible, the City should exchange excess vacant lands for more useful open space areas. 6. Open space lands held by the public for recreational use should be accessible and should be provided with essential utilities, public facilities and services. 7. Proper design criteria should be utilized to preserve the unique and special resources in the City and to.integrate them into the deign of any development. 13 IV. OPEN SPACE AND CONSERVATION RESOURCE MANAGEMENT PLAN A. DESCRIPTION AND INTENT OF PLAN: This section, including textual content and graphic presentations, and subsequent,-mandated open-space zoning requirements, constitute the Open. Space and Conservation Resource Management Plan for the City of Carlsbad. The intent of the Plan is to accomplish the goals, policies and objectives of the elements in an equitable manner. The Plan is structured to identify the resource areas and establish developmental standards. By the adoption of these elements, the City-of Carlsbad declares that the proper management of the City's en- vironmental resources requires standards and criteria for the protection, maintenance, and enhancement of valuable natural, economic and cultural resources. 14 p 1. Components of the Pla-n:. The following lands are integral and necessary components of the Open Space and Conservation Resource Management Plan: a. Reserved Land Within the City: (1) Publicly-Owned Open Space: Used for recrea- tional, educational, instituti -onal, conse•r- vation, and protective purposes including parks, beaches, lagoons, trails, access ways, golf courses, school playgrounds, reservoirs, cemeteries, sanctuaries, botanical areas, flood control channels, airport clear zones, disposal sites. (2) Privately-owned open space committed to and used for recreational, educational, conser- vation, and protective purposes including parks, playgrounds, .beaches, beach access ways, greenbelts, cemeteries, lagoons, and nature areas. b. Semi-Reserved and Restricted Land: (1) Held privately or publicly on less permanent basis for recreational, agricultural., or transportation purposes including golf courses, agricultural preserves, airports and clear zones, railroad rights-of-way, highway and street rights-of-way, utility easements, and beach access. (2) Planned publicly or privately for recrea- tional or other open space purposes including areas as designated in the general plan of the City. c. Unreserved land whose undeveloped state or open space function is susceptible to developrient including: (1) Scenic areas. (2) Sensitive landforms such as ocean and lagoon bluffs, beach sands, excessive slopes, land- slide areas, major peaks and ridges, and flood plains. (3) Sensitiveecological areas such as wildlife habitats,bird refuges, marshes, mudflats, riparian habitats, and areas of unique vegetation. (4) Natural resource lands such as crop and gr-a:inq lands, Class I and II soils, sand and gravel deposits, and watersheds. 15 (5) Historical and Archaeological Si tes (6) Areas buffering. and structuring the form of the City and all of its components. 16 2. Order. of Importance of Open Space and C.on.servation Resources: The order of importance for the protection, main- tenance, and .enhancement of open space and conserva- tión rësourcesis as follOws: 1st Areas which would be maintained as open space in order to provide for, public health and safety including flootiptains, geologic hazards and water resources'. 2nd Areas which would protect and enhance hill- side and soil resources, wildlife habitats and unique vegetation. 3rd Areas most suited for agricultural production. 4th Areas having unique and special resources in- cluding, but not limited to, visual amenities, recrea,tional uses, landmarks, areas which - provideb.uffers between incompatible land uses, and areas which provide linkages to larger open space areas and give form and identity to the City. 17 B. Prime Open Space and Conservation Areas: The map titled "Prime Open Space and Conservation Areas" designates those high priority resources that are combined to create a logical and comprehensive open space system. These resources include: .Floodplain and Water Resources .Hillside and Soil Resources .Agricultural Resources .Uniqu.e and Special Resources It should be recognized that many of these resources are not identified as prime areas but would collectively serve to provide additional significant open space to the citizens, even though they are not individually large enough to be mapped or described. The areas shown on the map include, but are n-ot limited to, the following: I. Existing school and park sites. 2. Proposed Regional Parks and other major recrea- tional areas including golf courses. 3. All marine waters, tidal flats, lagoons, marshes and estuaries. 4. Floodplains and major waterways. 5. All land and bodies of water necessary for the preserv-ation of wildlife habitats and unique and desirable -vegetation. 6. Significant grove areas. 7. Airport flight approach and take-off zones. 8. Water reservoir Sites. 9. Utility corridors. Uhen development is proposed to take place which may have an effect on these areas, special regulations should be utilized to assure that the intent of the Plan is being carried out whenever possible. It is to be understood that the standards, criteria and ordinances established by this Plan would be utilized in conjunction with the standards and regu- lations of the City's zoning code, subdivision code, and any other related ordinances, resolutions or policies. In the case of any land for which contradictory standards or regulations exist, the more restrictive standard or regulation should apply. 18 No use, development or alteration of land identified on the map titled "'Prime Open Space and Conservation Areas should be allowed unless there is compliance with the objectives and guidelines of the Open Space and Conservation Resource Management Plan. The following recommended standards should apply to any use, development or alteration of land designated on the map as open space, provided, however, that such standards would not apply to the development of less than one single family dwelling unit on •a parcel of record at the date of the adop- tion of Open Space and Conservation Elements of the Carlsbad General Plan. 1. For any use development or alteration of a parcel designated as open space, intensity of development should be restricted to a level that protects and conserves the natural resource potential of the parcel 2. The building height,minimum lot sizes and setback standards specified by the underlying zoning should increase or decrease if such increase or decrease is necessary for-the compliance of a proposed use, development or alteration with the purpose and intent of the Plan. 3. For any residential development of a parcel identified in the Plan, the following ilding types are permitted: Single-family detached dwelling units, duplexes and multiple-family dwelling units;-'provided however that maximum number of dwelling units shall not exceed the maximum number of units that wo.uld be permitted pursuant to the standards of the base zone in which use, development or alteration is located. However, dwelling unit density and intensity of development indicated therein may be further -reduced if dictated by the following land carrying capability considerations: .topography (slope) .geology (slide, soils) .access(availability of road access) .public facilities and services (availability) .ground cover of propsoed improvements .scenic values .ecological values 19 0 C. Implementation Development of a viabTe Open Space and Conservation Resource Management Plan re-quires a concurrent implementation pro- gram. Such 'a program must identify public and private areas of cooperation and the tools needed to develop the Plan. As such, this implementation program discusses existing sources of funds for open space land, methods of preserving open space, existing land use controls n&a -program for the implementation of the Plan. The preservation of open space often requires interference with the individual property rights of the private land owner. It should also be understood that the Plan cannot be implemented without some cost to the City, even if only the cost of administration. However, as this sec.tion indi- cates, the City need not buy a fee simple interest in every acre of land it wishes to preserve as open space. There are other methods available that accomplish. the same purpose. . . 21 1. Available Tech n iq ues A variety of techniques are available for the acquisi- tion or management of open space.and conservation areas, both at the regional and the local scale. These methods generally fall into one of the following, categories: a. Acquisition of Fee l) Purchase a) purchase with life estate b) lease purchase c) excess condemnation (or purchase) d) purchase and leaseback e) option of purchase f) deferred purchase 2) Gift a) in fee b) with life estate 3) Trade or trari'sfer of public land 4) Tax foreclosure 5) Street vacation 6) Urban redevelopment process 7) Dedication (Quimby Act) 8) Eminent domain b. Acquisition of less than fee (by purchase, dedication or gift) 1) Open space/conservation easements 2) Development rights and/or eas-ements 3) Public easements to beaches, recreation areas, etc. 4) Slope conservation easements 5) Scenic easements (for highways, park entrances, historic sites and/or-areas) 6) Public purchase and resale with certain restrictions 7) Compensable regulations (should be combined with zoning 8) Open Space Maintenance District -, 22 c. Zoning Actions (police power) 1) Flood plain zoning 2) Ocean - submerged land zoning 3) Zoning to preserve scenic amenity (height limits, sign control, architectural control, etc.) 4) Exclusive agricultural zoning 5) Open Space zoning - parks, open spaces, stream - valleys, flood plains, watershed protection areas, cemeteries, golf courses and country clubs, where shown as open space on the general plan. Other lands should be considered under type of zone to restrict development, hillside areas, wetlands, slide areas and earthquake zones. 6) Zoning for large lots (Estate Zoning) 7) Planned unit developments. (P-C. P-M, etc.) with openspace requirements (cluster development). d. Other restrictions on develo pment 1) Possible control over developments by the Federal Housing Agency (FHA) 2) Private restrictive covenants 3) Designation of Open Space Plan as "open space" 4) Denial of public facilities 5) Requirements for Environmental Impact Statements, and 'requirements of A.B. 145 and A.B. 1301 6) Subdivision Regulations e. Transferable Densities 1) Provides for density t.ransfers or reallocations to private landowners in order to secure and/or preserve open space and conservation areas 2) Establishes procedures to allow a property owner to transfer by sale, with the approval of the City, his lands development density to another property in the same section of the City. 3) Requires the property owner incurring a reduction in the development potentia-1 of his property to dedicate the development rights to the City. 23 f. Tax Incentives 1) By contract 2) The California Land Conservation Act of 1968 (Williamson Act) allows valuation of farms at present use value. - -: 3) California constitutional amendment providing tax exemptions for non-profit golf clubs (valu- ation for recreational use). In order to qualify for such exemptions, golf courses must be 10+ acres and non-profit. 4) Reduced tax assessment when the public has acquired development rights or other easements. 24 2.. Criteria for Determining Technique Basically, the levels of land use controlfor open spade and conservation purposes presently in use in California range from purchase of the full fee, which is total exercise of control; through acquisition of less than the fee, to zoning, which is the least permanent method of control as presently exercised. Tax benefit methods of exerting influence are little used, though .desirable, and when used, are used in • - combination with zoning or less than fee acquisition. The • major tax incentive device utilized in Southern California is the Land Conservation Act (Williamson Act). The following are criteria that may service as guidelines in judging the level of control necessary for the preservation of various open space and conservation components.. a.. Acquisition of Fee This method of control is recommended when the desirable open space areas are in danger Of development for other than open space use and: i.) the areas are intended for full public use such as public recreation areas or watershed areas, or 2.) preservation of the open space use would preclude any private use whatsoever. NOTE: If the less than fee rights are in the neigh- borhood of 75% of the full fee it may be de- sirable as a matter of policy to acquire the full fee. This judgment is made in some cases such as in State Department of Water Resources acquisitions. b.. Acquisition of Less than Fee This method is recommended when the desirable open space areas are in danger of development for other than open space use and securing of "less than fee rights" such as scenic easements, conservation easements, and development rights will leave substantial and valuable rights with the property owner. These rights may be for farming, grazing, dairying, private recreation, very low density housing, limited mineral development, etc. C.. Zoninc and Development Controls This method is recommended when the character of the 26 desirable open space areas can be permanently preserved in private ownership under zoning and development -controls. 1 ) Zoning for public safety Under this classification would be those areas con- sidered unsafe to build on because of flood hazard; land subsidence, steepness of shape, fire, slide Or earthquake hazard, or airport approach zone hazard. 2 ) Zoning for conservation or scenic amenity - Under this classification would come agricultural preserves, exclusive agricultural districts, areas for mineral extraction, scenic conservation districts, open space zones, special treatment, or design control zones and estate size property zones. Ti I' 27 3. Fundinci- Sources One of the main problems in providing open space and conservation areas is the lack of local funds. Acquisition of open areas requires financial assistance from Federal, State, and County sources. The major funding sources include: a Open Space Land Program (Legacyof Parks Proqram): This program is administered by the Department of Housing and Urban Development. It providesmatching grants covering up to 50 percent of the costs of-acquiring and developing recreational, conservation, scenic, and historic lands. However, this program is currently at a standstill in reference to new grants and was recently suspended. Its future is doubtful, as the current national adrhinistration would like its functions to be absorbed. under general revenue sharing through sharing through the Better Communities Act. b. Land and Water Conservation Fund: Another federal program is authorized by the Land and Water Conservation Act of 1964. It established a 50-50 matching grant program to states for planning, acquiring, and.developing recreational open space lands. Funds for local jurisdictions and counties are administered through the. State of California Department of Parks and Recreation. Each proposed acquisition or development project must meet high priority public recreation needs shown in the action program of the State Outdoor Recreation Resources Plan. The local agency must dedicate thTe project to public outdoor recreation use and assume responsibility for continuing operation and maintenance. The San Diego region's share for the 1973-74 fiscal year will be $127,572. This low figure is in part the result of a two-thirds nationwide cut in funding. However, it is possible that funding could go back to its previous level. Also, California does not receive its proportionate share of these federal funds due, to a limit set at 7 percent of the total amount appropriated by Congress that any one state may receive. A bt'1l has been introduced in Congress to raise this figure to 10 percent. C % State Bond Act of 1974: Of perhaps more Importance than any federal program 'is the. propoed State Beach, Park, Recreational and Historical Facilities Bond Act of 1974. This proposal will be on the June 1974 ballot and, if approved, will provide $250 million for the acquisition and development of parklands, beaches, and historical sites. Of this total, $90 million would be made available to cities, counties,' and special distrIcts with the San Diego region being entitled to aoproxirnately $6.3 million. The county government is required to play a major role in the program by working with the thirteen cities to decide how the region's share should be utilized. The recommenda- tions made must be in accordance with local plans for parks and recreation and open space. d. Bagley Conservation Fund: Another source of funding is the Bagley Conservation Fund, which applies only to the state park system. Approved by the legislature in 1971, it includes a $40 million allocat'ion for state beach, park, and land acouisition to be spent over three years starting with fiscal year 1971-2. The emphasis is on coastal and urban areas, with particular emphasis being placed on Southern California sandy beaches. Due to a state budqet sup1us, consideration is being given to adding $50 million to this fund to be spent over a three year period. . , 28 6 , State Park and Onen Space Fund: A possible future source of dings is proposed state i.egi.slative Bill A8920, Park and Open Space Fund. This would augment revenue sources of local government for park and open space acquisition, restoration and maintenance programs. The bill proposes a 1.1 percent sales tax on the transfer of real property. (All owner-occupied homes' will be exempt). It would generate approximately $75 million (based on 1971-2 sales estimate). The local governments and park districts would receive 30 percent of the fund to use at local discretion and 50 percent for specific projects. The state would receive 20 percent, with the C'aliforni'a coast being designated as one of the areas of high priority for preservation. f..Local Bond Issues: It seems clear from the limitations of existing funds that the great majority of open space acquisition funds will have to come from local sources, such as general obligation bond issues. If those bonds can be repaid through methods other than property taxes (such as San Diego's Environmental Protection Fund, which is derived from the franchise tax on public utilities) they would seem to have a better chance of passage and would not present an added tax burden to property owners. 29 4. ACTION PROGRAM The following action program should be undertaken by the City of Carlsbad in developing an extensive planning effort which will implement the Open Space and Conservation Elements of the General Plan: a. To adequately protect significant open space lands during the preparation of a comprehensive set of "open space" zoning ordinances, the City of Carlsbad should adopt an interim emergency open space zoning ordinance as authorized by Section 65858 of the Government Code. This ordinance can remain in effect on an emergency basis for up to two years with periodic ratifications. The interim ordinance should (1) establish a permit procedure (containing developmental standards and design criteria) for the development of any areas identified as important resources in the Open Space and Conservation Elements of the General Plan; (2) provide procedures for a project-by-project review of every proposed project within the permit area; and (3) require the developer to provide the necessary information (in conjunction with the Environmental Review process) to show that the development will not adversely affect any significant open space area. The interim ordinance will establish the following procedure: Cl) Identification of permit areas; (2) Determining which developments within the permit area must obtain a permit; (3) Distinguish between those developments which may obtain a permit administratively, and those which must go before the local, governing body; (4) Application process, notification of interested public agencies, appeal procedure, and public hearings; (5) Standards under which permits will be-issued. b. Development of an extensive planning effort will be required to collect and interpret a substantial amount of environmental data. According to the map titled "Prime Open Space and Conservation Areas" in the Open S,pace and Conservation Element, the City of Carlsbad has identified the following four resource areas: (1) Floodplain and Water Resources; (2).Hillside and Soil Resources; (3) Agricultural Resources; and (4) Unique and Special Resources. Environmental data will be collected from all available sources and mapping will be conducted in necessary areas such as scenic vistas, historic corridors, unique wildlife habitats, etc. This phase of the planning effort will, therefore, consist of research, data collection and interpretation of the four identified resource areas. Specific plans will be developed from thi:s information to implement the Open Snace and Conservation c. A comprehensive set of "open space"zoning ordinances will be drafted to implement the specific plans discussed above. These shall include, but not be limited to, the following areas: Elements. 30 (1) Floodplain Zoning Ordinance (2) Water Resource Management Ordinance (3) Hillside Development Ordinance including-slope/density standards and proper grading and landscaping techniques (4) Development of an Exclusive Agricultural Zone to be used at the property owner's request (5) Overlay Zoning Ordinances to Thclude scenic vistas, scenic corridors, wilditfe habitats, areas of unique vegetation, recreattorial lands, special landmarks and areas that buffer incompatible land uses. 30-a In addition to the above, one or more of the following actions could be undertaken by the City in order to keep the Open Sjsace and Conservation Elements currnt and relevant: a. Assist single purpose agencies to plan for and acquire when needed, and in advance of need in some cases, • those areas that will be required for their specific open space and conservation purposes (financing, coordination, and land bank functions). b. Continue the tasks in process to develop and refine statements of goals, operational objectives, and th divisions of responsibility required among the several levels of government and the private sector which are required as a basis fof achieving ef- fective intergovernmental management of open space and conservation resources. c. Develop additional devices and procedures for insuring the fullest degree of coordination and communication with all affected public agencies as a basis for their support to the City's plans and their imple- mentation prOvisions, where relevant to their area of jurisdiction. d. Conduct more detailed analysis of the natural environ- mental factors of geology, hydrology, soils, plant and animal ecology, climate, and resources which are fundamental to the planning of a viable and effective open space and conservation system. Continue to identify the location and significance of hazardous, unstable seismic or other areas in which urban development should not occur, as well as areas of exceptional, unique or fragile character which should be conserved as areas of positive open space valud. The environmental impact report process could be utilized to implement this action. e. Develop more detailed demand estimates, space standards, and service area criteria for all foris of open space, conservation, scenic highways and recreation in the City, and evaluate the attitudes and desires of recreation consumers. Identify the varying human needs for different types of recreation facilities and services in the City and respond to the special needs of the aged, the young and others whose mobility and ranges of choice are limited geographically, physically or economically. 31 f. Compare the full range of demands for various types of open space, conservation, scenic highways and recreation lands with the inventory of natural and man-made resources of the City . Match the activities and facilities to specific sites and locations which are physically suitable. and efficiently located. g. Develop quantified data on the respective economic and social costs and benefits of alternative open space - urban developmen:t plan options and specific sites. Develop a procedure which the City can operate on an on-going basis to monitor the economic effects of actual change produced by public and private sector development actions, as a means of improving the adequacy of the preservation plans and programs to meet their objectives. h. Supervise the preparation of prototype site plans and design studies to -illustrate -recommended developmental approaches fôrvarious open space, conservation, scenic highway and recreation lands. j. Provide-landowners and interested citizens with information on estate, income, and property tax consequences of various forms of ifts; and have available for discussion with pro- C> donors, legal forms for the conveyance of various types of interest, such as the fee, the fee subject to a life estate, scenic easements, flooding easement, and fee subject to reversion if the government ceases to use the land for open space purposes. . Continue to prepare-and refine a long-range plan for a de- tailed City-wide system of open space, conservation, scenic highways-and recreation lands on the basis of the evalua- tions and tasks described above, to optimize the benefits of the City's unique setting and environment. This will consist of a map of the entire City, 'on which will be in- dicated all existing or proposed open space, conservation, scenic highways, and recreation lands. It.will also con- sist of a plan text describing each of these lands or locations in terms of the approximate size of the sites, the purposes or functions they are intended to serve, their current status of development and ownership, their estimated cost, and the means recommended to implement their inclusion with the open space, conservation, scenic highways and recreation lands system. The plan map and text will constitute a combination of the Open Space, Con- servati.on, Scenic Highways Elements and certain aspects of the Recreation Element of the City's General Plan, and '.-.-ill provide the basis for preparing reqired environmental im- pact reports. -. 32 k. Initiate, coordinate, and supervise specific implementation programs for both short-range and long-range plans, in- cluding among other items a capital improvement program, a financial plan, proposed changes to the City's development regulations, and the acquisition of fee and less than fee rights to land. 1. Undertake specific site evaluations with theintent of securing Open Space Easements in accordance with adopted policies and plans. Analyze and report to the Planning Commission the specific restrictions and/or privileges to be secured. rn. Give special consideration to the use of density transfers or reallocations as a means of preserving open space. While cluster or planned community development permits variable density within a single residential district, transferable density zoning permits variation throughout a whole community. It might be initiated by taking the following steps: 'The city would determine the average density required to accomodate an optimum future population. Then it would create a fixed number of "density units," each of which permits 'con- struction at a given level of density. These density units would then be allocated to the property owners according to the size and presently permitted use of their holdings. The .density-units would be freely transferable: They could be bought and sold. Should a developer wish to construct a high -density subdivision, he would have to buy enough density units from property owners to achieve the desired density for the subdivision. Establish procedures to allow a property owner -to transfer by sale, and with the approval of. the city, the development density to another property owner's parcel in the same section of the city. Require the property owner .incurring a reduction in the development potential of his propert to dedicate the the development rights to.-the city. Unlike zoning, this action is considered an "enforceable restriction" under state law and will impact the tax assessment of the'g'rantor's property and hence his property taxes. (Technical Note: Real property subject to taxation is assessed at the full value thereof. Full value is defined judicially as the prjce at which the property would sell under ordinary circumstances. The transfer of density to another landowner's parcel and the dedication of the development right to the city would lower the value of the property of the grantor and hence his property taxes but, would likely increase proportionately the value of the property receiving the increase in development density.) u., rovi'de landowners and interested citizens with information on agricultural preserves as established by the Land Conservation Act and encourage its uti'li'zation wherever feasible. 33 V.• APPENDIX - A. Definitions: For the puruose of this document, certain terms or words used herein shall be interpreted as oUows: Words an the present tense include the future, words in the singular number include the plural number, and words of the masculine gender include the feminine gender. The word "shall" in mandatory, not - permissive, unless the context indicates that a directory mean- ing is intended. 4centth—Lands shall be considered adjacent if they share a common boundary line; or if they do not share a common boundary line they are separated only by a public right—of—way or easement. Base District—The underlying zoning classification established by the City Zoning Code 1 including combining districts. Cleared Areas—Land areas where vegetation has been removed to the extent, that the native soil is disturbed end exposed. Agricultural cultivation shall not be considered as cleared areas. Development -- On land, in or under water, the placement or erection of any solid material or structure; discharge or disposal of any dredged material;- grading, removing, dredging,' m4titig, or extraction of any materials; change in the density or intensity of use of land, including, but not limited to, subdivision of land pursuant to the Subdivision Map Act and any other division of land, including lot splits; construction, reconstruction, demolition, or alteration of the size of any structure, including any facility of any private, public, o-r municipal -utility. Elevation—The vertical distance of any given point on the land abbve or below sea level or other base level of rerence. Enforceable Restriction Land subject to restrictions as provided by: 1. A Contract'—* ontract' executed by the City and the fee owners of the surace and trust deed beneficiaries and mortgagees of record of land under contract to preserve land (usually for agricultural use) as open space for a minimum period of ten (10) years. 2. Open Space Easement -- An instrument whereby the owner of real property relinquishes to the City, in perpetuity, or for a minimum period of twenty (20) years, such right of interest which, through the limitations it provides, will effectively preserve the character of the land or provide for public use in accord with adopted city open space and conservation objectives. Existing Parcel—Any parcel it existed and wa defined by boundaries at the date of the adoption of this General Plan document. G-noral_Plm—The adopted General Plaa of th City of Carlsbad i.nc:.LL' ui di_CT:lefl L:; fl ,:T' "nL , nJ au-dtioa'; 34 Any alteration of land that Increases or.-decreases the existing elevation more than one foot or that requires the moving of one hundred (100) cubic yards or more of earth, with the more restrictive standard to be used. Internrtation of the Boundar:i Lines: When uncerainty exists as to the precise boundary lines of the areas identified on th map, such boundary lines shall be interpreted in the following manner: 1. Where boundaries appear to follow the center line or street or highway line of a street or highway, boundaries shall be construed to follow such lines. 2. Where boundaries appear to be approximately parallel to the centerline or street or hi ghway right-of-way line of. a street or highway, boundaries shall be construed to parallel such lines. 3. Where boundaries appear to follow ownership boundary lines, boundaries shall be construed to follow such lines. 4. Where boundaries appear to reflect environmental and resource management considerations, boundaries shall be construed in a manner which is consistent with the eth.Lronmental and resource management considerations that the boundary reflects. . Any district boundary line which bisects a parcel shall include in the district only that portion of the-parcel which is enclosed in the District by the boundary line. Land Coverag—A manmade structure, improvement or covering that prevents normal precipitation from directly reacing the surface of the land underlying the structure, improve- mentor covering. Such structures, improvements or cover- ings include roofs and surfaces paved with asphalt, stone or the like such as roads, streets, basketball courts and patios. A structure, improvement or covering shall not be considered as land coverage if it permits at leat seventy- five (75) percent of normal precipitation to reach the surface underlying it. Natural—A state existing in nature or produced in accordance with what Ls found or expected .in nature. Natural Resource Land -- Land deemed to possess or encompass bioloçiical or mineral resources. 35 ce-Ed and water which is essentially free of structures and buildings and/or is natural in character. Open Space -Lands—In adcordance with Article 10.5 of the California Government Code open space lands are hereby defined as lands which are both devoted to open, space use (as defined) and so designated. . Parcel—An area of contiguous land owned by a person. Parcel of Record—An area of land shown as a separately bounded area on a recorded subdivision plat or deed, or a number of contiguous areas of land owned br a person all of. which are shown as separately bounded areas on a recorded subdivision plat or deed. Person—An individual, partnership, corporation, business association, or group of individuals and any governmental entity. Plan -- The Open Space and Conservation Resource Management Plan for the City of Carlsbad composed of the Open Space and Conservation Elements plus required Open Space zoning ordinances. Preserve -- To maintain and protect and, in certain insta:nces, allow development and utilization that retains desirable factors. Scenic Lands Land possessing outstanding scenic qualities worthy of preservation. Sens i tive..-- subject to undesirable physical changes if one or more, elements of the environment are destroyed or altered. Significant Adverse Environmentajjpact -- An irrevocable and discernible modification of the land, water, air, or biological resources (including endangered species of vegetation and wildlife) by any subdivision, use, develop- ment or alteration which is determined to be injurious to the general health, safety or welfare of the public, or which lowers the quality of life. Slope—For the purposes of this document, the rise or fall of the planar surface of the land measured as a percent or ratio of horizontal distance to vertical distance. Subdivision—The act of dividing an existing parcel of real properby into two (or more) parcels or condominiums. Total Parcel Arca—The tobsi area of a parcel no including water bodies or exterior streebs, highways or abhor rights-of-- way. Any areas not included in a Resource Management District shall not be part of the total parcel area of a parcel. 36 Use 7 velopmeñt or Alteration—Any human activity involving the changing of topography of the land, erection of buildings or structures the creation of land coverage, subdivision of land, the construction of drainage ways or conduits, removal or destruc- tion of rare or endangered species of vegetation or wildlife, the transmission of storm or waste water-and any other similar activity; or the maintenance of any activity upon lands gtationAny living plant organism such as grasses chaparral, brush, sbrubs, trees. 0• 37 B. STATUS OF OPEN SPACE AND CONSERVATION IN CARLSBAD To logically prepare a general plan and implementation program for the preservation or rational development of open lands, knowledge of opportunities and the current status of open lands is necess.ary. The following is summary of certain components :Of the open space and conservation resources existing in the City at the time of preparation of the Open Space and Conservation Elements: 1. Rapid Transition: Various economic, pressures 'and governmental decisions coupled with population growth have over the past few years stimulated the rapid transition of land from rural, agricultural, natural and scenic resources, conservation and recreation uses to urban uses. - 2. Urbanization: An examination of the urbanized areas of Carlsbad demonstrates that past development policies have resulted in a lack of preservation of sufficient open space, and that development has occasionally en- croached upon flood 'plains, lagoons, steep slopes, wooded areas and prime agricultural land. 3. Topography: Carlsbad can be divided into 3 distinct topographic areas. The beach comprises less than 1% of the City, and the terrace about 30%. Approximately 7:04 of the City consists of rolling hills. o Beach: The beach is very narrow. Its width does not exceed 500 feet, and is generally less than 200 feet. Approximately a third of the coastal boundary, from Iatiquitos Lagoon to Pal- omar Airport Road, is sea cliffs which range from 40 to 50 feet high. Of the approximately 6-1/2 miles of beach in the City, more than four miles is in public or quasi-public ownership. o Terrace: The terrace is gently and' uniformly inclined to the west. Maximum elevation ran g es from about 40 feet in the west to about 400 feet in the east. The ter race is 'cut by the channels of four west-draining streams, three of which empty into lagoons. o Hills: In the area of rolling hills, elevation ranges from about 100 feet to about 1,000 feet, but 80% of the area is less than 500 feet. Greatest relief is along the eastern boundary of the City. Here the hills are steepest, with sharp, incised drainage divides. 4. Major Recreation Areas in Carlsbad: No non-bea.h regional or community parks exist in Carlsbad. There - are only five neighborhood parks serving 'the entire population of the City. S. .Coastline: The coastline is a major resource of Carlsbad. The public's access to these coastlines have been impaired, not -so much by development, but by —1 lack of improved access. 6. ,Canyons: The canyons have great importance for Carlsbad because they have considerable value to a comprehensive open space system. The present policies of the City do not adequately p±otect these resources. 7. Watercourses: Development of CarlsbadTs river beds and creeks has had at least two detrimental effects on the environment. First, development in certain areas of Carlsbad has blocked the natural flowing of water. Second, the soil of the watercourses and banks is quite fertile and development precludes its cultivation. 8. Steep Slopes: Steep slopes are central to the problem of flood control and erosion. This is particularly true in the Carlsbad area where natural vegetation ahd ground cover is not thick, and the rainfall is • concentrated in the winter season in which 90% of the annual precipitation 'occurs. Also, construction on steep slopes often results in a form of urbaniza- tion that is difficult and costly for the .City of Carlsbad to service, besides presenting grave public safety hazards when steep slopes are, unstable. • Approximately 10% of the City contains slope lands greater than 26%, and 15% of the City contains slope lands ranging from 16 to 25%. If these slopes are 'left predominately undeveloped they can give a greater impression of openness than their size alone would indicate- -particularly if they are abutted by low-lying areas of urban development.. 9. Agricultural Soils: There is no program to preserve prime agricultural soils in Carlsbad at the present time. The Land Conservation Act has not been used. 10. Hills: Excessive alteration has occurred to utilize hills and hilltops for home sites. 39 Ii. Surface Water: Surface water in Carlsbad is too meager and undependable to be considered an exploitable resource. The Water Resources Division of the U.S. Geological Survey-studied th.e flood potential of the streams in Carlsbad. The areas susceptible to flooding are those underlain by alluvium, the lower reaches of the four main drainage basins, and the lagoons. These areas are shown on the map titled "FiQod Prone Areas." Most of the streams are intermittent and drain into the three lagoons: Buena Vista, Agua Hedionda and Batiquitos. Only Agua Hed.ionda is a tidal lagoon open to the ocean. San Diego Gas and Electric Company does perioc1iñàinteflanCe dredging to assure adequate cooLmg water for theEncina Generating Plant. Batiqultos Lagoon contains blackish water; the degree of salinity varies.seasonally with the amount of rain- fall. Buena Vista Lagoon is a freshwater lagoon and is being maintained b.ythe Cities of Oceanside and Carlsbad. The lagoon is owned by the State Department of Fish and Game. The lagoons have been utilized in the past for sewage disposal and the head of Buena Vista Lagoon has been artificially filled. At the.present rate of siltation, with debris origi- ia±.ing mainly from construction projects in their drainage basins, it will be perhaps ten to twenty years before Buena Vista Lagoon and Batiquitos Lagoon arQ filled in. If these lagoons are to be preserved, a comprehensive program of erosion and siltation con- trol would have to be undertaken. 12. Groundwater: Data from the California Department of Water Resources Indicate that the only sources of groundwater in Carlsbad are the alluvial deposits and the La Jolla Group rocks. About 80% of the groundwater is in the alluvial deposits with the remainder :'In- -the La Jolla Group; : Groundwater is currently being used for rural and agricultural purposes. Chemical analysis performed by the Department of Water Resources show dissolved salts and minerals make the water of questionable quality for domestic use, but it is considered ade- quate for agricultural purposes. The Department of Water Resources data indicate that there is no area within the Carlsbad City limits where a high yield well could be de\reloped. 13. Flood Prone Lands: Mapped in this document are 100 year flood prone areas with upstream drainage areas exceeding 25 square miles. There is a 1 in 100 chance on the average that these lands will be inun- dated during any -year. Detailed analyses of flood prone lands are contained in the reports prepared by the U.S. Army Corps of Engineers for the Buena Vista and Agua Hedionda Creeks. Information on the San Marcos Creek/Babiq1Ji.tOs Lagoon may be obtained from the San Diego County San±tation and flood Conro1 District. 14. Water Resources: In Carlsbad, as wellas other coastal communities, where competition for land is intensifying, it is particularly difficult to coordinate land use and water resource/open space/conservation planning. Flood control will become an increasing problem in the City. Owners of property in flood plains will desire flood control channels to protect thèir investments and maximize the development potential of the land. Provision of a -flood con- trol channel would make possible urban development on presently undevelopable land. On the other hand, retention of the lower reaches of the flood plains as open space has, benefits for the general public. The watercourses in Carlsbad have the potential of providing natural greenbelts dividing existing and possible future development. On portions of the flood plains agricultural develop- ment and golf courses can provide forms of open • space which are compatible with passage of flood waters. It should be strongly emphasized that near urban areas, river bank vegetation, golf courses, and agriculture cannot survive if subject to the market economy. To be preserved as open space and green- belts, they have to he afforded the same kind of protection that city parks have. 15. Vegetation and Wildlife Habitats: The majority of vegetation cover in Carlsbad can he divided into four types: (a) Coastal Sage Scrub and Chamise Chaparral, (b) Eucalyptus Grove and Woodlands, (c) Cultivated, Fallow Fields, Grasslands, and Disturbed (Ruderal) Areas, and (d) the Vegetation Associated :i th Lagoons. 41 I Four-basic types oF wildlife habitats existing in Carlsbad: (1) chaparral, (2) woodland., (3) ripar- ian, and (4) coastal lagoon. The chaparral habitat contains vegetation classified on the San Diego County Soil Survey maps as "broad-leafed chaparral," "narrow-leafed chaparral, and to some extent, "barren." The riparian habitat includes areas with intermittent drainage. Within these zones of habitats are many interrelated ecosystems, or functional physical and chemical rel-ationships. There are interrelated en\iroiments within these habitats "determined not only by geo- graphic location, but by soil type, drainage, erosion, water, wind, and many other environmental features--- considered of a local nature." i6. Climatic Zone: The City of Carlsbad's climate is largely controlled by the surface temperature of the Pacific Ocean. This and the distribution of land and water areas are the determining factors -for the typically mild winters and moderate summers. The average rainfall is 10.4 inches, but the precipita- tion occurrence is highly variable. Temperatures in this area are influenced by the coastal fogs and air currents from the ocean. The annual average minimum temperature is 55.1 °F, hile the annual aver- - age jnaximum temperature is 71.4 °F. 17. Grading: grading practi es allowed in the City have dverse effects. revisions have been established to mitigate the effects of earth moving (e.g., proper planting of environmentally adopted grasses, forbs and trees), and impede erosion. 1 Roads and Wildlife: 'Multi-lane roadways have exacted a great toll of animals, including birds, mammals and reptiles. Regardless of behavior (diurnal or noctur- nal), wildlife is-susceptible to road-kill. This problem will he especially acute as- the City extends roads inland through areas. 19 Grass Areas: The United States Forest Service has been making brush-to-grass type conversions through the County, including the Carlsbad area, since about 1953. Type conversion is a form of "fuQk modification," a change in what is available to be burned. Multiple benefits result from type conversions Grass areas provide fuelhreaks to aid in fire control and the absence of nature or climax vegetation reduces water , losses- through evapotranspiration. Conversions create a greater variety of wildlife habitats and provide browse or forage plants for livestock. - 42 2d. Wildlife Buffer Zones: Small wildlife such as neighborhood creeks, wood lots preserved. Development has not been.a form to existing geography, and buffer life haveS not been adequately provided impact of development. environment have not been dapted to con- zones for wild- to lessen the 21 Animal Crossings: Devices to discourage. roadway cross- ings by animals have not been employed, and structures to allow sa.fe passage have not been provided... This will become more important as development continues adjcent to lagoons and as development probes inland. 229 Lagoons: There has been a continuing discussion through- out the years as to what should be done to Buena Vista, Agua Hedionda, and Batiquitos Lagoons. The three lagoons existing constitute a major resting point along the Pacific Flyway for ducks, geese, and many water birds. Further, the lagoons contain or have the potential to be rehabilitated to contain fl-ora and fauna which cannot be found anywhere else in the world. Once blocked or built upon, the lagoons will drastically change (the process has started), causing irrepairable damage to thebird populations of North America. It is extremely important that they be wisely managed. Suggested uses have ranged from fillipg for industrial and residential uses to nature -reserves to ocean access small draft harbors. Each pt opôsal has had its staunch advocates and opponents. Since these lagoons differ in respect to such aspects as ownership, physical characteristics, governmental jurisdiction, potential uses, and financial and environmental costs of implementing various proposals, it is ess.ential that each be considered in its own light. . . Buena Vista Lagoon: San Diego County's Regional Parks Implementation Study recommends that Buena Vista Lagoon be developed as a nature preserve oriented regional park. Although the lagoon bottom as it presently exists is owned by organizations interested in such uses, most of the adjoining land intentd for park use, namely Flosp Grove, is no longer available for such purposes. The mouth of the lagoon has long been closed to the ocean and there is no need for it to be opened. The lagoon is well known as an especially important habitat for fresh and brackish water fowl and both public and private sentiment appears to favor this use. Agua_Hedionda Lagoon: This lagoon has been the sub- jct &T t/Tf5 TCarlsbad studies exploring its use as an ocean access small craft harbor. It has 43 also been recommended in the Regional Parks Implemen- tation Study as a major intensive water sports oriented regional park. The wet area of the lagoon is owned by the San Die-go Gas and Electric Company and is used as a cooling water intake and settling basin for the Encina Power Plant. This area is leased to the City of Carlsbad for recreational use. Since most of the south shore of the lagoon is owned by San Diego Gas and Electric Company and the remaining shoreline and adjoining acreage is privately owned, it appears that joint cooperation between San Diego Gas and Electric Company, the City, and private interests is essential if Agua Hedionda Lagoon is to be satisfac- torily developed. Batiqiitos Lagoon: This is the largest of the northern an Diego County coastal lagoons and appears capable of a wide variety of potential uses. It'differs from Buena Vista and Agua Hedionda Lagoons in several re- spects: (a) Although covered with water in winter and spring, most of it is usually dry during summer andfall.; (b) The lagoon bottom and surrounding area are almost all privately owned; and (c) Most of the area in and surrounding the lagoon is relatively undeveloped. The County's Regional Parks Implementation Study has recommended the acquisition of 355 acres of lagoon ót'om and 1061 acres of adjoining land as a coastal lagoon ecological preserve, and development as a water recreation regional park: The report also recommends that the County be the sole controlling agency and that the entire development be public. The City of Carlsbad, however, has taken the position that although it endorses the concept of a regional park at Batiquitos, t favors joint City-County and public- private participation to accomplish the desired results. Areas of agreement between City, County, and private interests are: (p.) Batiquitos Lagoon is capable of a wide range of ecological and recreation uses; (b) The lagoon should be opened up to tidal flushing; and. (c) Any type :of lagoon development will be very costly. Areas yet to be resolved are: (a) Specific uses on the lagoon proper; (h) Land uses, both public and private, on lands surrounding the. lagoon; (c) - Which public agency(s) should be in control; and (d) Methods of financing by public and/or private interests. 23. Calavera Lake: Owned by the City of Carlsbad, this lake is rccoinicnded for development by Sai Diego County as a major urban general recreation regional 44 park for . day use and cvcrnight camping with active play areas, inland wate: recreation, amply camping and picnic areas, and major cultural and equestrian facilities. The proposed CUavera Lake Regional Park, centered around the existing 40-acre Calavera Lake, is geographically. located to serve as a major focal point in the regional park system for the north- west county area. Development recommended is for a broad program of general recreation and cultural acti- vities including a regional cultural center, extensive active play areas, passive nature areas, moderate water recreation and equestrian facilities. The park site has further potential as the hub in a linkage of public recreation trails and open space corridors connecting with Buena Vista Lagoon along Buena Vista Creek and with Agua Hedionda Lagoon southwesterly along Agua Hedionda Creek. A larger lake is needed for land-term water recreation demand, and to provide an adequate basic attraction for users of this major regional facility. The proposed acreage fo the park totals 2,413 acres. Acquisition Priorities/Problems:Ithe 252-acre City of Carlsbad water property is purchased by the county, ditional devei.opable land will need to be purchased for park facilities. Portions of the park site are marginal terrain for other land use and may be included in the open space preservation pT.ogram. Drainage courses to the other parks should iclUde easements for trails. 24, The following lands are major open space opportunities in the Carlsbad area: Buena Vista Lagoon Agua Hedionda Lagoon Batiquitos Lagoon iiosp Grove Drainage courses and canyons from hill areas down to the lagoons Flight approach and take-off at Palomar Airport Calaveras Lake Area Squires Dam Area Areas of rough terrain considered difficult for development (steep slopes) Areas between the beach and Old Highway 101 that are not yet State beach areas Buffer areas between industrial land use and future residential development Utility easements Scenic Highway Corridors 25. Until the adoption of a new general plan, the City of Carlsbad's official policies and goals pertaining to the preservation of open space lands are contained in the 1966 General Plan and the Housing Element. - 45 The lgeneral plan provides for various types of permanent open spaces, including preservation of • existing natural features, and creating a system of OpeflspacC park- strips connecting other park sites and community facilities and residential areas. The old general plan is concerned with the need for general preservation of open space to serve as h transition between residential areas and certain incompatible non-residential uses and as holding zones for long- range urbanization of the area. Unfortunately, the implementation of the plan has been weak and has only met with partial success.. 26. The 1966 General Plan did not stress linking open space and recreation areas at either a micro or macro scale. The map titled "Potential Linkage and Other Special Features" illustrates potential scenic highway and the use of utility easements as linkages. 46 tAc>-r , crz t-,q PL. cm —IE C> 0 Ta P L St(k C1 • .. 47 CASE NO.: PCfl/GPC-13 DATE RECEIVED:_- APPIJANT: CITY OF CARLSBAD REQUEST: PURCHASE AN APPROXIMATE 28 acre PARCEL FOR CITY OFFICES Posted: Prior Compliance: Filed: NEGATIVE DECLARATION:__________________________ Posted: Published:_______ ENVIRONMENTAL IMPACT REPORT:___________________ Notice of Notice of Preparation: Completion: Published: Filed: Notice of Determination: Notice of Determination: PLANNING cOPISSION 1. Date of Hearing:4- 2-3r- 2 2. Publication: . . 3. Notice to Property Owners:______________ 4. Resolution No. . . Date: (Continued to: _____....... ... ... 5. Appeal: ..,- CITY COUNCIL 1. Date of Hering: ......... . 2. Notices to City Clerk:.............. 3. Agenda Bill: .. .- 4. Resolution No Date: ...... 5. Ordinance No. .......................Date: ACTION:Appr o IJQ'( Wv ACTION: CORRESPONDENCE Staff Report to Applicant: Resolution to Applicant: -'S •1 1