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.
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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.
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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.
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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.
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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
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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.
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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)
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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.
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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
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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.
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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.
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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.
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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.
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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.
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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.
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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.
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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.
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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
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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
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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
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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.
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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)
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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